Journal of African Development

Introduction

The African Union (AU), established in 2002 as the successor to the Organization of African Unity, is at the heart of efforts to secure peace and stability across the continent. With Africa facing a series of complex security threats, ranging from interstate wars to jihadist insurgencies and unconstitutional changes of government, the AU’s significance as both a regional security actor and peacemaker has never been greater. This article explores the role of the AU in promoting regional security, analyzes its institutional mechanisms, recounts peace operation case studies, examines successes and shortcomings, and provides an outlook on the priorities and reforms needed as Africa approaches new security challenges.

The AU Security Architecture: Mandate, Institutions, and Partnerships

Mandate and Legal Foundations

The AU’s peace and security agenda is grounded in its Constitutive Act, with clear objectives:

• Seek African solutions to African problems.
• Promote peace, security, and stability.
• Prevent and resolve conflicts, including responding to war crimes, genocide, and crimes against humanity, under Article 4(h)^[1][2].

Institutional Tools

The AU has developed significant security institutions:

• Peace and Security Council (PSC): Primary organ for prevention, management, and resolution of conflicts, with the authority to mandate peace operations, impose sanctions, and recommend interventions^[1][2].
• African Peace and Security Architecture (APSA): Includes the Continental Early Warning System, African Standby Force (ASF), Panel of the Wise, and mechanisms for mediation, sanctions, and post-conflict reconstruction^[3][4].
• Regional Economic Communities (RECs): Sub-regional organizations (e.g., ECOWAS, SADC, IGAD) that serve as first responders and operational partners within a subsidiarity framework^[5][6].

Partnerships

The AU collaborates closely with:

• The United Nations (UN) for financial, logistical, and legal support.
• The European Union (EU) and bilateral partners for funding and training^[3].

African-Led Peace Operations: Trends and Case Studies

Overview of Peace Operations

African-led peace operations have become essential for conflict management. By 2024, the AU and regional actors oversaw ten active peace operations across 17 countries, involving over 70,000 authorized personnel^[7][8].

Table: Major African Union and Regional Peace Operations

Key Successes

• Rapid Deployment: Regional actors mobilize peacekeepers more quickly than international counterparts, as seen with ECOWAS and the AU in Liberia and Mali^[7].
• Flexibility and Local Ownership: African-led missions demonstrate adaptability to context—addressing threats (like Islamist militancy) often outside UN operational mandates.
• Coordination: Improved regional security coordination, notably against cross-border insurgencies in the Sahel and the Lake Chad Basin^[6][7].

Somalia: A Core Case Study

The AU’s most significant and long-running operation is in Somalia. Since 2007, AU-led and later AU-authorized forces have worked to stabilize the country, strengthen government institutions, and push back al-Shabaab insurgents—a challenging mission that endures in 2025^[9][10]. While progress has been slow and costly, the AU’s role has been vital in preserving national institutions and protecting civilians.

Effectiveness: Successes and Persistent Challenges

Measured Success

A 2018 evaluation found the AU’s APSA addressed 42% of violent conflicts in Africa between 2002-2018 through diplomacy, mediation, or peace operations, with 75% of those interventions achieving at least partial success in de-escalating violence^[4]. Key strengths include legitimacy, diplomatic reach, and a comprehensive peacebuilding framework linking security, development, and governance.

Challenges

• Resource and Capacity Gaps: Underfunding, reliance on external financial support, and weak technical capacities often limit operational effectiveness, as seen especially in prolonged operations like ATMIS in Somalia and earlier in Darfur^[10][8].
• Sovereignty vs. Intervention: Many member states are reluctant to allow proactive conflict prevention, viewing early intervention as an infringement on sovereignty—leading the PSC to act reactively rather than preemptively^[10][4].
• Political Will and Consistency: The AU has sometimes struggled to apply its peace and security principles consistently, particularly following coups d'état in West Africa (e.g., Mali, Burkina Faso, Niger) and election disputes.
• Civil-Military Relations: Military operations can safeguard peace but often leave deeper issues—governance, justice, reconciliation—unaddressed, risking repeat instability^[10].

The AU, Regional Integration, and Security

Regional integration efforts in Africa, championed by the AU and its RECs, enhance security through:

• Early Warning Mechanisms: RECs have developed regional early warning systems (e.g., ECOWAS’ ECOWARN, IGAD’s CEWARN) to detect and respond to emerging crises^[6][5].
• Norm Diffusion and Policy Harmonization: The AU promotes shared governance norms (anti-coup, election monitoring) and coordinated responses to security threats across regions.
• Joint Operations: Regional bodies regularly launch peace operations, whether independently or with AU backing, demonstrating subsidiarity—a principle where action starts closest to the crisis but under continental policy frameworks^[3][6].
• Cross-border Security: The AU and RECs address transnational threats (terrorism, arms trafficking, migration) that require cooperation beyond the capabilities of single states.

Priorities and Reforms for 2025 and Beyond

As of 2025, the AU faces heightened security challenges:

• Escalating Conflicts: Sudan’s war, instability in the Great Lakes region, the Sahel insurgency, and Cameroon’s crisis demand renewed mediation and support^[11][12].
• Unconstitutional Changes: The AU is grappling with how to meaningfully deter and respond to military coups and constitutional manipulation^[10][4].
• Financial Sustainability: Calls are increasing for AU member states to take greater ownership of funding security operations, reducing reliance on external actors.
• Civilian Protection and Post-Conflict Recovery: Focus is shifting toward conflict prevention, early warning, social cohesion, and rebuilding societies to address root causes of instability^[10][4].

Table: African Union Peace and Security Priorities for 2025

Conclusion: Towards a More Resilient Security Architecture

The African Union serves as a cornerstone institution for regional security in Africa—wielding both soft power (mediation, diplomatic norms) and hard tools (peace operations). Its achievements in conflict management, peacekeeping, and diplomacy are significant, though uneven. As Africa contends with a new generation of threats and operational bottlenecks, the AU’s continued legitimacy and effectiveness will require governance reforms, strategic investment in preventive tools, and greater commitment to continental solidarity. The AU’s pursuit of “African solutions for African problems” will define its legacy in advancing peace and prosperity on the continent.

References

1. "The African Union and Security," SAIIA
2. "African-Led Peace Operations: A Crucial Tool for Peace and Security," Africa Center for Strategic Studies
3. "Effectiveness of the African Union in Conflict Response," IDS
4. "AU Political Affairs, Peace & Security Department," African Union
5. "Eight Priorities for the African Union in 2025," International Crisis Group
6. "The African Union in 2025: Outlook and Insights," Konrad-Adenauer-Stiftung
7. "African Union Peace Support Operations," Casque Bleu
8. https://au.int/en/psc
9. https://en.wikipedia.org/wiki/African_Union
10. https://www.europarl.europa.eu/RegData/etudes/STUD/2023/702587/EXPO_STU(2023)702587_EN.pdf
11. https://opendocs.ids.ac.uk/ndownloader/files/53320370
12. https://au.int/en/recs
13. https://cris.unu.edu/linking-peace-security-and-regional-integration-africa
14. https://africacenter.org/spotlight/african-led-peace-operations-a-crucial-tool-for-peace-and-security/
15. https://casquebleu.org/index.php?title=Support_to_African_peace_support_operations
16. https://www.accord.org.za/conflict-trends/conflict-resolution-by-the-african-union-encounters-of-peacekeeping-efforts-in-somalia/
17. https://www.kas.de/documents/13332971/33967981/Policy+Paper+THE+AFRICAN+UNION+IN+2025+Tsion+Hagos.pdf/4300d389-9f9a-2163-2151-9df75ec3e74d?version=1.0&t=1738650716314
18. https://www.crisisgroup.org/africa/african-union-regional-bodies/b205-eight-priorities-african-union-2025
19. https://www.crisisgroup.org/how-we-work/events/big-priorities-african-union-2025-zooming-sudan-drc-and-cameroon