Download - African Union REPORT Sudan and s Sudan

7/29/2019 African Union REPORT Sudan and s Sudan

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Addis

PEACEA353RDME

ADDISA25JANU

R

AFRICANU

baba,Ethio

NDSECURIETING

ABA,ETHIRY2013

EPORTOF

NION

pia,P.O.Bo

Email:

YCOUNCIL

PIA

HEAFRICA

x:3243 T

situationr

UNIONHISUDANAN

el.:(25111

om@africa

HLEVELISOUTHSU

U

U

5513822

union.org

PLEMENTDAN

IONAFRIC

IOAFRIC

Fax:(251

PSC/AH

TIONPANE

INE

NA

1)551932

G/3.

(CCCLII

LFOR

I)


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PSC/AHG/3.(CCCLIII)Page1

REPORTOFTHEAFRICANUNIONHIGHLEVELIMPLEMENTATIONPANELFORSUDANANDSOUTHSUDAN

I. INTRODUCTION1. ThisreportispreparedpursuanttoCouncilscommuniqusatits319thmeetingon24April, 339

thmeeting on 24 October and 349

thmeeting on 14 December 2012, addressing

outstandingmattersbetween theRepublicofSudan and theRepublicof South Sudan. It

drawsupontheactivitiesundertakenbytheAfricanUnionHighLevelImplementationPanel

forSudan(AUHIP)infacilitatingtalksbetweenSudanandSouthSudan,aswellasactivities

undertaken by the Panel and the Chairof InterGovernmentalAuthority onDevelopment

(IGAD) to mediate between the Government of Sudan and Sudan Peoples Liberation

Movement North (SPLMN) during this period. In particular, the report includes the

outcomes of the Summit meeting of 4 and 5 January 2013, as well as subsequent

discussionsbetween

the

Parties.

2. Following the outbreak of fighting along the border between Sudan and SouthSudan,Councilconvenedameetingatministeriallevelon24April2012,atwhichitadopted

acommuniquincorporatingaRoadmapforimplementationbySudanandSouthSudanto

ease the tensionbetween the twocountries, facilitate the resumptionofnegotiationson

postsecession relations and outstanding issues in the Comprehensive Peace Agreement

(CPA),andassistinthenormalizationofrelationsbetweenthetwoStates.Thecommuniqu

alsoaddressedtheconflictintheTwoAreasofBlueNileandSouthernKordofanstatesin

theRepublicofSudan.TheRoadmapwasendorsedbytheUNSecurityCouncil,actingunder

ChapterVIIauthority, inresolution2046(2012)of2May2012.TheAUandUNadopteda

threemonth

deadline

for

the

resolution

of

the

issues

in

the

Roadmap.

3. Subsequently, theAUHIP facilitated negotiations between the Parties, including aSummitmeetingheldbetweenthetwoPresidentsofSudanandSouthSudanfrom22to27

September2012. TheSummitculminated inthesigningofaCooperationAgreementand

Agreements on eight other issues, covering security arrangements, oil and transitional

financialarrangements,thestatusofnationalsofonecountry resident in theother,post

servicebenefits,trade,banking,borderissuesandcertainothereconomicmatters.

4. A number of outstanding issues between the two States remainedunresolved.Subsequently,Councilmeton24October2012and,again,on14December2012,

to

consider

reports

of

the

AUHIP

on

progress

made

by

the

Parties

on

these

matters.These

meetingstookfurtherdecisionsontherelationsbetweenSudanandSouthSudan.

5. At its 349thmeeting, Council requested theAUHIP to submit a final reporton alloutstandingissuesarisingfromthe24April2012communiquandRoadmap,toameeting

oftheCouncil inJanuary2013,onthemarginsoftheOrdinarySessionoftheAssemblyof

theUnion,atthelevelofHeadsofStateandGovernment.


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6. From 4 to 5 January 2013, with the support of the Chair of IGAD, the AUHIPconvenedaSummitmeetingbetween thePresidentsofSouthSudanandSudan, inAddis

Ababa, toaddressoutstanding issues.ThisSummitagreedon theneed for theexpedited,

unconditionalandcoordinated implementationofallelementsof the27September2012

Agreements.

II. OUTSTANDINGMATTERSARISINGFROMTHE24APRILCOMMUNIQUANDROADMAPOFTHEPEACEANDSECURITYCOUNCIL

Security7. Inthe24April2012CommuniquandRoadmap,Councilresolvedthatthereshouldbeanunconditionalwithdrawalofallarmedforcestotheirsideoftheborder,inaccordance

withpreviouslyadoptedagreements.BothPartieshavepubliclyannouncedthattheyhave

fulfilled their commitments in this regard. This shall be verified by the Joint Border

VerificationMonitoring

Mechanism

(JBVMM).

8. Council resolved that the twoStatesshouldactivate thenecessarybordersecuritymechanisms,namelytheSafeDemilitarizedBorderZone(SDBZ)andtheJBVMM:

a. Duringanextraordinarymeetingof the JointPoliticalandSecurityMechanism(JPSM),convenedbytheAUHIP,on19December2012,thePartiesdevelopedan

implementationmatrix for security issues and adetailed implementationplan

withtimelines,withtheassistanceoftheUnitedNations InterimSecurityForce

forAbyei (UNISFA)ForceCommander.From13 to18 January2013, theAUHIP

convenedasubsequentextraordinarymeetingoftheJPSM.Duringthismeeting,

theGovernments

of

Sudan

and

South

Sudan

made

public

statements

to

affirm

their compliance with the Planning Matrix on implementation of security

arrangementsagreedon19December2012.They furtheragreedon the time

bound implementationplan,which includeddetaileddeploymentdates for the

JBVMMandadditional requirements for forceprotectionand logisticalsupport

forthebordermonitoringmission.

b. The Security Agreement of 27 September 2012 stipulated that the SafeDemilitarizedBorderZone (SDBZ)wouldbeoperationalized inaccordancewith

the AUHIP administrative and security map of November 2011, with special

arrangements for the 14 Mile Area, which shall include the complete

demilitarisation

of

the

14

Mile

Area.

At

the

JPSM

meeting

of

15

December

2012,

theAUHIPsubmittedtothePartiesageographicaldefinitionofthe14MileArea,

which was derived from historical maps and agreements, and reflected the

AUHIPs November 2011 map of the SDBZ. On this matter, the two Parties

presentedtheirpositionsatthe lastmeetingofthe JPSM.However,they failed

toagreeonthegeographicaldefinitionofthelengthofthe14MileArea.Theco

chairsof the JPSM agreed that this issue shouldbe resolved at a forthcoming


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extraordinarymeetingof the JPSMon,orbefore,13February2013.Theyalso

agreedtomeetevery45daysthereafter.

9. CouncilalsocalledonbothPartiestoceaseharbouringandsupportingrebelgroupsagainst

the

other

State.

It

further

urged

the

activation

of

the

Ad

Hoc

Committee,

under

the

JPSM,toreceiveand investigatecomplaintsandallegationsmadebyonePartyagainstthe

other:

a. During the 1318 January JPSMmeeting, the Parties agreed on a process fordealingwithsecurityrelatedcomplaintsandconcernsofeachState.Harbouring

andsupporttorebelsshallbedealtwiththroughthisprocess.Inthisregard,the

Parties have tasked the AdHoc Committee and the JBVMM to investigate

concernsandcomplaintssubmittedtotheJPSMbybothStates.

10. The Panelrecommends that Council remains seized of thesematters and that itreport

to

Council

on

progress.

Abyei11. CouncilrequestedthePartiestoengageeachotheronthematterofthefinalstatusofAbyeiArea:

a. During the Summit meeting held from 22 to 27 September 2012, theGovernmentof theRepublicof SouthSudanaccepted the21September2012

AUHIP Proposal on the final resolution of the status of Abyei, while the

GovernmentoftheRepublicofSudandidnot.ThetwoPresidentsdiscussedthe

matterin

the

Summit

meeting

of

45January

2013

and

agreed

that

the

immediatepriorityshouldbegiventothefullimplementationoftheAgreement

on TemporaryArrangements for theAdministration and Security of theAbyei

Area,andthattheywouldresumetheirdiscussiononthefinalstatusofAbyei,

including matters relevant to the formation of the Abyei Area Referendum

Commission after theAbyeiAreaAdministration, theAbyeiAreaCounciland

the Abyei Police Service have been constituted (the Abyei administrative

bodies).

b. Asdiscussed inparagraph12below, theoutstandingdifferences regarding theconstitutionof theAbyeiadministrativebodieshavenowbeen referred to the

two

Presidents

and

will

serve

on

the

agenda

of

their

next

meeting,

with

the

facilitationofthePanel.

c. The Panel is confident that the Presidents will honour their 5th JanuaryundertakingtoproceedtodealwiththematterofthefinalstatusofAbyeiArea,

as soon as they have resolved the outstanding issues relating to the Abyei

administrativebodies.


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d. ThePanel stands ready to support the twoPresidents in theirdeliberations toresolve the final statusofAbyeiArea, in accordancewith thedecisionsof the

Councilonthismatter.

12. Council called on the Parties immediately to implement, in its entirety, theAgreementonTemporaryArrangements for theAdministrationandSecurityof theAbyei

Area:

a. ThePresidentsofSudanandSouthSudanagreedattheSummitmeetingof45January2013toimplementthetermsoftheagreementwithimmediatelyeffect.

TheAbyei JointOversight Committee (AJOC)meton12 and 13 January 2013.

Duringthismeeting,theAJOCconfirmednominationsfortheleadingpositionsof

theadministrativebodies tobeestablished.However, thesenominationshave

been held in abeyance until the conclusion of the outstanding issue of the

numberofpersonseachStatemayappointtotheAbyeiAreaCouncil(AAC).The

AJOChas

referred

this

issue

to

the

two

Presidents

for

their

guidance.

The

AJOC

agreedtocontinuetechnicaldiscussionsanddeliberateonproposalsrelatingto

theestablishmenttheAbyeiPoliceServiceon30January2013.

b. AlthoughthisoutstandingmatteroftheAACmembershiphasstalledprogressinestablishingtherelevantbodiesinAbyei,asagreedbythetwoPresidentsatthe

Summitmeeting of 45 January 2013, it ishoped that the two Presidentswill

resolvetheissueurgently,sothattheprocesscanproceed.

c. TheAUHIP recommends thatCouncilremainsseizedof thismatterand that itreportstoCouncilonprogressonthesematters.

DisputedandClaimedBorderAreas13. CouncilcalledonthePartiestoreachagreementontheprocessfortheresolutionofDisputedandClaimedBorderAreas:

a. The Presidents of Sudan and South Sudan, in their Summit meeting on 45January2013,directedthatthenecessaryandagreedmeasuresshouldbetaken

withoutfurtherdelaytodemarcatetheagreedsectionsoftheborder,andthat

theagreementsrelatingtothematterofprocessingthedisputedareasshouldbe

implemented. They further agreed that, as soon as the twoGovernmentshad

concluded

their

discussions

on

the

Disputed

Areas

after

receiving

the

opinion

of

theAUTeamofExperts,thePresidentswillmeettodeterminethewayinwhich

thematterofClaimedAreasshouldbeprocessed.

b. ThePanelisconcernedthattheJointBorderCommission,theJointDemarcationCommittee and the Joint Technical Teams responsible for overseeing and


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implementing the demarcation process have not yet been activated. The two

Stateshavealreadynominatedrepresentativesforthesebodies.

c. ThePanelconsidersthatthematteroftheprocessfordealingwiththeDisputedand

Claimed

Border

Areas

has

been

satisfactorily

dealt

with.

The

Panel

will

monitortheimplementationofthePresidentsdecisioninthisregard.Following

theLeadNegotiatingPanels (LNP)meeting from13 to18 January,mostof the

sequencinghasbeenagreed,butthequestionofexacttimingstillremainstobe

referredtotheHeadsofStatefortheirguidance.

d. Inthesecircumstances,thePaneldoesnotcurrentlyseeanyrequirementfor ittopresentanyproposaltoCouncilonthematteroftheprocessfordetermining

thefinalstatusoftheDisputedandClaimedBorderAreas.

e. ThePanelproposesthatCouncilurgethetwoStatestoactivatetheinstitutionsfor

overseeing

and

implementing

the

demarcation

process.

The

Panel

further

proposes that it report toCouncilon theprocesses fordealingwithDisputedandClaimedBorderAreasasappropriate.

TheTwoAreas14. Initsmeetingsof24Octoberand14December,CouncilcalledupontheGovernmentofSudanandtheSPLMNtoenterintodirectnegotiationstoseekapoliticalsolutiontothe

conflictintheTwoAreas:

a. ThePartieshavenotyetacteduponthesecalls.b. TheAUHIPstressesthatthereisnomilitarysolutiontotheconflictintheTwo

Areasandthatthere isnoalternativetothePartiessittingat thenegotiatingtable to seek a political settlement. The AUHIP recalls the FrameworkAgreementof28 June2011and theproposedagreement it submitted to thePartieson17September2012,butalsonotesthatitiswillingtoentertainnewideas should the Parties bring them forward. The AUHIP remains ready tofacilitatetheneededpoliticalnegotiations.

15. Initsmeetingsof24April,24Octoberand14December2012,CouncilcalledontheGovernmentofSudanand theSPLMNtoenableurgenthumanitarianassistancetoreach

the

affected

population

in

the

Two

Areas,

and

additionally

called

for

a

ceasefire

for

these

purposes.

a. ThePartieshavenotyetactedonthesecalls.b. The Panel proposes that Council reiterates its call for immediate and

unconditionalhumanitarianassistanceforthewaraffectedpeopleoftheTwo


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Areas.ThePanelfurthernotesthatifeitherofthetwoPartiespersistinfailingtopermitsuchassistance,itwillnotbepossibleforCounciltodiscourageanyothermechanisms forhumanitarianassistance thatarenotnecessarily in fullconformitywiththepreferredprinciplesofimpartialityandtransparency.

III. RELATED MATTERS ARISING FROM 24 OCTOBER AND 14 DECEMBER 2012COMMUNIQUSOFTHEPEACEANDSECURITYCOUNCIL

InternationalAssistancetoSudanandSouthSudan16. In its Communiqu of 14 December 2012, Council called on the internationalcommunity to provide political, economic and financial assistance to the Parties as they

strivetoimplementtheAgreementsreached:

a. Therehasbeennoprogressonthisactionpoint.b. In the LeadNegotiating Panel (LNP)meeting from13 to 18 January 2013, the

Parties agreed that, as part of the implementation of the Matrix, the Panel

should move forward with its commitment to propose modalities for Joint

Approachtotheinternationalcommunitytoseekeconomicassistance,including

debtrelief,within30days.

c. The AUHIP notes the exceptional development and financial needs of bothcountries, and recommends thatCouncil callsupon internationalpartners toprovidescaledupdevelopmentcooperationassistancetoSouthSudan,andtotake expedited steps to lift economic sanctions imposed on Sudan and to

provideSudan

with

debt

relief.

InternationalAssistancetoCommunitiesinAbyei17. Councilalsocalledonthe internationalcommunityurgentlytoassistthePartiestoeffect the safe anddignified returnof alldisplacedpersons toAbyei, and requested the

Commissiontoconveneaninternationalconferencebringingtogetherrelevantstakeholders

and partners to coordinate assistance for the rehabilitation and reconstruction ofAbyei,

includingaddressingtheeconomicneedsofthenomadicpopulation:

a. Such a conference requires the establishment of the Abyei administrativestructures

to

convene

local

communities

to

discuss

and

present

their

views

to

the conference. International partners have indicated their support for the

conferenceandhavebeenurgedtostandreadytoconveneassoonaspossible.

b. TheAUHIPnotes that thenormalizationof life inAbyei isaprerequisite forcreating stabilityandgood relationsbetween thedifferent communities thatreside in Abyei and utilize its territory on a seasonal basis. The AUHIP


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recommends that Council strongly urge the Parties to establish theadministrativebodiesinAbyeitofacilitatetheconveningoftheconference.

ImplementationofCooperationAgreementsbetweenSudanandSouthSudan18. In itsmeetingof14December2012,Councilencouraged the twoStates toensurethe effective and timely implementation of the Agreements signed, as well as other

AgreementsreachedwiththefacilitationoftheAUHIP.

a. Very little progress was made towards the implementation of any of theAgreementsmadeduringtheperiodbetweenthesigningoftheAgreementson

27September2012andtheSummitmeetingbetweenthePresidentsofSudan

andSouthSudanfrom4to5January2013.

b. The two Presidents therefore requested the AUHIP to produce aMatrixwithtimeframes

for

the

speedy,

unconditional

and

coordinated

implementation

of

all

issues by 13 January 2013. The Panel produced the requested Matrix with

timeframesandsubmittedittotheParties.

c. ThePartiesprovided comments,and theMatrixwasdiscussed indetailat theleveloftheLNPfrom13to18January2013.Mostdifferencesof interpretation

havebeen resolvedoreliminated,with fourexceptions,namely: the timingof

negotiations on claimed border areas; whether or not the arbitration

concerning Sudapet, Sudans state oil company, should be suspended during

negotiations; whether it is possible to conduct the joint approach to the

international community to address matters such as forgiving Sudans

internationaldebt,

lifting

sanctions

on

Sudan

and

the

international

contribution

to the transitional financial arrangements,whilst the Sudapetdispute isunder

arbitration;andwhether the timingof the resumptionofoilexportsshouldbe

linkedtothefulloperationalizationoftheSDBZ.ThePanelintendstoconvenea

meetingofthetwoPresidentstoresolvetheaboveissuesatthemarginsofthe

AUHeadsofStateSummit.

d. TheMatrixcoversallissuesunderdiscussion.ItsetsDDayas20January2013.AcopyoftheMatrix,asamended inconsultationwiththeParties, isappended

tothisReport.

e.The

Panel

understands

the

matrix

to

be

an

aid

to

the

implementation

of

the

Partiesobligationsandnotaprerequisiteforfulfillingthoseobligations.ThePanelthereforerecommendsthatCouncilurgesthetwoStatesimmediatelytocommence implementation of all their obligations under the agreementswithoutcondition,usingtheagreedpartsoftheMatrix.


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f. The Panel further recommends that it should work together with the twoStates tomonitorand facilitate,asappropriate, the implementationof thesecommitmentsandreporttoCouncileverythreemonthsoratsuchintervalsasCouncilmaydetermine.

IV. OBSERVATIONS19. Sudan and South Sudan are linked by immutable facts of geography and history.Thereisnoviablealternativeexceptforthetwocountriestoaffirmthesetiesanddevelop

closer,cooperative relationswith each other in theeconomic, social, politicaland security

spheres. In this regard, the range of the September 2012 Agreements provide an

appropriatebasisuponwhichtobuildtheirbilateralrelations.

20. Without effective implementation, all of these Agreements will remain mereaspirations.Translatingthem intoconcreterealityforthebenefitoftheirpeoplesrequires

thetwo

States

fully

to

invest

in

the

effective

functioning

of

implementation

arrangements

theyhavealreadyadoptedintheAgreements.Theywill,inparticular,needtoadoptviable

joint mechanisms for monitoring and overseeing the full realisation of these important

Agreements. In these critical endeavours, the two States are entitled to rely upon the

politicalandpracticalsupportoftheAUandtheinternationalcommunityasawhole.

21. FollowingthesecessionofSouthSudan,theRepublicofSudancontinuestofacethehistorical challenges of managing its diversity, nurturing democracy and promoting

equitable development. In October 2009, the AU High Level Panel on Darfur (AUPD)

identified the Darfur conflict as Sudans crisis in Darfur and proposed that the final

resolution of the Darfur conflict would be achieved only within a wider national

transformation.That

democratic

transformation

remains

the

urgent

task

of

the

Sudanese

leadership in all its manifestations, which will continue to need Africas unwavering

encouragementandsupport.

22. By thisanalysis,a lasting settlementof the Sudanese conflict in theTwoAreasofBlueNile and Southern Kordofan states is required. Ending thewar in the Two Areas

cannotbeachievedwithoutputtinginplaceinclusivenationalpoliticalarrangements,which

willremovegrievancesthatfuelSudanscrises.

23. AfricasyoungestState,theRepublicofSouthSudan, istaking itsfirststepsonthelong and exciting roadofnationbuilding. It facesopportunities aswell asdangers, as it

seeks

to

forge

itself

into

a

nation

built

on

democratic

values,

dedicated

to

building

the

best

future for its citizens. It too faces the challengeofbuildingnational cohesion, aswell as

institutionsforthetasksofseparatingciviladministration,partyandarmy.

24. Council adopted its Roadmap and Communiqu of 24April 2012 at a timewhenSudanandSouthSudanwereengagedinactivemilitaryhostilitiesandwereonthebrinkof

alloutwar.Suchawarthreatenednotonlymassivedisruptionand lossof life,butalsoto


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bankrupt and destabilise the two countries and raise a host of additional grievances

between them. In theweeks following the adoptionof theRoadmap, the two countries,

withthefacilitationoftheAUHIP,succeeded inavertingthethreatof immediatewar.The

Summitmeetingsof 2227 September 2012 and 45 January 2013have since resolved a

numberof

key

issues

between

Sudan

and

South

Sudan

and

paved

the

way

for

resolving

otherissuesofcontention.

25. Although the two countries have stepped back from the brink of war and haveopened the door to restoring relations based on the principle of two viable States,

securitytensionsontheborderandeconomicpressuresinbothcountriesremainissuesof

considerable concern. The prospectofmutualprosperity can only be realised if the two

countriesmove forward immediatelyandunconditionally,with the implementationof all

Agreements, especially the establishment of security structures and the restart of oil

productioninSouthSudan,anditsexportthroughSudan.

26. ThemeetingsoftheLNP,JPSMandAJOCinJanuary2013haveresolvedmostoftheoutstanding issues.However, fivequestionsof implementationandsequencingremain,asnotedinparagraph18.TwoissuesrelatingtoAbyeialsoremaintoberesolved,namelythe

matterofthemembershipoftheAbyeiAreaCouncil,andthemajorissueoftheFinalStatus

ofAbyeiArea.ThePanelisconfidentthatthePresidentsofSudanandSouthSudanwillbe

abletoprovideguidanceorreachagreementtoenabletheresolutionofallthesematters.

27. TheconflictintheTwoAreasthreatensbothtojeopardizeprospectsforastableanddemocraticSudanandalsotounderminegoodneighbourlyrelationsbetweenSouthSudan

andSudan.Itisimperativethatnegotiationstoresolvethisconflictareenteredintoassoon

aspossible, for thesakeofthecitizensofSudan,especially thosedirectlyaffectedby the

conflictand

the

ensuing

humanitarian

crisis,

for

the

sake

of

the

Sudanese

nation

and

its

promiseofdemocracyandinclusivity,andforthesakeofrelationsbetweenSudanandthe

Africancontinent,includingitsneighbours.

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