UN Special Envoy to the Great Lakes region Huang Xia speaks on the Occasion of the 12th Anniversary of the Framework Agreement for Peace, Security, and Cooperation for the DRC and the Region
Twelve years ago, the DRC, its neighboring countries, and South Africa signed the Framework Agreement for Peace, Security, and Cooperation for the DRC and the region to address the root causes of instability in this part of the continent. Today, it seems history is repeating itself, and the region is once again facing a major crisis, perhaps even more severe. Given this situation, can we still say that the Framework Agreement remains relevant? Or has it failed to meet its objectives?
The Framework Agreement for Peace, Security, and Cooperation for the Democratic Republic of Congo and the region, initiated by the United Nations as a complement to the International Conference on the Great Lakes Region (ICGLR) Pact on Security, Stability, and Development, was signed on February 24, 2013, in Addis Ababa, Ethiopia, amid a crisis in the region.
For several decades, armed conflicts and violence had plunged eastern DRC into total insecurity, fueled by tensions among regional countries.
This situation undermined prospects for peace and development in the region.
In this concerning context—unfortunately still the case today—the signatory countries expressed in the Framework Agreement their commitment to addressing the root causes of conflicts to put an end to the recurring cycles of violence, which have had devastating consequences for civilian populations, including millions of deaths, forced displacements, humanitarian crises, human rights violations, and all kinds of atrocities.
Unfortunately, as we have seen, the conflict has resumed, in blatant violation of the provisions of the Framework Agreement. This is an opportunity for me to reiterate that now more than ever, the countries of the region must return to the essential principles and values of peaceful coexistence among nations, namely dialogue, cooperation, and respect for commitments made, not only under the Framework Agreement but also under the ICGLR Pact and other fundamental principles of the UN and African Union Charters.
Therefore, the Framework Agreement still has a role to play, provided it is revitalized to address persistent challenges.
This instrument offers a comprehensive consultation framework involving all concerned parties around national, regional, and international commitments.
Its main objectives include addressing the root causes of instability, ending the activities of local and foreign armed groups operating in eastern DRC, and promoting respect for territorial integrity and regional cooperation mechanisms, including in natural resource management, with the goal of creating an environment conducive to sustainable peace and development in the Great Lakes region.
Finally, with its threefold national, regional, and international dimension, the Framework Agreement provides a platform for dialogue and consultation on the legitimate concerns of the signatory countries, fostering peaceful coexistence in the region.
This makes it a still relevant framework, not only to address the current crisis sustainably but also to prevent future crises, provided that each signatory state upholds its commitments.
What have been the major challenges over the past 12 years? What lessons can be drawn, and what key factors are necessary to ensure the full and effective implementation of the Framework Agreement commitments?
Before discussing the challenges in implementing the Framework Agreement, it is important to acknowledge that encouraging progress has been made over the past decade.
The agreement has paved the way for confidence-building measures, marked by remarkable diplomatic activity in the region.
It has also led to the establishment of mechanisms aimed at reducing tensions among certain countries, such as the Contact and Coordination Group on Non-Military Measures to Eradicate Negative Forces, the development of a joint penal policy with the ICGLR to combat transnational crime, and the promotion of promising regional cooperation perspectives.
However, twelve years after its signing, the region is again experiencing an unprecedented crisis, with the resurgence of the March 23 Movement (M23), which has taken control of Goma and recently entered Bukavu.
This new crisis is even more severe than that of 2012-13, given the tensions it has generated among several countries in the region and beyond. One of the key reasons for this crisis is the lack of political will among signatory countries to effectively implement the commitments made under the Addis Ababa Agreement.
Additionally, other destabilizing factors—including persistent mistrust among some regional leaders, continued illegal exploitation and illicit trafficking of natural resources, the ongoing proliferation of armed groups in eastern DRC, and enduring impunity—have further exacerbated tensions. Despite these challenges, they are not insurmountable and can be resolved through political dialogue.
First, a greater sense of ownership of the Framework Agreement by the signatory states is essential to increase its chances of success in establishing stability and reconciliation in the region. Second, the concerned parties must demonstrate good faith and renewed commitment to ensure more effective implementation of their obligations under the Framework Agreement.
It is in this spirit that Heads of State of the signatory countries have expressed the desire to revitalize the Agreement, aiming for collective engagement to better contribute to medium- and long-term efforts to find a lasting solution to insecurity and instability in the region.
A key lesson from the past decade is the significant contribution of civil society organizations, particularly women’s groups, to the implementation of the Framework Agreement. These organizations have played a crucial watchdog role, continuously raising alarms on major concerns, urging governments to uphold their commitments, strengthening ties among communities at local, national, and regional levels, and mobilizing international partners for increased support of peace and security efforts.
The role of civil society is therefore essential, and my office remains attentive to amplifying their voices so that they are heard by signatory states and regional leaders.
Could you tell us more about the process of revitalizing the Framework Agreement? What does this concretely mean, and where does this process currently stand?
The revitalization process of the Framework Agreement began in 2023, based on the realization that dynamics in the region had significantly evolved since 2013.
This led to the development of relevant recommendations by representatives of the signatory states within what is known as the Technical Support Committee.
These recommendations include: Encouraging full implementation of commitments made under the Framework Agreement Revitalizing intra-regional trade; raising awareness about the Framework Agreement’s objectives ; enhancing governance mechanisms within the Agreement and strengthening the role of guarantor institutions
During their 12th High-Level Meeting of the Regional Oversight Mechanism, hosted by Uganda, regional Heads of State will have the opportunity to review these recommendations.
The aim is to adopt an action plan, whose implementation will be closely monitored by the United Nations and other guarantors of the Framework Agreement.
On this anniversary, I take the opportunity to call urgently for this Summit to be convened, as it must not only endorse and support ongoing regional peace efforts but also reaffirm the importance of addressing the root causes of conflicts through a renewed commitment to implementing a revitalized Framework Agreement.
What role do the guarantor organizations—the UN, AU, ICGLR, and SADC—play in ensuring that commitments are upheld and that recurring crises are permanently resolved?
Recent developments unfortunately show that the same problems that led to the signing of the Framework Agreement in 2013 still persist in the region, with greater urgency.
The guarantor institutions of the Agreement—the African Union (AU), ICGLR, Southern African Development Community (SADC), and United Nations (UN)—have continuously supported the region’s efforts.
However, stronger coordination among all regional organizations involved in conflict resolution is essential. While regional peace initiatives help address urgent crises, the Framework Agreement remains a crucial tool for tackling the root causes of chronic instability in the medium and long term.
The AU and UN must continue to play a leading role by leveraging their expertise, advocacy, and resource mobilization capacities.
However, ultimate responsibility lies with the signatory countries themselves, as the guarantor institutions can only support, encourage, and facilitate the peace process—but not enforce it by force.
Political will remains the key factor in achieving sustainable peace and shared prosperity in the region.
