As Democratic Republic of Congo Elections Approach, Speakers in Security Council Express Concern over Humanitarian Situation, Regional Tensions
With upcoming elections in the Democratic Republic of the Congo fast approaching, speakers in the Security Council today expressed concern over the country’s security situation, humanitarian conditions and regional tensions.
Briefing the 15-member organ, Bintou Keita, Special Representative of the Secretary-General and Head of the United Nations Organization Stabilization Mission in the Democratic Republic of the Congo (MONUSCO), said it is an important moment for the country and its relations with the UN. The Democratic Republic of the Congo is in an electoral period, nine days from presidential, national and provincial legislative and local elections. The Government has called for an accelerated, orderly and responsible withdrawal of MONUSCO; however, the country faces insecurity and humanitarian crises. “All of these factors must be taken into account when redefining the partnership which binds us.”
She underscored progress in holding upcoming elections on 20 December but said there have been reports of issues including some non-publication of voter rolls and missing accreditation for observer missions. She noted violent clashes between rival political parties’ supporters in many provinces and intimidation against women candidates. She expressed alarm over the proliferation of mis- and disinformation and hate speech, online and offline, amid the electoral campaign.
She highlighted crises, particularly in eastern Ituri and North Kivu, in the latter particularly following the resumption of hostilities between the armed forces and M23 since October, and the M23 offensive in Masisi territory. She noted that “regional tensions between the DRC [Democratic Republic of the Congo] and Rwanda have further escalated, heightening the risk of a direct military confrontation that could also draw in Burundi.” The incidences of gender-based violence and sexual exploitation have reached alarming levels, with more than 90,000 cases since the beginning of 2023. “This is totally unacceptable.”
She called for more funding. As of November, the country’s Humanitarian Response Plan for 2023 remained drastically underfunded, with only 37.5 per cent of the required $2.25 billion raised. MONUSCO, with the UN country team, is exploring options to ensure continued humanitarian assistance beyond the Mission’s presence.
Also briefing the Council, Sandrine Lusamba, National Coordinator of Solidarité Féminine pour la Paix, a Congolese organization that campaigns for the defence and promotion of women’s rights, emphasized the limited information available to civil society regarding the MONUSCO disengagement plan. Turning to the Mission’s mandate, she said that the UN country team’s mapping of protection activities lacked a comprehensive needs analysis and excluded the contributions of civil society, thus limiting the full, equal and meaningful participation of women and youth. Pointing to the rapid deterioration of the security situation in North Kivu province ahead of the elections, she underscored the heightened threat of gender-based violence, with survivors struggling to access timely medical care, psychosocial support and legal advice.
Regarding opportunities, she suggested that certain functions of the MONUSCO Civil Affairs and Child Protection Sections could be transitioned to local organizations in alignment with commitments to localize humanitarian assistance. Similarly, the work of the Mission’s Gender Section should be continued by local civil society organizations that have the trust of survivors.
In the ensuing debate, speakers highlighted the country’s critical humanitarian, financial and security situation, while underscoring regional tensions with Rwanda.
The delegate of the Democratic Republic of the Congo, noting that negotiations on the withdrawal of MONUSCO are entering their final stage, praised the Mission’s contribution to the electoral processes and strengthening the national army and police. However, he added that “the international community and MONUSCO continued to be unable to implement the mandate entrusted to it” by the Council to support the armed forces or protect civilians. He called on the Council to invest in full implementation of the Luanda and Nairobi peace processes. He stressed that Kinshasa is ready to engage in dialogue with Rwanda, which is part of the Luanda road map. He outlined his country’s priorities, including: the end of Rwandan aggression; the withdrawal of its troops; the eradication of armed groups, including M23; the return of displaced populations; and implementation of disarmament, demobilization, community recovery and stabilization programmes.
Rwanda’s representative deplored the Congolese Government, the Democratic Forces for the Liberation of Rwanda and foreign mercenaries for violating the ceasefire mandated by the regional peace process. He urged Kinshasa to reaffirm its commitment to regional agreements, which represent the best chance for peace. The Secretary-General’s report on MONUSCO is silent on the human rights violations, including the murder of civilians and the State-enabled persecution of Tutsi communities, he said, urging the Council to hold Kinshasa accountable for encouraging disinformation, hate speech and ethnic violence. Highlighting anti-Rwanda rhetoric from Congolese officials, including threats of invasion, mass murder and annexation by the country’s President, he urged Kinshasa to cease provocations.
Ghana’s delegate, speaking also on behalf of Mozambique and Gabon, welcomed the commitment of the African Union to support the stabilization of the Democratic Republic of the Congo by ensuring the coordination of regional peace initiatives. She voiced concern over the deterioration of the security situation in Ituri and Kivu provinces, due to the recurrence of attacks by armed groups. The Democratic Republic of the Congo and MONUSCO should continue promoting constructive dialogue to ensure a concerted, orderly and responsible withdrawal. With the highest number of internally displaced people in Africa, the humanitarian crisis in the country is reaching record levels in the absence of adequate funding for the Humanitarian Response Plan, she cautioned.
Albania’s delegate, expressing concern about the dangerous escalation of fighting among the armed groups with M23, urged Rwanda and the Democratic Republic of the Congo to de-escalate and embark on a journey of cooperation, economic development and shared prosperity, adding: “The whole region of the Great Lakes will benefit from it.” The path of reconciliation is challenging but it starts with ending support for M23 by Rwanda and its withdrawal from the Democratic Republic of the Congo.
The delegate of the United States highlighted that the Democratic Republic of the Congo faces a looming financial cliff when transitioning from assessed to voluntary contributions. He called on the international community “to mobilize additional resources now to bolster the work of UN agencies, funds and programmes in preparation for MONUSCO’s departure”. He welcomed Rwanda and the Democratic Republic of the Congo’s commitment to de-escalation but said more must be done to reduce tensions. He called on Rwanda to end its support for M23 and withdraw from the Democratic Republic of the Congo’s territory. He urged all actors to recommit to the Nairobi and Luanda processes.
THE SITUATION CONCERNING THE DEMOCRATIC REPUBLIC OF THE CONGO
Briefings
BINTOU KEITA, Special Representative of the Secretary-General and Head of the United Nations Organization Stabilization Mission in the Democratic Republic of the Congo (MONUSCO), said it is an important moment for the country and its relations with the UN. The Democratic Republic of the Congo is in an electoral period, nine days from presidential, national and provincial legislative and local elections, has called for an accelerated, orderly and responsible withdrawal of MONUSCO, and faces insecurity and humanitarian crises, particularly in eastern Ituri and North Kivu. “All of these factors must be taken into account when redefining the partnership which binds us.” The Secretary-General’s latest report escalating insecurity in the east, especially related to the renewed M23 crisis, and new pockets of insecurity elsewhere, notably the Greater Katanga region and Mai-Ndombe and Tshopo provinces. Since the report’s publication, the situation has further deteriorated in North Kivu. “Regional tensions between the DRC [Democratic Republic of the Congo] and Rwanda have further escalated, heightening the risk of a direct military confrontation that could also draw in Burundi.”
She highlighted that, according to the National Independent Electoral Commission (CENI), election preparations are advancing well. MONUSCO has provided logistical support. She underscored that the validation of 26 presidential candidates, including two female candidates, is “a tangible sign of inclusiveness, which needs to be appreciated and commended”. But she noted opposition and civil society concerns over the voters’ roll not being published at all polling stations by 5 December, as required by law. National electoral observation missions have raised concerns about their accreditation. She noted violent clashes between rival political parties’ supporters in many provinces and intimidation against women candidates. She expressed alarmed over the proliferation of mis- and disinformation and hate speech, online and offline, amid the electoral campaign.
She highlighted that the security, humanitarian and human rights situations have deteriorated in the south of North Kivu province, particularly following the resumption of hostilities between the armed forces and M23 since October, and the M23 offensive in Masisi territory. Tensions between the Government and Rwanda remain very high and the risk of a military escalation remains significant. To protect civilians, MONUSCO and the country’s armed forces carried out six joint operations in Ituri and North Kivu in the previous quarter. Operation Springbok was launched in November to secure the towns of Goma and Sake, so far deterring attempted M23 advances. In South Kivu, pockets of insecurity persist, particularly in the territories of Kalehe, Mwenga, Shabunda, Uvira and Fizi. She said that she was concerned by the recent rise in tensions between Rwanda and Burundi, following the engagement of Burundian forces against the M23 in Masisi. She underlined that the East African Community force has begun its withdrawal, and the Southern African Development Community (SADC) will deploy a force in the coming weeks. These efforts “will not be able to achieve their objectives without the continued and sustained investment of the Congolese Government in the regional, national and local political conflict resolution processes in the east”. She said this investment must come alongside security sector reform and the disarmament and community reintegration programme.
She noted that 6.3 million people are internally displaced, 5.5 million of them in the three eastern provinces. According to preliminary figures, over 500,000 people have fled their homes, following renewed hostilities between M23 and the armed forces since early October. There are outbreaks of cholera and measles. The incidences of gender-based violence and sexual exploitation have reached alarming levels, with more than 90,000 cases since the beginning of the 2023, 39,000 of these cases in North Kivu, she said. “This is totally unacceptable.” She called for more funding. As of November, the country’s Humanitarian Response Plan for 2023 remained drastically underfunded, with only 37.5 per cent of the required $2.25 billion raised. MONUSCO, with the UN country team, is exploring options to ensure continued humanitarian assistance beyond the Mission’s presence. She highlighted that the misconduct of some MONUSCO staff members “is an indelible stain on our work”. It is working to prevent and improve our response to cases of sexual exploitation and abuse, including prevention initiatives, swift investigations and timely victim support.
SANDRINE LUSAMBA, National Coordinator of Solidarité Féminine pour la Paix, a Congolese organization that campaigns for the defence and promotion of women’s rights, said the Democratic Republic of the Congo is at a crossroads. Referring to the withdrawal of MONUSCO, she emphasized the limited information available to civil society regarding the disengagement plan agreed upon between the Government and the United Nations. Turning to the Mission’s mandate, she said that the United Nations country team’s mapping of protection activities lacked a comprehensive needs analysis and excluded the contributions of civil society, thus limiting the full, equal and meaningful participation of women and youth. Pointing to the rapid deterioration of the security situation in North Kivu province ahead of the elections, she underscored the heightened threat of gender-based violence, with survivors struggling to access timely medical care, psychosocial support and legal advice.
Regarding opportunities, she suggested that certain functions of the MONUSCO Civil Affairs and Child Protection Sections could be transitioned to local organizations in alignment with commitments to localize humanitarian assistance. Similarly, the work of the Mission’s Gender Section should be continued by local civil society organizations that have the trust of survivors. Detailing risks linked to the withdrawal of MONUSCO, she highlighted potential deterioration in the protection of civilians, lack of monitoring and reporting on human rights and increased unemployment, among other issues.
Looking ahead, she said women should play a central role in the work of MONUSCO and the United Nations country team, leading decision-making across all areas, including humanitarian action. MONUSCO and the country team should collaborate with civil society to develop specific indicators for measuring the protection and promotion of women’s human rights, which will be used to assess improvements in the security situation, she added. The Security Council should encourage the Government to adopt a human-rights-based and survivor-centred approach in all humanitarian actions, while the donor community must not abandon the people of the Democratic Republic of the Congo, she concluded.
Statements
NICOLAS DE RIVIÈRE (France) said the international community must continue to support the Democratic Republic of the Congo in organizing elections, and encouraged all stakeholders to redouble their efforts to allow for smooth elections, calling on all parties to abstain from any violence or hate speech. “The M23 must cease its offensive and withdraw, Rwanda must bring an end to its support for the M23 and to the presence of troops on the Congolese territory,” he stressed, welcoming the efforts made by the Congolese authorities and MONUSCO to finalize the Mission’s joint disengagement plan. “France proposed to the members of this Council a resolution that implements this disengagement plan,” he recalled, adding that the document gives all stakeholders the necessary visibility to prepare for next phases. “We can make the withdrawal of MONUSCO a success,” he said, pledging to stand shoulder to shoulder with the Democratic Republic of the Congo.
CAROLYN ABENA ANIMA OPPONG-NTIRI (Ghana), speaking also on behalf of Mozambique and Gabon, drew attention the launch of the electoral campaign on 19 November, in view of the general elections scheduled for 20 December 2023. With 44 million voters, she welcomed the Government’s commitment to organizing presidential and local elections in a particularly difficult security context and called on all political actors to engage constructively in strengthening national unity to prevent post-electoral tensions. She encouraged CENI to take confidence-building measures and maintain dialogue with all political actors so that the results of these elections are accepted by all. In this regard, the support provided by MONUSCO is highly appreciated.
At the regional level, she supported a political resolution of the security crisis affecting the east of the Democratic Republic of the Congo. To this end, it is urgent to implement the priority actions contained in the Nairobi and Luanda agreements, with a view to the cessation of hostilities, the immediate withdrawal of M23 from occupied areas, the repatriation of all foreign armed groups and foreigners and respect by local armed groups for the disarmament, demobilization, community recovery and stabilization programme. She also welcomed the commitment of the African Union to support the stabilization of the Democratic Republic of the Congo by ensuring the coordination of regional peace initiatives. Further, she voiced concern over the deterioration of the security situation in Ituri and Kivu provinces, due to the recurrence of attacks by armed groups. The Democratic Republic of the Congo and MONUSCO should continue promoting constructive dialogue to ensure a concerted, orderly and responsible withdrawal. With the highest number of internally displaced people in Africa, the humanitarian crisis in the country is reaching record levels in the absence of adequate funding for the Humanitarian Response Plan, she cautioned.
ROBERT A. WOOD (United States) said the Council will closely monitor MONUSCO’s disengagement, focusing on Government security forces’ provision of security and stability. He welcomed the flexibility built into the plan and said the drawdown should be transparently and thoroughly evaluated for any negative impacts on the civilian protection and the humanitarian situation. “Major gaps will be unacceptable and should prompt an immediate reassessment and a pause in subsequent phases.” He highlighted that the country faces a looming financial cliff when transitioning from assessed to voluntary contributions. He called on the international community “to mobilize additional resources now to bolster the work of UN agencies, funds and programmes in preparation for MONUSCO’s departure”. He added that the drawdown demands a new vision for security and non-security solutions to the crisis. Clarity on mandates and operational requirements is needed for the international community to provide support. He welcomed Rwanda and the Democratic Republic of the Congo’s commitment to de-escalation but said more must be done to reduce tensions. He called on Rwanda to end its support for M23 and withdraw from the Democratic Republic of the Congo’s territory. He urged all actors to recommit to the Nairobi and Luanda processes.
NORBERTO MORETTI (Brazil), voicing concern about the deteriorating security situation in eastern Democratic Republic of the Congo, called on all parties to the conflict and the neighbouring countries to re-engage in the political processes, notably the Luanda and Nairobi processes. All armed groups should lay down their arms and all external support to illegal armed groups should cease. Stressing that his country is appalled by the humanitarian impact of the conflict and by the surge in conflict-related sexual violence, he reiterated a call for unimpeded humanitarian access and the full protection of camps for internally displaced people. On the MONUSCO transition, he emphasized the need for a responsible transfer of tasks, with a focus on preventing potential risks that could lead to increased violence and human rights abuses against the population. The transition and withdrawal must be well coordinated with national and provincial authorities as well as neighbouring countries, he stressed.
DAI BING (China), noting that the general elections in the Democratic Republic of the Congo are just around the corner, said his country appreciates the tremendous efforts of the Government and CENI. As the security situation in the east of the country remains grave, he urged M23 and other armed groups to immediately cease hostilities and violence. “China supports regional organizations in carrying out peacekeeping operations and hopes that regional countries will strengthen coordination,” he said, welcoming the comprehensive disengagement plan for the Mission. “MONUSCO’s upcoming transition should feature a proper handover of tasks to the Democratic Republic of the Congo’s Government, which will be conducive to the maintenance of security and stability in the region,” he concluded, calling for guaranteeing the safety of UN peacekeepers.
IRIYA TAKAYUKI (Japan), noting the worsening security situation and the deterioration of human security in the eastern provinces of the Democratic Republic of the Congo, stressed that support of any kind to armed groups only exacerbates insecurity and regional tensions and must be stopped immediately. Turning to the planned exit strategy of MONUSCO, he said its gradual, responsible and sustainable withdrawal requires close and constructive cooperation among all stakeholders guided by strong ownership by the host country, as the protection of United Nations personnel, facilities, installations and equipment must be ensured throughout the withdrawal process. The forthcoming election must be an opportunity to win people’s confidence and build unity, he said, adding that strengthening social cohesion is fundamental for sustainable stability. “Reported election-related violence as well as a reduction of civic and political space are worrying signs and must be halted by all stakeholders,” he said.
DARREN CAMILLERI (Malta) expressed concern about the atrocities committed by armed groups, the increase in sexual and gender-based violence and the heightened tensions in the build-up towards the elections. Noting that the Council is negotiating the renewal of MONUSCO, he stressed the need to consider the Secretary-General’s assessment and the disengagement plan. His delegation will focus on the protection of children in armed conflict, he said, highlighting specific issues related to the potential impact of the Mission’s withdrawal on children. Shocking and grave violations of children’s rights have been reported, he said, adding that the numbers are an underestimation due to a lack of access to certain areas. Highlighting the need for allowing sufficient time for knowledge transfer, training and capacity-building, he said it is vital to preserve the gains achieved so far together through the work of the Congolese authorities, MONUSCO and the United Nations Children’s Fund (UNICEF).
JAMES KARIUKI (United Kingdom) commended the Government of the Democratic Republic of the Congo and MONUSCO for their work and collaboration on the force disengagement plan. “We welcome the Government’s commitment to a gradual, responsive, responsible and sustainable withdrawal process,” he said, urging the Government to assume its responsibilities to protect the civilian population and step up preparations in this regard. “We continue to urge restraint and dialogue from all parties, given the very real risk of miscalculation and the horrendous cost of further escalation,” he stressed, urging all parties to recommit to the Nairobi and Luanda processes, revitalize these political processes and ensure tangible action to address shared security challenges, improve humanitarian access and reduce violence. “We look forward to peaceful, credible and inclusive elections on 20 December, which will provide a chance to anchor democracy,” he concluded.
AMEIRAH OBAID MOHAMED OBAID ALHEFEITI (United Arab Emirates) said the protection of civilians should remain a top priority. She is worried by their exposure to attacks, especially in the North Kivu region, and highlighted the need for protections against sexual violence. She said it is very important that dialogues between the Government and regional actors are enabled to continue, especially with neighbouring countries. The security of the country depends upon the security of the whole region. It must be ensured that local, regional, and international partners continue efforts to prevent and de-escalate tensions whenever they arise, she added, which requires strengthening communication and coordination. As missions change, “it is important not to leave any vacuum that armed groups may exploit to undermine peace efforts”, she said, calling for enhanced coordination between the withdrawing and incoming forces. The Government and international community must collaborate to respond to the humanitarian situation, addressing immediate and long-term needs.
ANNA M. EVSTIGNEEVA (Russian Federation) expressed concern about the violation of the ceasefire regime, as the total number of those internally displaced has reached a record 7 million people. She noted that the UN Humanitarian Response Plan for 2023 remains chronically underfunded, with only 37.5 per cent of the necessary resources raised. She called on all illegal armed groups operating in the Democratic Republic of the Congo to abandon violent methods, lay down their arms and, without preconditions, participate in the disarmament, demobilization and reintegration programme. “We support the efforts of MONUSCO and its leadership,” she said, adding that the presence of a mission in a conflict zone is an important stabilizing factor and its withdrawal should be guided by rational considerations. “We call for a scrupulous investigation into serious breaches of discipline committed by peacekeepers,” she said, clarifying that this also applies to accusations of crimes of a sexual nature.
PASCALE CHRISTINE BAERISWYL (Switzerland), stressing that MONUSCO's disengagement must be responsible and carried out in stages, welcomed the collaboration between the Congolese authorities and MONUSCO in drawing up the disengagement plan. Also noting the withdrawal of the Mission from South Kivu in 2024, she encouraged the Democratic Republic of the Congo to strengthen the rule of law, the security sector and the implementation of the demobilization, disarmament and reintegration process for armed groups. Highlighting the need for a well-founded dialogue, particularly between the Democratic Republic of the Congo and Rwanda, she said the former must make every effort to guarantee civic space for its people, particularly in the context of the elections. All parties must respect international humanitarian law and human rights, she said, adding that the intensification of fighting in the east of the country since October is worrying.
ALBANA DAUTLLARI (Albania) said the human toll in the Democratic Republic of the Congo is unspeakable, with the activities of military groups leaving scars that will last for generations. “Peace is not an aspiration but a concrete urgent need,” she said, calling on all armed groups to disarm immediately. Expressing concern about the dangerous escalation of fighting among the armed groups with M23, she urged Rwanda and the Democratic Republic of the Congo to de-escalate and embark on a journey of cooperation, economic development and shared prosperity, adding: “The whole region of the Great Lakes will benefit from it.” The path of reconciliation is challenging but it starts with ending support for M23 by Rwanda and its withdrawal from the Democratic Republic of the Congo. Ahead of the elections, she highlighted the importance of maintaining an environment of transparency and trust. She also expressed support for an accelerated yet responsible withdrawal of MONUSCO.
ANDRÉS EFREN MONTALVO SOSA (Ecuador), Council President for December, speaking in his national capacity, called for women and young people to be involved in decisions at all levels regarding elections, and for the defence of freedom of expression, opinion and assembly, the protection of human rights defenders and journalists, and combating of hate speech and intolerance. Noting increasing violence and cases of human rights violations, especially against women and children, he said, “such acts must cease and there must be accountability”. The support of the international community is crucial regarding food insecurity and displacement. He urged the Congolese authorities to allow access and safety for humanitarian personnel. He said abiding by the decisions of the Luanda and Nairobi processes is essential to achieve regional peace. Regional, bilateral and international initiatives must work in coordination, giving continuity to the work MONUSCO has carried out. He repudiated acts of sexual exploitation and abuse committed by members of MONUSCO, which must be investigated and punished.
ZENON NGAY MUKONGO (Democratic Republic of the Congo), noting that negotiations on the withdrawal of MONUSCO are entering their final stage, said his country’s people have been enduring horrific war for over three decades. Recalling that M23 shot down a MONUSCO helicopter, killing eight peacekeepers, he paid tribute to the peacekeeping forces for their efforts and sacrifices. Turning to the Mission’s disengagement plan, he praised its contribution to the electoral processes and the strengthening of the national army and police but added that “the international community and MONUSCO continued to be unable to implement the mandate entrusted to it by the Security Council to support the Armed Forces of the Democratic Republic of the Congo (FARDC) or to provide for the protection of civilians before leaving them to their unfortunate fate.”
Recalling that the President of the Democratic Republic of the Congo had called for the gradual and accelerated withdrawal of MONUSCO, he welcomed the convergence of views between Kinshasa, the Secretary-General and the Security Council. “The war has not ended, nonetheless,” he stressed, calling on the Council to invest in full implementation of the Luanda and Nairobi peace processes. “The majority of our partners advocate dialogue with neighbouring Rwanda,” he noted, stressing that Kinshasa is ready to engage in such dialogue which is part of the Luanda road map. He also outlined his country’s priorities which include: the end of Rwandan aggression; the withdrawal of its troops; the eradication of armed and terrorist groups including M23; the return of displaced populations to their homes; the restoration of the authority of the State in territories occupied by M23; and the implementation of the disarmament, demobilization, community recovery and stabilization programmes. “My Government had demonstrated a flexible approach,” he said, spotlighting that the MONUSCO disengagement plan is not an end and urging to “act, act, act before it is too late.”
ERNEST RWAMUCYO (Rwanda) deplored the Government of the Democratic Republic of the Congo and its coalition of illegal armed militia groups, the Democratic Forces for the Liberation of Rwanda and foreign mercenaries for violating the ceasefire mandated by the regional peace process. Cautioning that the premature departure of the East Africa Regional Force undermines regional peace efforts, he urged Kinshasa to reaffirm its commitment to regional agreements, which represent the best chance for peace. The Secretary-General’s report on MONUSCO is silent on the human rights violations, including the murder of civilians and the State-enabled persecution of Tutsi communities, he said, urging the Security Council to hold the Government of the Democratic Republic of the Congo accountable for encouraging disinformation, hate speech and ethnic violence. Voicing alarm about the anti-Rwanda rhetoric from Congolese officials, including threats of invasion, mass murder and annexation by the country’s President, he urged Kinshasa to cease provocations. The security challenges should be solved via inclusive and constructive dialogue, regional cooperation and cessation of hostilities, he added.
Mr. MUKONGO (Democratic Republic of Congo), taking the floor a second time, addressed the representative of Rwanda, saying that if genocide could have a reference point in Africa it would not be in the Democratic Republic of Congo that it would be found.
https://press.un.org/en/2023/sc15521.doc.htm
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