Democratic Republic of the Congo
UN Mission in the Democratic Republic of the Congo (MONUC)

Congo's conflict has involved up to nine African nations and various rebel groups battling the government of President Laurent Kabila. After a peace accord was signed in Lusaka in July 1999, implementation of the UN peacekeeping plan languished when some of the 90 military liaison officers who were to oversee the cease-fire were hindered in deploying.

The US used its presidency of the Security Council in January to focus on a number of African issues, including the Congo. The culmination of this focus on Africa was the attendance of seven African heads of state at a summit on the Congo and a special session of the Security Council, chaired by Secretary Albright. The summit and follow-up meetings went well, and all leaders publicly recommitted themselves to the Lusaka Agreement. Democratic Republic of the Congo President Kabila and other signatories reaffirmed their commitment to the inter-Congolese National Dialogue and former President Masire of Botswana outlined his plans as the neutral facilitator of the process. The United States actively supported Zambian President Chiluba's sustained efforts to negotiate a cease-fire and a regional peace settlement in the Democratic Republic of the Congo.

After months of debating various peacekeeping proposals for the Congo, the UN has adopted a three-phase concept designed in part by US military planners. This approach ties UN deployments to concrete progress on the ground toward the Lusaka Agreement's political and military objectives. By the end of February 2000 the United Nations Security Council is expected to vote on sending a United Nations observer force to in Congo (a country as large as Western Europe or the United States east of the Mississippi River). The plan would not involve US peacekeeping troops. Though no American troops will be involved in the observer mission, the US financial contribution for it is expected to be about $40 million, one-quarter of the cost of the first six months of the mission.

There are three phases to implementation of the Lusaka Agreement.

Phase I focused on establishing liaison with the parties, their field commanders and the Joint Military Commission (JMC), and on planning for the deployment of subsequent peacekeeping operations. Phase I was launched August 6, 1999, when the Security Council authorized the UN Mission in the Democratic Republic of the Congo (MONUC), the UN liaison mission of up to 90 UN military liaison officers the Congo and to the capitals of other African countries, with an interest in the conflict. Implementation of the cease-fire during Phase I was imperfect. The cease-fire has been violated intermittently, with the heaviest fighting in the northwest and around the central town of Ikela.

Phase II involves deploying the 500 observers and 5,000 international troops. The Phase II operation would not serve as an interpositional force. Observers in Phase II of the plan would monitor the cease-fire and verify the redeployment of the parties' forces to defensive positions as agreed in the agreement. The Secretary-General's report of 14 January 2000 outlined the fundamental structure and mandate for Phase II of the operation in the DROC. It recommended an expansion of the current UN liaison mission of 90 military liaison officers to a 500-member observer mission with force protection and support, which brings the total up to 5,537 military personnel. the 5,000 troops would protect the 500 observers and other UN personnel, but the troops would not be expected to disarm combatants in Congo. Upon authorization by the Council, the Phase II deployment of the U.N. Observer Mission in the Congo (MONUC) would begin when key conditions are met, including security, access and cooperation with UN personnel.

Phase III involves deploying a 15,000-strong peacekeeping force. Transition to Phase III in the future - a peacekeeping mission - is not automatic and is dependent upon parties observing the conditions of the Lusaka Accords, disengagement of forces along confrontation lines, and other related factors. Upon the successful completion of Phase II, the UN may recommend a Phase III operation to build on the progress of the National Dialogue and-to support full and complete implementation of Lusaka. The precise mission, size and function of a possible Phase III UN peacekeeping force remain undefined, since the UN's role and responsibilities in the peace process would be developed through planning and negotiations during Phase II. The peacekeeping mission is not seen as an end in itself, but as a means to chart "a long-term, new internal political dispensation" in the DRC. African leaders hope that once peace is consolidated in the DRC and political stability prevails, the international community will provide direct investment, establish financial programs, and consider canceling the DRC's debt to allow the country to start its economic reconstruction on a fresh note.