AU BORDER PROGRAMME

From Border to Bridges




At a Glance

Content-Canvas-AU-PAPS-CMD-march2024

Agenda 2030

Goal 16: Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels


Agenda 2063

Aspiration 2: An integrated continent, politically united, based on the ideals of Pan-Africanism and the vision of Africa’s Renaissance

Aspires to have “world class integrative infrastructure that criss-crosses the continent” and “a continent of seamless borders, and management of cross-border resources through dialogue”.




Most African borders were drawn during colonial times. Upon decolonisation, most independent African states kept those borders to prevent new conflicts arising from a disputed border revision. However, these borders were often ill-defined - only a third of African borders are clearly delimited and demarcated - and unclear borders fuel conflict over natural resources, criminality, and terrorist movements, among others.

The African Union Border Programme (AUBP) was established in 2007 to address these problems and to assist African countries in delimitating (finding an agreement on the exact course of the border) and demarcating (making the borders visible on the field, for example, by installing border pillars) borders.

Under the motto “From Barriers to Bridges” , the AUBP strives, as underlined in the Niamey Convention of 2014 , to promote peace, security and stability through crossborder cooperation and capacity building. The African Union committed to a progressive border agenda as borders can become catalyst not only for peace, stability and resilience but also for socio-economic growth and regional integration in Africa.

PAPS Commissioner: Amb. Bankole Adeoye, Nigeria (elected in February 2021)
CMD - Director: Dr. Sarjoh Bah

@AUC_PAPS Hashtags: #AUBP #NIAMEYCONVENTION #AUPSC #COHA #AGA #APSA #silencingtheguns #NeTT4Peace

"I urge the RECs, Member States and all relevant stakeholders to redouble their commitment to effective border governance which will serve as a lever and driver for the rapid achievement of the AfCFTA objectives, contributing to the transformation of the Continent." Amb. Bankole

About

what we do


African Union sees borders as bridges for peace, prosperity and integration:
  • Borders are, in the spirit of AUBP, understood as instruments to promote peace, security, stability and as zones of facilitation of regional integration and sustainable development.
  • They are nodes which connect States’ public action in the security, economic, commercial, infrastructural, environmental, and social affairs sectors.
  • The Constitutive Act of the African Union and Agenda 2063 form the bedrock our commitment to the vision of a peaceful, integrated, prosperous Africa.


How we do


The AUBP builds promotes collaboration and cross-border cooperation to unite and prosper Africa's borders:
  • The African Union, Regional Economic Communities and AU Member States work in close collaboration and coordination to support the vision of a “united and integrated Africa with peaceful, open and prosperous borders”.
  • We survey border lines, and construct border pillars, sensitize border communities to ensure boundaries are visible and effectively managed.
  • We strengthen institutions and joint mechanisms so that they have the skills and competences to better define and govern their borders and to foster cross-border cooperation between AU Member States, regions, municipalities and local communities.
  • The AUBP is implemented on several levels: national, regional and continental. The responsibility of each of these levels is determined on the basis of the principles of subsidiarity and complementarity and the respect of the sovereignty of States.

why we do


AUBP strengthens conflict prevention, fosters integration and stability through cross-border cooperation:
  • The African Union Border Programme was established in 2007 as part of African Union’s efforts to strengthen the structural conflict prevention efforts of its Member States.
  • The AUBP promotes a new form of pragmatic border governance, aimed at fostering peace, security, and stability, but also to facilitate the integration process and sustainable development in Africa.
  • Consequently, the Programme supports African Union Members States with regards to the delimitation and demarcation of their inter-state borders, promotion of cross-border cooperation, and capacity building.
  • In addition, the AUBP offers a platform for the negotiated resolution of border disputes and the promotion of regional and continental integration through cross border cooperation.





The African Border Governance Strategy



In March 2021, the AUC launched a Continental Strategy for Better Integrated Border Governance . The strategy is intended to enhance peace and security initiatives, bilateral cooperation, as well as borderland development between and among neighbouring countries. It marks an important milestone in the implementation of the African Union Border Programme (AUBP).

The African Border Governance Strategy serves as a guiding framework for the coordination of border policies at the continental, regional and national levels to create greater coherence.

The Strategy provides guidelines for Member States to enable them to align their national border governance policies with the relevant provisions and recommendations of the AU on the matter.

The specificities of the Member States and the respect of their international obligations obviously preside and frame this alignment.

Adoption of the border strategy

The African Union Strategy for Better Integrated Border Governance has been developed in a participatory manner. At different stages of the development process, the AUC interacted with Member States, in particular national experts on border issues and African Ministers in Charge of Borders. RECs, RMs and different Departments of the AUC commented and revised the draft strategy document.

The Specialized Technical Committee on Defence, Safety and Security (STC DSS) adopted the consolidated version of the Strategy during its Ordinary Meeting held in Cairo (Egypt) on December 19, 2019.

In its 36th Ordinary Session held from February 06 to 07, 2020 in Addis Ababa (Ethiopia), the Executive Council (EC) took note of the Declaration adopted by the STCDSS on December 19, 2019 and recommended it to the Assembly of the AU for adoption (EX.CL/Dec.1074 (XXXVI)). The Declaration was adopted by the 33rd Ordinary Session of the Assembly of the Union , held in Addis Ababa, Ethiopia on 9-10 February 2020 (Assembly/AU/Decl.754 (XXXIII)). Principles relating to border governance

  • Principle of the respect of borders existing upon achievement of national independence.
    Source: Charter of the OAU, Resolution AHG/Res.16 (I), Art 4. Constitutive Act of the AU
  • Principle of negotiated settlement of border disputes.
    Source: CM/Res.1069 (XLIV)
  • Commitment to pursue border delimitation and demarcation.
    Sources: Memorandum of Understanding on Security, Stability, Development and Cooperation in Africa AHG/Dec. 175 (XXXVIII)
  • Commitment to pursue structural prevention of conflicts and establishment of the African Union Border Programme.
    Source: Assembly/AU/ Dec.145 (VIII)
  • Need to put in place a new form of pragmatic border management.
    Source: Declarations of the African Union Border Programme and its Implementation Modalities (2007, 2010, 2014, 2016)



The Strategy is based on the following five pillars that serve as anchors to its vision and mission:



  • Pillar 1
    Development of Capabilities for Border Governance
  • Pillar 2:
    Conflict Prevention and Resolution, Border Security & Transnational Threats
  • Pillar 3:
    Mobility, Migration &Trade facilitation
  • Pillar 4:
    Cooperative Border Management
  • Pillar 5:
    Borderland Development and Community Engagement
  • Area of focus

    Continental policies

    African Unions Border Agenda Sees Borders as Assets for Cooperation and Integration

    The OAU, later the AU, adopted, early on, a progressive border agenda that recognized the potential of borders – the potential to contribute to peace, security, integration, and sustainable development across the continent. The OAU/AU adopted a number of legal instruments and frameworks to reverse the mindset which considers borders as instigators of conflict rather than as opportunities for cooperation and integration. In 2007, the positive perception of borders was crystalized with the adoption of the African Union Border Programme (AUBP). The Programme’s establishment signalled a paradigm shift towards an understanding of Africa’s inter-state borders as assets for anchoring public policies at continental, regional and national levels.
    Following the vision of an integrated Africa with the aim of having borders which serve as bridges rather than barriers, cross border cooperation has become a fundamental area of interest for the African Union.

    Capacity Building Strategy to enhance border governance in Africa

    The African Union Border Programme aims at enhancing the skills and competences of AU Member States in various border governance areas. Its mission is to enable the African Union Commission (AUC), Regional Economic Communities (RECs), and Member States (MSs) to access necessary information, knowledge, skills, and competences for effective implementation of the AU Border Programme and Border Governance Strategies at different levels (continental, regional, national, local). This entails envisioning a continent with well-informed border management decision makers, technicians, and practitioners possessing theoretical and practical knowledge, as well as organizational and operational skills in different domains of border governance. The objective of capacity building by the AU Border Programme is:
    • to promote and develop research and dissemination of knowledge on border related issues to decision makers and border professionals; • to set up adaptable training and research curricula on border issues for decision makers and border professionals; • to provide decision makers and border professionals with online access to legal/ technical documents on boundaries and relevant information on African interstate borders.
    Capacity building is needs strong collaboration with stakeholders active in border governance. The AU Border Program actively seeks partnership within departments of AUC, RECs, national and private universities, research and training institutes and centres, think tanks, networks of experts, research associations, research and documentation structures, etc. Through this collaboration, the academic community will have a strong and consistent involvement in achieving the objectives of the AUBP. It is through research and training that border governance can become sustainable by adapting to evolving environments. Human resources required for border governance will be regularly trained.
    Capacity building areas include delimitation, demarcation, institutional organization, treaty convention drafting, cross border cooperation, prevention, management and settlement of border disputes, border control and security and other issues such as migration, transhumance, and transboundary natural resources management, etc. The AU border programme publishes, and updates guidebooks that are relevant for technocrats and practitioners alike.
    The program also organizes continental, regional, and national conferences and trainings on border governance to promote the capacities of member states of the African Union. Many of the resources can be found below.

    African Union Adopts Niamey Convention, a Milestone in Cross-Border Cooperation

    Following the vision of an integrated Africa with the aim of having borders which serve as bridges rather than barriers, cross border cooperation has become a fundamental area of interest for the African Union. The 23rd ordinary Session of the Assembly of the African Union, held in Malabo, Equatorial Guinea, from 26th to 27th June 2014, adopted the African Union Convention on Cross- Border Cooperation, known as the Niamey Convention.
    The convention constitutes the first continental legal framework for cross-border cooperation and aims for: • Promotion of cross-border cooperation at local, sub regional and regional levels • Facilitation of delimitation, demarcation and reaffirmation of interstate boundaries, in conformity with mechanisms agreed upon by the parties concerned • Facilitation of the peaceful resolution of border disputes, • Ensuring efficient and effective integrated border management, • Transformation of border areas into catalysts for growth, socio-economic and political integration of the continent; and • Promotion of peace and stability through conflict prevention and continental integration for strengthened unity
    The legal framework put in place by the Niamey convention serves as a tool for formalizing cooperation between countries, making it possible to accelerate the process of regional and continental integration and to resolve border disputes peacefully.

    Good Case Practices on CBC

    A good practice is a successful and replicable process or methodology that has achieved its objectives and can be recommended as a model. To determine whether a practice is a good practice, it should be effective, technically feasible, inherently participatory, and replicable and adaptable. The AUBP collects good practices on cross-border cooperation (CBC), which aims to promote and strengthen good-neighborly relations between border populations, territorial communities, and administrations. Another criterion for a good practice on CBC is that it reduces the barriers to cross-border cooperation by encouraging good neighborliness and strengthening border governance.

    Advancing Border Governance: AU and RECs Lead the Way with Diverse Strategies and Collaborative Initiatives

    Through diverse and complementary interventions, border governance has become increasingly central thanks to the policies, strategies and initiatives adopted by the AU and the RECs and their implementation by Member States and non-state actors. This section provides highlights what is going on the ground within the framework of the AUBP. It shows and inform on various topics such as border policies, development and signing of boundary related Treaties and border agreements, Creation and functioning of Border Commissions, delimitation and demarcation, Awareness rising and sensitization activities, coordination, and complementarity Measures between the different levels of Intervention (continental, Regional and National).

    Major Milestones

    Footprint of Success

    NORMATIVE FRAMEWORK & MILESTONES
    The OAU and AU have adopted several conventions, resolutions and decisions, which either directly relate to the governance of borders on the continent or determine the norms and principles of the conduct of policy in Africa.

    1964
    • Cairo Resolution on Border Disputes between African States (Resolution AHG/Res (16)1)
    1981
    • African Charter on Human and Peoples’ Rights
    1986
    • Resolution CM/Res.1069 (XLIV) on Principle of Negotiated Settlement of Border Disputes
    1991
    • Abuja Treaty
    2002
    • Constitutive Act of the African Union
    2003
    • Protocol on the Rights of Women in Africa
    2007
    • Declaration on the decision of the 8th Ordi- nary Session encouraging the Commission to pursue efforts towards structural prevention of conflicts, through implementation of AUBP
    2009
    • Solemn Declaration on Gender Equality in Africa and the AU Gender Policy
    2010
    • Adoption of the Declaration on the AUBP
    • 2nd Declaration on the African Union Border Programme and its Implementation Modalities
    2011
    • The Policy Framework for Pastoralism in Africa
    2012
    • The 3rd Ministerial Conference, in May 2012, culminated in the African Union Convention on Cross-Border Cooperation (EX.CL/726(XXI)), which serves as a guideline for the cooperation and integration at local, sub-regional and regional levels.
    2014
    • In June 2014, the 23rd Ordinary Session of the Assembly of the African Union, in Malabo, adopted the African Union Convention on Cross Border Cooperation. The Convention is now open for signature and ratification by the Member States and endorsement by the RECs.
    2020
    • Strategy for a Better Integrated Border Governance
    AUBP on the Ground
    2011
    • AUBP facilitated the signature of maritime delimitation agreements between the Union of the Comoros, the Republic of Mozambique, and United Republic of Tanzania.
    2012
    • Following the demarcation of the com- mon boundary between the Republic of Burkina Faso and the Republic of Mali, the Programme supported the installation of a cross border health center shared between the villages of Ouarokoy (Burkina Faso) and Wanian (Mali)
    2015
    • AUBP has accompanied the Republic of Botswana and the Republic of Namibia in the delimitation of their common boundary, which culminated in the signature of a boundary treaty in 2018.
    2016-2017
    • AUBP supported the Republic of Malawi and the Republic of Mozambique in the delimitation of Lake Malawi/Lake Nyassa.
    2021
    • In March 2021, the AUC launched a Continental Strategy for Better Integrated Border Governance.
    • In furtherance of its mandate in the areas of delimitation and demarcation , the AUBP facilitated series of meetings between relevant Member States.
      • Two meetings of the Joint Border Commission (JBC) of South Sudan and Sudan, including, a meeting between JBC and the Joint Political Security Mechanism (JPSM) to implement the next phase of the Boundary Issues Agreement.
      • AUBP also facilitated a Joint Technical Committee (JTC) meeting between Burundi, DRC, Tanzania, and Zambia in October 2021 to develop a report detailing the status of the reaffirmation exercise, including the budget, the MoU, and work plan.
      • A JTC meeting between Zimbabwe and Zambia was also held in December to support the preparation of a sensitization strategy for the upcoming reaffirmation exercises.
      • A JTC meeting between Uganda and South Sudan, and a Tripartite Technical Boundary Committee meeting between Kenya, South Sudan, and Uganda took place from 13 to 17 December 2021.
    • The Programme undertook a needs assessment and capacity building mission to identify the capacity gaps to facilitate effective support to Sierra Leone in the delimitation, demarcation, and maintenance of its international boundaries.
    • Other knowledge products and guidelines produced by the programme include:
      • The seventh (7th) technical guidebook on river boundaries to assist practitioners in the delimitation of river boundaries and management of Transboundary Rivers;
      • Strategy to Engage Borderlands CSOs in Africa with the support and collaboration of Life & Peace Institute.
    • On the AU Border Governance Strategy (AUBGS), two joint sensitization workshops between AUBP and ECOWAS (9-10 November 2021) and AUBP-EAC (15-16 November 2021) held to sensitize the relevant RECs and Member States on the AU Strategy for Better Integrated Border Governance and define a basis for coordinating the implementation of the AUBGS and existing regional border related strategies.
    • In celebration of Africa Border Day on 7 June , a virtual campaign held throughout the month of June. Three short, animated videos on the theme "Arts, Culture and Heritage: Levers for Building the Africa We Want" from the different regions across the continent were developed and disseminated. Each video illustrated a cultural practice, heritage, or art shared across the boundaries of two or more Member States or a cultural cross border cooperation initiative. On its part, the PSC at its 1024th meeting held at ministerial level on 19 August 2021, considered the Implementation of Aspects of Peace and Security related to Border Governance in Africa. Council encouraged Member States to adopt and implement cross-border cooperation programs, including joint management of transboundary resources, One-Stop Border Posts (OSBPs), towards developing their borderlands as well as facilitating the free movement of persons, goods and services.
    2022
    • Through the AU Border Programme, the Commission, continued its support to Member States in the areas of delimitation/demarcation/reaffirmation of inter-state boundaries , the promotion of cross-border cooperation, and the strengthening of capacities of border stakeholders. In this regard, the AUBP facilitated the convening of the Joint Technical Committee (JTC) of the Riparian States of Lake Tanganyika (Burundi, DRC, Tanzania, and Zambia) in September 2022. The JTC sought to jointly digitalize Lake Tanganyika shoreline for the eventual determination of a median line.
    • On the AU Border Governance Strategy (AUBGS) , the AUC held its 3rd regional sensitization on the AU Border Governance Strategy, in April 2022, in Kinshasa (DRC). This allowed the Commission and ECCAS to sensitize Member States on AUBGS, facilitate the exchange of information, share best practices, and adopt recommendations that will enable the effective and coordinated implementation of AUBGS. Each of the sensitization processes enabled the Programme to develop, with the RECs concerned, action plans to support the implementation of AUBGS.
    • In celebration of African Border Day (ABD) on 7 June , the AUBP and ECCAS celebrated the 12th Day in the border areas of Cameroon- Gabon - Equatorial Guinea (MEYO KYE/ KEYO OSSI), from 23 - 24 June 2022, under the theme "Economic and Social Development of Borderlands through the Ratification and Implementation of the AU Convention on Cross Border Cooperation". The 12th ABD celebration enhanced the visibility of the AU Border Programme within the region. It also emphasised the role of borders and border areas in promoting peace, security, and development.
    • In addition, the National Border Commission of Cote d'Ivoire (CNFCI) organized an international forum on borders, the Abidjan Border Forum , in October 2022, under the theme "Borders and collective Security: for the sustainable development of border areas". Participants unanimously decided to hold the Forum every two years in Abidjan.
    • On its part, the 14th Ordinary Meeting of the Specialized Technical Committee on Defense, Safety and Security (STCDSS) , was held from 09 to 10 May 2022 in Addis Ababa (Ethiopia). It reiterated the call for Member States to extend the deadline for the demarcation of inter-state African boundaries to 2027 and endorsed the need for a dedicated capacity and required resources for the AU Border Programme within the DPAPS.
    2023
    • Through the AU Border Programme (AUBP), the Commission continued its support to Member States in the areas of delimitation/demarcation/reaffirmation of inter-state boundaries , the promotion of cross-border cooperation, and strengthening the capacities of border stakeholders.
      • In this regard, the AUBP, in collaboration with the EAC, facilitated the organization of a confidence-building peace caravan from 28 June to 07 July 2023 . The Caravan sought to foster peaceful coexistence, strengthen neighbourly relations, and promote the amicable resolution of disputes among communities in Kenya, South Sudan, and Uganda.
      • In addition, the Programme completed its second and third regional studies- Inter-state Boundary and Territorial Disputes in Southern Africa and Border and Territorial Disputes in the ECCAS Region. Each study sought to understand the status of border and territorial disputes underway in the regions and to shed light on actions for preventing, managing, and resolving disputes by the Commission and the relevant AU organs.
    • In commemorating African Border Day (ABD) on 7 June , the AUBP, in collaboration with Malawi and Zambia, marked the 13th African Border Day in Chipata, Zambia, from 19 to 20 July 2023. The day was celebrated under the AU theme of the year, "Acceleration of the African Continental Free Trade Area (AfCFTA)", and attended by representatives from the African Union, Zambia, Malawi, and other affiliated organizations.
    • The 13th celebration illustrated the crucial role of cross-border cooperation in successfully implementing the AfCFTA. A notable highlight of the celebration was the visit to the Mwami One Stop Border Post (OSBP), where participants could explore the challenges and benefits of such a facility. The need to adopt inclusive strategies to heighten public awareness on the benefits of cross border cooperation, workshops, media campaigns, and educational programs was emphasized. These insights serve as a blueprint for bolstering the impact of the AUBP's African subsequent endeavors.
    • The Commission organized a Strategic Review Workshop on the AUBP from 25 to 27 October 2023 in Addis Ababa, Ethiopia . The workshop served as a platform through which experts assessed the impact of the Programme and re-conceptualized the Programme in terms of structure, strategic orientations, practices, and representation. The workshop defined the strategic orientation for the AUBP as a tool for conflict management, regional cooperation, and integration to strengthen border governance.
    2024
    • 413. The Commission, through the AU Border Programme (AUBP), continued its support to Member States in the areas of delimitation/demarcation/reaffirmation of inter-state boundaries, the promotion of cross-border cooperation, and strengthening the capacities of border stakeholders.
    • 414. In this regard, the Programme facilitated a confidence-building exercise between Ethiopia and South Sudan, from 3 - 5 September 2024, to foster trust between the two parties, share best practices, and agree on the next steps for the establishment of a joint technical committee (JTC) for the reaffirmation of their common border. In November 2024, the AUBP, in collaboration with the EAC, facilitated the sensitization of border communities in Kenya, South Sudan, and Uganda. A follow-up to the Peace Caravan held in 2023, the sensitization raised awareness for community leaders on the resolutions adopted in 2023 and sustainable peace initiatives in the border areas.
    • 415. In line with the AUBP Action Plans for Border Governance with the EAC, ECCAS, and ECOWAS, the AU Commission in partnership with the Kenya International Boundaries Office (KIBO), the National Border Commission of the Republic of Congo and the Inauguration of the Heads of National Border Commissions in West Africa, respectively, conducted regional consultations with relevant stakeholders.
    • 416. The regional exercises focused on the establishment and operationalization of national structures responsible for borders; field visit to the Namanga One-Stop- Border-Post, enabling knowledge exchange of experiences with fully operational regional border structures; enhancing the capacities of border stakeholders; creation of a coordination platform between national border structures, regional and continental border actors.
    • 417. In commemorating the African Border Day (ABD) on 7 June 2024, the AUBP, in collaboration with Benin, marked the 14th African Border Day from 12-13 June 2024. Held in line with the AU theme of the year, the ABD showcased Benin’s commitment to investing in education, infrastructure, and livelihoods to foster and promote prosperity and resilience among its border communities. The development of borderlands presents an opportunity for cross-border cooperation and local community engagement – stakeholders who are pivotal to the success or failure of security and development in border areas.
    • 418. In promoting the implementation of the AU Strategy for Better Integrated Border Governance (AUBGS), regional forums were held in collaboration with IGAD, in May and SADC in July/August 2024. These contributed to sensitizing the IGAD and SADC Secretariats and their Member States on AUBGS, alongside existing border-related strategies; as well as facilitation of the exchange of information, and best practices. The AUBP has now completed the sensitization process on the AU Border Governance Strategy.
    • 419. Importantly, the AU Commission, in collaboration with the Government of the Republic of Cote d’Ivoire, through its National Border Commission (CNFCI) organized the 2nd edition of the Abidjan Border Forum (ABF) from 23 to 25 October 2024. The Forum served as a continental platform for Member States, RECs/RMs, development partners, the private sector, and border communities to prompt synergies for collective action in the prevention and management of disputes and the sustainable development of cross-border spaces.
    • 420. The theme of the 2nd edition “Green Borders: bridging the gap between shared natural resources and Security across borders”, afforded debate on the environment and climate and their implications on border governance. Given that border areas have increasingly suffered from the effects of climate change and the mismanagement of transboundary resources, the ABF called for urgent action to address the imbalance in the utilization of the territorial security of states and human security.
    • 421. In November 2024, a joint retreat took place between the AU Panel of the Wise and the Bureau of the ECCAS Committee of Elders to consider the findings of the Study on Border and Territorial Disputes in the Central Africa Region. The retreat agreed to establish a coherent framework to coordinate interventions and share experiences aimed at the resolution of border and territorial disputes in the region.
    2025

    e) AU Border Programme (2025)


    • 310. Through the AUBP, the Commission continued to advance its support to Member States in delimiting, demarcating, and reaffirming inter-state boundaries, strengthening cross-border cooperation, and enhancing the capacities of border governance institutions. In this regard, on 30 July 2025, the Programme, in collaboration with the Republic of Ghana and the Republic of Côte d’Ivoire, facilitated a ceremony in Newtown, Republic of Ghana, marking the launch of the reaffirmation of their shared land boundary through the placement of a boundary marker. On 2 October 2025, the AUBP, jointly with the Republic of Mali and the Republic of Senegal, oversaw the formal deposit of their demarcated boundary maps and treaties at the African Union Commission in Addis Ababa. Both activities engaged local communities to foster peaceful coexistence and strengthen institutional approaches to dispute resolution, thereby reducing the risk of territorial tensions and reinforcing regional stability. These initiatives aligned with Agenda 2063 and the African Continental Free Trade Area (AfCFTA), demonstrating how borders can be transformed into avenues for cooperation, trade, and integration.
    • 311. Following the decision of the 38th Ordinary Session of the Union to institutionalize the co-organization of the Abidjan Border Forum (ABF) as the bi-annual continental platform on border governance, the Commission and the Republic of Côte d’Ivoire, through its National Border Commission (CNF-CI), convened an assessment and preparatory workshop for the 3rd edition of the Forum from 30 July to 01 August 2025.

    e) AU Border Programme continued


    • 312. In furthering the African Union Strategy on Better Integrated Border Governance, the AUBP developed regional action plans with the Regional Economic Communities, IGAD, EAC, ECCAS, and ECOWAS, upholding the principles of subsidiarity and complementarity. In line with these plans, the Programme supported the establishment of regional coordination mechanisms, including: The Technical Experts Workshop for the EAC Regional Working Group on Border Governance in June 2025 in Dar es Salaam; the 2nd Meeting of Heads of Border Commissions of ECOWAS in August 2025 in Cotonou; and the Technical Meeting to establish a Technical Committee on Border Governance for IGAD in September 2025 in Mombasa.
    • 313. The Commission deepened continental and regional frameworks for coherent border governance. The AUBP and IGAD convened Member State experts to lay the groundwork for a regional coordination mechanism in the IGAD region, emphasizing harmonized approaches to boundary management and the acceleration of the Niamey Convention’s ratification and domestication.
    • 314. In promoting free movement and cross-border cooperation, the AUBP, working with the EAC, IGAD, and the Governments of Kenya, Ethiopia, Uganda, and South Sudan, facilitated the inaugural meeting of the Ateker Leaders Council in December 2025 in Lodwar, Republic of Kenya. Guided by the Niamey Convention, the Council was established as a platform to advance free movement, cross-border trade, and community-cantered development across the Ateker borderlands.

    CMD Data Story

    Deliver as One.

    Conflict Situations

    Conflicts Per Region

    Conflict East

    Conflict West

    Conflict Central

    Conflict North and South

    Terrorism

    IDPs


    Refugees

    Conflict Prevention

    Niamey Convention Status

    AUBP (Source: GIZ Report)


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    PARTNERSHIP FOOTPRINT OF SUCCESS

    No one institution is capable of meeting all the continent's governance, peace and security needs. The progress made so far has been possible through joint efforts between the Commission, the RECs and RMs, Member States, multilateral and bilateral Partners and international, continental and national civil society organisations. Our ability to effectively and efficiently deliver on our mandate is dependent on deepening our strategic partnerships, understanding the strengths and limitations of each Partner and maximising the opportunities each presents.
    Smart partnership and cooperation to enhance global governance, peace and security organisations
    In our new business model, co-creation is the hallmark of our partnerships. At the multilateral level, technocrats in the Department are working with their counterparts in other organisations, particularly the UN, in setting up joint task teams on critical elements in governance, peace and security. These joint task teams allow for collaborative analysis, horizon scanning and scenario development to guide decision makers in their organisations.

    To harness the opportunities provided by the continental free trade regime to promote peace, security and stability, we collaborated with the Department of Economic Development, Tourism, Trade, Industry and Mining, and other multilateral organisations, to organise a continental policy conference on Promoting the Peace, Security, and Development Nexus: The Promise of Regional Integration. The outcome of the policy conference offers concrete recommendations for promoting inclusive growth and development to minimise inequalities that could be mobilised to foment insecurity and proactively use the opportunities of Africa's free trade regime to promote peace and security.

    "In our new business model, co-creation is the hallmark of our partnerships"

    As part of our determination to use evidence­ based knowledge for policy development and implementation, we have instituted formal structures of engagement with African civil society organisations. The idea is to provide a platform to strategically interact and use civil society expertise to generate evidence­ based policy-oriented research to guide the Department's work, thereby ensuring use of the various studies being conducted.


    2021

    2021

    United Nations


    • Significant progress has been recorded in the implementation of the Joint UN-AU Framework for Enhanced Partnership in Peace and Security of April 2017 despite increasing threats to peace, security and good governance on the Continent amid the COVID-19 pandemic. This includes sustained policy dialogue, horizon scanning and clustered meeting, joint high-level missions, coordinated messaging including during electoral processes, and country-level coordinated action.
    • The 18th Joint Task Force in peace and security was held on 5 November 2021. The PAPS Commissioner and the UN Under Secretary Generals for the Departments of Political and Peacebuilding Affairs; Peace Operations as well as Operational Supports respectively (DPPA, DPO and DOS) discussed peace and security challenges on the Continent. Joint technical-level conflict prevention cluster meetings also held virtually with increased frequency in 2021 on country-specific situations, including in Cameroon, the Central African Republic, Chad, Comoros, Sudan, Mozambique, eSwatini as well as on elections.
    • The Commissioner for PAPS and the UN USG-DPO undertook a joint mission to CAR in June 2021 , in collaboration with ECCAS and the EU. The AU and UN have also worked closely with regional organizations such as IGAD in Ethiopia, Sudan, South Sudan and Somalia. They also worked with ECOWAS for unified messaging on the situations in Mali and Guinea and are closely engaging in the Libya peace process. The Commission and the OSE-WPS collaborated with the UN to organize the annual Africa Women's Leadership Network (AWLN) Third Women Leaders Forum.
    • Through the joint project between AUC and UNDP on enhancing AU's capacities on Conflict Prevention , several programmes were implemented in line with the Project Initiation Plan (PIP). This include the CSVRA/CSVMS processes in the Republic of Cote d'Ivoire, Zambia and Ghana, with ongoing efforts to ensure sustained support for the implementation of the mitigation strategies as well as operationalization of peace architectures in Member States; capacities of CSOs in Eastern and Southern African regions were also enhanced on early warning; as well as the conduct of a training of trainers course by the Youth4Peace programme on "Art, Culture and Heritage" for peace, leveraging the AU theme of the year 2021.
    • The Commission also collaborated with the UN to develop its strategic documents such as policy guidelines, monitoring and reporting and accountability mechanisms for the Maputo Five-Year Work plan to operationalize the ASF. In collaboration with the RECs/RMs, as well as the African Peacekeeping Training Centres of Excellence (TCEs), the AU and UN enhance capacities of RECs' planning and management of peace operations as well as supported the operationalisation of the Continental Logistics Concept and Continental Movements Control Centre.
    • Collaboration between both institutions also facilitated the development of the training curriculum on gender mainstreaming for PSOs, the revision and harmonisation of the gender training package for AU PSOs; and the production of "She Stands for Peace" Podcast series on different thematic issues of the WPS agenda. In addition, the two organisations have worked together in the implementation of the Gender, WPS agenda, implementation of the AU Compliance Framework on the Conduct and Discipline and Sexual Exploitation and Abuse; and the finalization of the AU Board of Inquiry policy for AMISOM.
    • Furthermore, the AUC Department of PAPS and the UN developed the AU Safety and Security Policy and Standing Operating Procedures (SOPs) for AUC staff and installations in the field missions, as well as the AU policy on the management of recovered weapons in PSOs. Under the DOS Knowledge Experience Exchange Program (KEEP), the AU has been allocated licenses to access the Supply Chain schoolhouse, training facilities and opportunities. Medical support to AMISOM troops, including personal protective equipment and COVID-19 vaccines were enhanced.

    2021

    The European Union


    • The strategic partnership between the AU and EU continued to bolster and benefited from the guidance of the 2018 MoU on Peace, Security and Governance. Within the implementation of this MoU, key notable achievements were recorded. The political dialogue between the two institutions increased in frequency, scope and depth. In 2021, the Ministerial Meeting in Kigali among other things reaffirmed the need to reinforce the cooperation and work towards the effective delivery of the MoU. Furthermore, the Commissioner for PAPS engaged with EU counterparts on the strategic priorities to strengthen key partnership issues in the peace and security arena especially continuous EU support to AMISOM especially in the post-2021 period.
    • Despite the decade of flourishing engagement between the EU and the AU, concerns have been raised about the dissolution of the African Peace Facility (APF) and the creation of the European Peace Facility (EPF). The global nature of the EPF funding mechanism implies enhanced competition for resources which could potentially diminish support to the AU. Furthermore, the political role of the AU in disbursing funds from the APF to the RECs/RMs and Member States has been removed in the EPF structure; thereby allowing the EU to fund African Member States and RECs/RMs directly without consulting the AU.
    • These concerns were raised in Kigali and during the Commissioner's engagement with EU counterparts. The AU continues to call on the EU to reconsider the political nature of the EPF disbursement and to uphold the principle of responsive partnership. Looking ahead, the AU-EU Summit on 18 to 19 February 2022 is an opportunity to re-engage on these issues while strengthening the partnership.
    2022

    2022

    Partnerships for Peace


    • Several activities were implemented to strengthen the AU's partnership with multilateral regional and subregional organisation on peace and security. Through sustained policy dialogue, joint high-level missions, coordinated messaging and country-level coordinated actions, for instance, significant progress was recorded in the implementation of the Joint UN-AU Framework for Enhanced Partnership in Peace and Security. Further, in the context of AU-UN Partnership, there were regular engagements between the President of the UNSC and the Chair of the AUPSC between the AUPSC and UNSC on region-specific, as well as thematic issues.
    • Recognizing the challenge that political instability poses to sustainable development, the AU Commission was supported and joined by the UN and partners in organizing a Reflection Forum on Unconstitutional Changes of Government in Africa, in March 2022 in Accra, Ghana. The outcome of the Forum fed into the Malabo Declaration on Terrorism, and Unconstitutional Changes of Government adopted by the 16th Extraordinary Session of the AU Assembly held on 28 May 2022, in Malabo, Equatorial Guinea as well as the adoption of the Accra Declaration on Unconstitutional Changes of Government in Africa.

    2022

    Partnership for Peace


    • In partnership with the UNDP, the PAPS department established the African Facility to Support Inclusive Transitions (AFSIT) during the year under review. AFSIT will support countries going through complex political transitions to peacefully navigate their pathway back to more stable democratic development, with a specific focus on ensuring the inclusion of women, young people and other marginalized groups. AUC and UNDP worked to operationalize the AFSIT and, guided by the Accra Declaration and various PSC directives, articulate the specific scope, structure, programmatic interventions, and criteria for supporting transitions.
    • The AUC-PAPS and ETIM, in partnership with UNDP, UNECA, African Development Bank and Afrexim Bank, the convened the inaugural AUC Policy Conference on Promoting the Peace, Security and Development Nexus in Africa, from 25 to 27 October 2022 in Tangier, Kingdom of Morocco. The Policy Conference allowed the AUC and its partners to reflect on measures and strategies to promote development, regional integration, and peace and security. The Conference adopted the Tangier Declaration. The joint organization of the Policy Conference demonstrated strong partnership between the AUC and development partners.
    2023

    2023

    Strengthening Partnerships for African Peace and Security


    • Milestones
      • The PSC and the European Union Political and Security Committee (EUPSC) held their 6th Informal Joint Seminar and the 14th Annual Joint Consultative Meeting (AJCM) and the from 2-3 May 2023, respectively, in Brussels, Belgium, to exchange views on their joint efforts to address the threats to peace and security in Africa. The Informal Joint Seminar discussed peace support operations in Africa and the global consequences of geopolitical development, while the Consultative meeting discussed the situations in the Horn of Africa, The Sahel and Lake Chad Basin and the Great Lakes Region. However, the PSC with the EUPSC did not reach commonly agreed conclusions for the second time.
      • Article 17 of the PSC Protocol provides for the PSC to cooperate and work closely with the United Nations Security Council (UNSC) and other relevant international organizations on the issues of governance, peace and security in Africa. In this context, the PSC and the UN Security Council convened their 8th Informal Joint Seminar and 17th Annual Joint Consultative Meeting (AJCM) on 5 and 6 October 2023 in Addis Ababa, Ethiopia, and adopted a Joint Communique. The Informal Joint Seminar discussed, among others, the issue of financing AU Peace Support Operations and the Consultative Meeting discussed the situations in Sudan, the Sahel region, the eastern Democratic Republic of the Congo, and Somalia, as well as the African Union Transition Mission in Somalia (ATMIS). While underscoring the primary responsibility of the UN Security Council for the maintenance of international peace and security, the two Councils reaffirmed their unwavering commitment to working together to address the challenges in these theatres in a coordinated manner.
      • Underscoring the importance of post-conflict and reconstruction activities in Member States emerging from conflict, the PSC convened a consultative meeting with the UN Peacebuilding Commission (UN-PBC) on 13 November 2023 in Addis Ababa, Ethiopia. The session focused on enhancing collaboration between the two bodies and coordinating peacebuilding efforts on the continent.

    2023 (continued)

    • In December 2023, the PSC and the three elected African Members of the UNSC (A3) participated at the Tenth High-Level Seminar on Peace and Security in Africa: Assisting Incoming African Members of the United Nations Security Council (A3) in Preparing to Address Peace and Security Issues on the Continent, in Oran, Algeria, pursuant to communiqué [PSC/AHG/COMM/1.(CCCXCVII)], adopted by the PSC at its 397th meeting held at the level of Heads of State and Government on 23 September 2013. Key outcomes centred on enhancing PSC-A3 cooperation in advancing and promoting Africa's agenda and interests in the UNSC agenda.
    • The PSC and A3 commemorated its 10th Anniversary and considered the Manual on Modalities for Enhancing Coordination between the Peace and Security Council of the African Union and the African Members of the United Nations Security Council.
    • The Manual aims at providing guidance on how the PSC and A3 can promote and defend common African positions within the UNSC in accordance with the UN Charter, AU legal instruments and relevant decisions of the AU Policy Organs. The Conclusions of the 10th High Level Seminar on Peace and Security in Africa, the Oran Process, have been adopted by the PSC at its 1193rd meeting of 22 January 2024, and attached herewith as Annex III.
    2024
    Partnerships for Peace, Security and Governance
    429. Inclusive, smart, and mutually beneficial partnerships continue to be the topmost priority for the PAPS Department. To this end, the Department pursues enhanced interconnectivity with all stakeholders and partners toward promoting good governance, peace, and security. Furthermore, the department seeks to continue to engage think tanks, do-tanks, the academia, and CSOs within and outside the continent, towards rethinking and proposing the pragmatic role of women and youth in peace and security as well as on other thematic areas, to make peace happen.
    United Nations
    • 430. Significant progress has been recorded in the implementation of the Joint UN- AU Framework for Enhanced Partnership in Peace and Security of April 2017 despite increasing threats to peace, security, and good governance on the continent. AU Commissioner for Political Affairs, Peace and Security and DPAPS senior staff held a strategic dialogue with UNOAU on 20 February 2024 which reflected on the experiences of the AU-UN partnership in peace and security in 2023 and the priorities for 2024.
    • 431. The 23rd Joint Task Force of USGs and CPAPS consulted at the UN Headquarters on 16 April 2024, comprising the AU Commissioner for Political Affairs, Peace and Security and the UN Under Secretaries General for Political & Peace Building Affairs; Peace Operations and the Special Representative of the Secretary- General to the African Union; along with the Assistant Secretaries-General (Africa) and Operational Support.
    • 432. The consultative platform examined the peace and security developments in the CAR, DRC, Ethiopia, Libya, Mozambique, Somalia, Sudan, and South Sudan, as well as West Africa and the Sahel region. It also considered the way forward, following the adoption of UNSC Resolution 2719 (2023). A senior-level Joint Task Force was established to coordinate the efforts of the Secretariat and its engagement with the AU towards the implementation of UNSCR 2719.
    • 433. The Joint Working Group on PSOs and Ad-hoc Security Initiatives continued interaction and coordination throughout the year. The AUC and the UN Secretariat maintained technical-level contacts on regional, country-specific, and thematic files. As part of the revitalization of the AU climate security cluster and the UN climate security mechanism , the first interdepartmental retreat on climate, peace, and security convened on 11 May 2024; the Retreat built on the consultative process conducted as part of the African continental climate security risk assessment, as requested by the AU PSC, as well as collaboration towards the development of the common African position on climate, peace and security. This includes sustained policy dialogue, horizon scanning and clustered meetings, joint high-level missions, coordinated messaging including during electoral processes, and country-level coordinated action.
    • 434. The Commission also collaborated with the UN to develop strategic documents namely; policy guidelines, monitoring and reporting, and accountability mechanisms for the Maputo Five-Year Work plan to operationalize the ASF. In collaboration with the RECs/RMs, and the African Peacekeeping Training Centers of Excellence (TCEs), the AU and UN contributed to enhancing the capacities of RECs/RMs’ planning and management of peace operations and supported the operationalization of the Continental Logistics Concept and Continental Movements Control Centre.
    • 435. AU/UN Partnership also resulted in the development of the training curriculum on gender-mainstreaming for PSOs, the revision and harmonization of the gender training package for AU PSOs; and the production of “She Stands for Peace” Podcast series on different thematic issues of the WPS agenda.
    • 436. In addition, the two organizations worked together in the implementation of the Gender, WPS agenda , and implementation of the AU Compliance Framework on the Conduct and Discipline and Sexual Exploitation and Abuse ; and the finalization of the AU Board of Inquiry policy for ATMIS .
    • 437. The UN and AU continued to hold strategic dialogues , both at Headquarters and in the field, to assess conflict situations, complementarities, and coordination of actions, and explore areas for common messaging. In this regard, the Annual Conference also officially established the High-Level Strategic Dialogue on Sustainable Development, to be chaired by the Deputy Secretary-General and the Deputy Chairperson. The High-level Strategic Dialogue held its 3rd meeting on 29 May 2024, at which they reviewed implementation mechanisms for the operationalization of the five “college-to-college” formations as a new method of working between AU Commissioners and their United Nations counterparts in the context of AU Agenda 2063 and SDGs 2030.
    • 438. On 8 July 2024, the Military Staff Committee of the AUPSC and representatives of the Military Staff Committee of the UN engaged in their first informal consultations at the AU headquarters. This enabled the two Committees to better understand their respective mandates, working methods, and challenges while laying the foundation for more effective collaboration to provide timely and informed advice to the two Councils.
    • 439. On 15 October 2024, the Peacebuilding Commission and the AUPSC scheduled at the UN Headquarters, their seventh annual consultative meeting, which explored the opportunities for enhancing cooperation with a view to supporting the African Union’s PCRD and peace-building efforts.
    • 440. The 18th AUPSC / UNSC Annual Joint Consultation took place on 18 October, in New York, preceded by the 9th Informal Joint Seminar on 17 October 2024. The deliberations considered matters about financing AU-led Peace Support Operations (PSOs), Youth, Peace and Security, and the working methods of the joint meetings and other engagements; as well as the review of the conflict situations in the Sudan, Sahel, Somalia, and eastern DRC.
    • 441. The meetings of the two Councils were preceded by two-day consultations of the AUPSC Committee of Experts and the Security Council’s Ad-hoc Working Group on Peace and Security in Africa, which included comprehensive briefings by the AU Commission.
    • 442. The eighth Annual Conference between the Secretary-General and the AUC Chairperson took place on 21 October 2024. The Secretary-General and Chairperson reviewed progress in the implementation of the “UN-AU Joint Framework for Enhanced Partnership in Peace and Security” and the “AU-UN Framework for the Implementation of Agenda 2063 and the 2030 Agenda for Sustainable Development” and signed the AU-UN Joint Framework on Human Rights. Then discussions covered Unconstitutional changes of government and political transitions on the continent; the coordination of peace efforts in the Sahel, the Horn of Africa (Somalia, South Sudan, Sudan) and the Great Lakes region; the progress on Security Council negotiations on predictable financing of the AU-led peace support operations; Africa’s socio-economic recovery and the reform of the international financial architecture. The annual conference also endorsed the jointly developed roadmap for the implementation of UNSCR 2719 (2023) on the financing of AU-led PSOs.
    European Union
    • 443. The strategic partnership between the AU and EU continued to bolster and benefit from the guidance of the 2018 MoU on Peace, Security, and Governance . The formulation of the combined EU support programme for the AGA and APSA is nearing completion. Set to begin in January 2026, the programme is designed to capitalize on the synergies between the AGA and APSA, with a planned duration of four years. Key areas of cooperation include early warning, mediation, climate and security, human rights, and the promotion of good governance and democracy. This integrated programme will enhance human rights adherence in AU-led Peace Support Operations and will place a strong emphasis on increasing citizen participation in governance, peace, and security. Additionally, EU support through the Early Response Mechanism will be redirected to support the initiatives under the Crisis Reserve Facility of the AU Peace Fund.
    • 444. The Joint Financing Arrangement (JFA) has evolved into a non-binding coordination framework, now referred to as the "Joint Framework Arrangement (JFA)." The JFA is designed to strengthen coordination among all stakeholders involved in managing and supporting AU Commission initiatives. This framework encompasses both partners contributing earmarked funding and those providing non-earmarked funding for the Commission 's activities, with the coordination platform now extended to include AUC Member States. The JFA is set to remain in place until December 2028, with Canada, Denmark, the EU, Germany, Ireland, Norway, the Netherlands, and the United Kingdom, already committed to it.
    TICAD Ministerial

    • 445. In preparation for the 9th Tokyo International Conference on African Development (TICAD) scheduled for August 2025, the PAPS Department participated in the TICAD Ministerial session in Tokyo, Japan, from August 24-25, 2024. This strategic engagement aimed to enhance partnerships and advance Africa's peace and security agenda. The session allowed stakeholders to deepen cooperation, sharpening collective approaches toward ensuring human dignity and security in Africa. While underscoring the imperative for robust Global multilateralism to achieve global security and the Peace we want in Africa, the following key reflections were highlighted (i) the free will of African citizens to build innovative capacity in the advanced age of the knowledge economy and new technologies particularly the youth for assured human security; (ii) Political will to boost democratic leadership In Africa evident In constitutionalism, rule of law, and building of resilient Institutions; (iii) Collective will that Is anchored on smart partnerships to achieve global sustainable security for all.
    • 446. The ministerial presented a platform to reaffirm the importance of prioritizing prevention while working to ensure lasting solutions to pervasive security threats including lingering conflicts, terrorism, and violent extremism by tackling the root causes. Overall, it highlighted the need to strengthen African Peace and Security Architecture (APSA) and African Governance Architecture (AGA) including support to AU-led peace support operations through UNSC Resolution 2719 (2023), sustainable and predictable financing, and capacity building for public institutions, as appropriate.

    Beijing Summit of the Forum on China-Africa Cooperation (FOCAC)



    • 447. In September 2024, President Xi Jinping hosted 34 African leaders to the 2024 Summit of the Forum on China-Africa Cooperation (FOCAC) held in Beijing. The AUC Chairperson, ably supported by the CPAPS and other Commissioners were also in attendance. Chinese President Xi announced China's readiness to work with Africa to implement China 's 10 partnership actions carefully crafted to jointly advance modernization in the two (2) continents and the overall characterization of China-Africa relations to be elevated to an all-weather China-Africa community with a shared future for the new era. Within the ten (10) partnership actions for modernization to deepen China-Africa cooperation, the PAPS related areas reflecting China's confidence and sincerity in promoting modernization with Africa are mutual learning among civilizations in state governance; development cooperation; people-to-people exchanges; and common security.

    Building an African

    Narrative Towards

    2063