The March 23 Rebels (M 23) have become active in the Northern Kivu region of Democratic Republic of Congo (DRC) since November 2021, when the group reemerged after lying dormant for 10 years. The intense fighting between Congo’s national army Forces armées de la république démocratique du Congo (FARDC) and the M 23 Rebels has resulted in massive displacement of thousands of people from the province of Goma, in the Northern Kivu region[i]. According to United Nations, fighting has resulted in massive displacement of around 40,000 people. Additionally, tensions between DRC and Rwanda have risen and the regional powers are trying to de-escalate the crisis through diplomacy and military action.
In this context, this brief seeks to focus upon the resurgence of M 23, regional tensions, role of regional initiatives to curb the crisis and global responses.
What is M23 and why has it resurged?
M 23 rebel group which largely comprised the Tutsi minority group was formed in April 2012.[ii] It was an offspring of the National Congress for the Defense of the People (CNDP), which enjoyed the support of Rwanda.[iii] In order to stabilise eastern DRC, a Peace Treaty was signed on March 23, 2009 between Rwanda and DRC. [iv]The Treaty called for CNDP’s transformation into a political party, release of the prisoners, reconciliation and reintegration of the former CNDP rebels into the Government and National Armed forces, giving amnesty to the soldiers who renounced rebellion as well as the return of the Congolese Tutsi refugees from Rwanda. The M 23 soldiers rebelled in 2012, claiming that the DRC Government has failed to honor the 2009 Peace Treaty. They asserted that DRC did not give CNDP officers adequate ranks and salaries within FARDC and did not offer them good position in the Government[v].
In March 2022, M 23 captured major parts of Rutshuru region bordering Uganda and Rwanda and a major DRC military base in the Northern Kivu region.[vi] By June, Bunanga, a post near the Ugandan border came under their control. On July 26, 2022, M 23 Rebels threatened to seize control over Eastern DRC. M 23 wanted to pressurize President Tshisekedi’s Government to abide by the Peace Treaty which includes that amnesty be given to the soldiers who are returning to DRC. According to M 23 spokesperson Willy Nogma “The Government doesn’t keep its promises.” M 23 Rebels accused the DRC authorities for aggravating the conflict.[vii] According to an official statement made by DRC Government’s spokesman Patrick Muyaya “The M 23 must withdraw from the occupied positions before being reintegrated in to the process like other armed groups.”[viii]
Source: Africa Research Bulletin
Rising Regional Tensions
When M 23 resurfaced, tensions heightened between DRC and Rwanda .DRC blamed Rwanda for supporting M 23 rebels. As a response to this, DRC expelled the Rwandan Ambassador, Vincent Karega in October 2022.[ix] The DRC Government also accused Rwanda for stationing disguised special armed forces in the Northern Kivu province which is located near the Rwandan Border. However, the Rwandan authorities denied the allegations made by DRC. Rwanda on the other hand accused DRC for working with the National Liberation Front of Rwanda (FDLR- Hutu rebel group, responsible for 1994 Rwandan genocide). According to the official statement of the Rwandan Government “It is regrettable, the government of DRC continues to scapegoat Rwanda to cover up and distract from their own governance and security failure”[x]. Thus, it would not be wrong to state that, the recent crisis in DRC is the result of long-standing rivalry between DRC and Rwanda.
DRC also accused Uganda for supporting M 23 rebels. Some of the DRC Parliamentarians have called omPresident Tshisekedi to end the diplomatic ties with Uganda. They have also asked for the termination of the joint military operation against Allied Democratic Forces (ADF- Islamist terrorist organization operative in DRC and Uganda).[xi] Uganda’s State Minister of International Relations Mr. Henry Oryem Okello, dismissed the accusations and stated that a peaceful DRC is in Uganda’s interest. He added that, “Those accusers are attention seekers.... Uganda doesn’t support M 23 Rebels”[xii]. The tensions have also resulted in stalling of the joint road project connecting Goma, Butembo and Beni.
What are the Regional Responses?
Without a stable DRC, there will be no stability in eastern and central Africa. In this context it is important to evaluate the role played by East African Community, African Union and the Luanda Process.
East African Community
East African Community initiated a two-track process in order to bring about stability in DRC- which is a combination of diplomatic and military action under the Kenyan leadership[xiii]. In this context it needs to be noted that, DRC joined East African Community as a new member in March 2022. EAC’s peace facilitator, Uhuru Kenyatta (the former President of Kenya) conducted a Peace Conference, Nairobi Process, wherein the leaders decided to deploy an East African Force to help DRC’s Armed Forces (FARDC) to combat the M23 Rebels. This regional force comprised units from Kenya, Burundi, Uganda and South Sudan. DRC has welcomed this development only on the condition that Rwanda will not be a part of it. It is for the very first time that EAC is sending its troops to a Member State.[xiv] Thus, it will be a litmus test for EAC to handle political and security challenges of the region.
Another significant area of concern for EAC is to build trust and confidence between DRC, Rwanda and Uganda. However, military dynamics on the ground are extremely difficult. Ugandan and the Burundian troops which have been deployed in Eastern DRC since 2021 are fighting with their enemies Allied Democratic Forces (ADF) and Red Tabara,(Red Tabara is a Burundian rebel group which is present at the DRC- Burundi border) respectively[xv]. Rwanda is upset with their presence in an area which is considered to be important for its security. Since the political, economic and security considerations of the regional countries have become intertwined over the years, therefore, a durable solution should involve Rwanda which has been kept out from the East African Regional Force at DRC’s behest. EAC also needs to work together with other initiatives of which DRC is a part, such as the Great Lake Peace and Security Initiative and Force Intervention Brigade.
African Union
African Union has asked that the fighting should end immediately between the DRC army and M 23 rebels. According to African Union President, Mousa Faki Mahamat, “Both the warring forces must declare an immediate ceasefire in compliance with the international laws and thus guaranteeing the safety of the civilians living in the region and its stability.”[xvi] African Union has asked all the stake holders to engage in a constructive dialogue, under the framework of African Union Peace, Security and Cooperation Framework agreement for DRC.
Luanda Process
In order to end instability in the eastern DRC and to de-escalate the tensions between Rwanda and DRC, the Angolan President, Joao Lourenco, hosted a Summit at Angola’s capital, Luanda, on July 26, 2022. [xvii]President Lourenco charted out the Luanda Roadmap on the pacification process of eastern DRC, which outlined that both DRC and Rwanda should respect each other’s territorial integrity and should stop supporting rebels. DRC and Rwanda agreed to resume diplomatic channels of communications, however, this process was stalled, when fighting intensified in eastern DRC in November 2022 and DRC accused Rwanda yet again. On November, 25 2022, a Summit was held in Luanda. It laid down a very tight timeline of five days to M 23 to withdraw from all the seized territories and return to their initial positions. It also asked the East African Regional Force to take up all the relinquished territories.[xviii] It stipulated that Rwandan rebel forces (FDLR) active in eastern DRC must be disarmed and repatriated[xix]. However, some of these recommendations were not realistic; for instance, five days ultimatum for M 23 was not feasible. Therefore, without deeper resolution of regional differences, a change on the ground is not likely.
What is the response of the Global Players?
Given that the DRC is the home to the world’s mightiest river system, endowed with 50 percent of Africa’s Forest cover rich in mineral resources, it is Africa’s economic powerhouse. Therefore, a stable DRC is in the interest of the international community.
In this context it is important to look at the responses of the UN and global players.
UN
UN Secretary General Antonio Guterres was deeply concerned with the resurgence of M 23 rebels in DRC. He called for immediate de-escalation of the conflict and supported the ongoing mediation efforts led by EAC and Angolan President. UN Peace Keeping mission MONUSCO combating M 23 in DRC stated that “Attacks targeted at United Nations Peace Keepers may constitute war crimes….M 23 rebels must immediately cease all the belligerence.”[xx] The Mission also warned the M 23 rebels that it will retaliate vigorously if its bases are attacked.
USA
US Secretary of State Anthony Blinken has asked Rwandan administration to stop supporting M 23 rebels in the neighboring DRC. In a phone call to the Rwandan President Paul Kagame, Blinken said that “Any external support to the non-state armed groups in DRC, including Rwanda’s assistance to M 23 rebels should end.”[xxi] Rwanda denied these allegations and instead it accused USA for supporting FDLR in DRC.[xxii] The US appreciated the regional initiatives like the Luanda Process brokered by Angolan President and East African Community.
China
China is making heavy investments in DRC particularly in the mining sector. Most of the Chinese goldmines are located in the eastern DRC where the M 23 rebels are active. Therefore, in order to safeguard its interests, China has pledged to provide training to the DRC military personnel (FARDC). China has also expressed deep concern over the safety and security of Chinese nationals in DRC.
India
India expressed its concerns on the deteriorating security situation in eastern DRC, caused by the resurgence of M 23. India maintains that, the M23 group is expanding the territories it controls in the eastern DRC and its movement towards Goma is a matter of great concern. In this context it needs to be noted that, India is the second largest troop contributor to UN Peace Keeping mission- MONUSCO in DRC, which is combating M 23 rebels.”[xxiii]. India has lauded the regional efforts to deescalate the conflict in DRC[xxiv].
Conclusion
Little progress has been achieved regarding the situation in DRC as far as regional efforts are concerned. Nevertheless, the regional stakeholders need to take the lead to address the challenges and resolve the crisis, as they have the political will to do so and have a better understanding of the regional dynamics. The importance of restoring peace and stability in eastern DRC cannot be over- emphasized and all efforts need to be made to resolve the current tensions to ensure protection of civilians and to end violence.
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Dr. Gauri Narain Mathur is a Research Fellow at Indian Council of World Affairs.
Views expressed are personal.
Endnotes
[i] ‘Regional Powers Should Drive Diplomacy in DR Congo as M23 Surrounds Goma’, International Crisis Group, 30 November 2022, crisisgroup.org/africa/great-lakes/democratic-republic-congo/regional-powers-should-drive-diplomacy-dr-congo-m23
[ii] Kasper Hoffman and Christoph Vogel, ‘What M 23’s on and off insurgency tells us about DRC’s precarious search for peace.’ The Conversation, 22 May 2022, ttps://theconversation.com/what-m23s-on-and-off-insurgency-tells-us-about-drcs-precarious-search-for-peace-182520
[iii] Ibid
[iv] M 23 has taken its name from the date on which this peace treaty was signed that is 23rd March 2009.
[v] ‘Q&A: Behind the M23 mutiny in DR Congo’, Aljazeera, 26 November 2012. aljazeera.com/features/2012/11/26/qa-behind-the-m23-mutiny-in-dr-congo
[vi] ‘Congo expels Rwanda Ambassador as M23 Rebels capture Strategic Town’, Reuters, 31 October 2022, reuters.com/world/africa/congos-m23-rebels-capture-key-north-kivu-town-2022-10-29/
[vii] Ibid
[ix] Daina Iriza,’ Congolese in Rwanda Share their Experiences as tensions between the two countries remain High’, Africa news, africanews.com/2022/11/19/congolese-in-rwanda-share-their-experiences-as-tensions-between-the-two-countries-remain-h/
[x] ‘Congo expels Rwanda Ambassador as M23 Rebels capture Strategic Town’, Reuters, 31 October 2022, reuters.com/world/africa/congos-m23-rebels-capture-key-north-kivu-town-2022-10-29/
[xi] Regional Powers Should Drive Diplomacy in DR Congo as M23 Surrounds Goma’, International Crisis Group, 30 November 2022, crisisgroup.org/africa/great-lakes/democratic-republic-congo/regional-powers-should-drive-diplomacy-dr-congo-m23
[xii] ‘DRC turns on Heat on Uganda, Accusing it of supporting M23 Rebels’, Daily Monitor, 4 November 2022, https://www.eyeradio.org/drc-turns-heat-on-uganda-accusing-it-of-supporting-m23-rebels,
[xiii] Stephaine Wolters, ‘The Return of the M 23: Is there a way out for the DRC?, African Arguments, I November 2021, fricanarguments.org/2022/11/the-return-of-m23-is-there-a-way-out-for-the-drc/
[xiv] Koffi Sawyer, ’Can East African Community Destabalize eastern DRC?’, Institute for Security Studies, 1 November 2022, issafrica.org/iss-today/can-the-east-african-community-stabilise-eastern-drc
[xv] Ibid
[xvi] ‘ DRC – Rwanda : the Crisis increases, African Union Convenes Peace Talks in Nairobi’,Nova News, 31 October
[xvii] Arnaldo Vieira,’Luanda Hosts Summit on DRC, Rwanda Crisis’, The East African, 21 November 2022, https://www.theeastafrican.co.ke/tea/news/east-africa/luanda-hosts-summit-on-drc-rwanda-crisis-4027634
[xviii] Gatete Nyiringabo, ‘The Sweet and Sour of the Luanda Summit on DRC and M23 Rebels’, The East African, 4 December 2022, https://www.theeastafrican.co.ke/tea/news/east-africa/the-sweet-and-sour-of-luanda-summit-on-drc-4041842
[xix] Ibid
[xx] “DR Congo: Gurettes Deeply Concerned by Resurgence of Fighting between Government Troops and M23’, United Nations, UN News, 31 October 2022 https://news.un.org/en/story/2022/10/1130037
[xxi] Ange Ileza,’ US Piles Pressure on Rwanda over M 23 Rebels in the DR Congo Conflict’, The East African, 6 December 2022, https://www.theeastafrican.co.ke/tea/news/east-africa/us-rubs-rwanda-again-over-m23-rebels-4045302
[xxii] FDLR is the Rwandan Hutu Rebel group which is responsible for 1994 Rwandan Genocide
[xxiii] ‘India Remains Concerned on Volatile Security Situation in Eastern Congo: Kamboj’, ANI, 10 December 2022, https://www.aninews.in/news/world/us/india-remains-concerned-on-volatile-security-situation-in-eastern-congo-kamboj20221210062951/
[xxiv] Ibid