Ceci est une version HTML d'une pièce jointe de la demande d'accès à l'information 'Minutes and Discussions in the Council of Ministers on EU/Angola, EU/Mozambique, EU/Guinea-Bissau and EU/DRC'.


 
  
 
 
 

Council of the 
 
 

 European Union 
   
 
Brussels, 17 April 2019 
(OR. en) 
    8458/19 
 
 
 
 
 
 
ACP 41 

RELEX 378 
 
 
FIN 288 
COAFR 77 
CFSP/PESC 284 
ONU 52 
 
NOTE 
From: 
General Secretariat of the Council 
To: 
Delegations 
No. prev. doc.: 
8457/19 
Subject: 
2019-2020 Action Programme for the African Peace Facility 
 
 
1. 
On 17 April 2019, the Permanent Representative Committee approved by qualified majority, 
as defined in Article 8(3) of the Internal Agreement establishing the 11th EDF1, the 2019-
2020 Action Programme for the African Peace Facility. 
2. 
In accordance with Article 15 of the 11th EDF Implementation Regulation2, the Action 
Programme annexed to this note can be adopted by the Commission once the ACP Committee 
of Ambassadors has endorsed the request from the African Union3
 
                                                 
1  
Internal Agreement between the Representatives of the Governments of the Member States 
of the European Union, meeting within the Council, on the financing of European Union aid 
under the multiannual financial framework for the period 2014 to 2020, in accordance with 
the ACP-EU Partnership Agreement, and on the allocation of financial assistance for the 
Overseas Countries and Territories to which Part Four of the Treaty on the Functioning of 
the European Union applies (OJ L 210, 6.8.2013, p. 1). 
2 
Council Regulation (EU) 2015/322 of 2 March 2015 on the implementation of the 11th 
European Development Fund (OJ L 58, 3.3.2015, p. 1.). 
3  
ST 8445/19. 
 
8458/19  
 
KH/br 

 
RELEX.1.B 
 
EN 
 

 
ANNEX 
2019-2020 Action Programme of the African Peace Facility 
 
MULTIANNUAL4 PROGRAMME/MEASURE 
This document constitutes the multiannual work programme in the sense of Article 110(2) of 
the Financial Regulation  and action programme/measure in  the sense of Articles 2 and 3 of 
Regulation N° 236/2014. 
1. Title/basic act/ 
2019-2020 Action Programme of the African Peace Facility 
CRIS number 
CRIS number: FED/2018/041-568 
financed under the European Development Fund (EDF) 
2. Zone benefiting 
from the 
African continent 
action/location 
3. Programming 
2019-2020 Action Programme of the African Peace Facility 
document 
4. Sustainable 
SDG 16: “Promote peaceful and inclusive societies for sustainable 
Development 
development, provide access to justice for all and build effective, 
Goals (SDGs) 
accountable and inclusive institutions at all levels” 
5. Sector of 
DEV. Assistance: YES5 (results 1 
intervention/ 
Peace and Security 
and 2) 
thematic area 
                                                 
4 
Within the maximum contribution of the European Union, the authorising officer 
responsible may adjust the allocation to the respective budgetary years subject to the 
availability of the commitment appropriations. 
5 
Official Development Assistance is administered with the promotion of the economic 
development and welfare of developing countries as its main objective. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 

 
 
6. Amounts 
Total estimated cost: EUR 800 144 806.45 
concerned 
Total amount of EDF contribution: EUR 800 000 0006 
The Commission will be entrusted with the responsibility of managing 
the contribution for an amount of EUR 75 522.39 transferred by the 
Grand Duchy of Luxembourg after the signature of the corresponding 
transfer agreement, in accordance with the procedures applicable to the 
expenditure of the European Union in particular EDF. 
The Commission will be entrusted with the responsibility of managing 
the contribution for an amount of EUR 69 284.06 transferred by the 
Czech Republic after the signature of the corresponding transfer 
agreement, in accordance with the procedures applicable to the 
expenditure of the European Union in particular EDF. 
7. Aid modalities 
Project Modality 
and 
Direct management through: 
implementation 
- Grants  
modalities   
- Procurement  
Indirect management with the African Union Commission, the United 
Nations Office of the High Commissioner for Human Rights, the United 
Nations Secretariat, the United Nations Office for Project Services, the 
United Nations Support Office in Somalia and the Member State 
Organisation(s) to be selected in accordance with the criteria set out in 
section 5.4.3.2. 
                                                 
6 
In addition, EUR 14 860 000 will be allocated for support expenditure incurred by the 
Commission. 
 
This amount does not form part of the Action Programme. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 

 
 
8 a) DAC code7 
15220 
b) Main Delivery    African Union (excluding peacekeeping facilities) – 47005 
Channel 
9. Markers  
General policy objective 
Not 
Significant 
Principal 
targeted 
objective 
objective 
 (from CRIS DAC  Participation development/good 
☐ 

☐ 
form) 
governance 
Aid to environment 

☐ 
☐ 
Gender equality and Women’s and 

☐ 
☐ 
Girl’s Empowerment 
 
Trade Development 

☐ 
☐ 
Reproductive, Maternal, New born 

☐ 
☐ 
and child health 
RIO Convention markers 
Not 
Significant  Principal 
targeted 
objective 
objective 
Biological diversity 

☐ 
☐ 
Combat desertification 

☐ 
☐ 
Climate change mitigation 

☐ 
☐ 
Climate change adaptation 

☐ 
☐ 
10. Global Public 
N/A 
Goods and 
Challenges (GPGC) 
thematic flagships 
 
                                                 
7 
Applicable to specific objectives 1 and 2. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 

 
SUMMARY 
This Action Programme contributes to the peace and security component of the Africa-EU 
Partnership through the implementation of actions funded by the African Peace Facility under the 
European Development Fund during the period 2019-2020. 
The 2016 EU Global Strategy defines peace and security as one of the vital interests of the EU, also 
stating that security within Europe is strongly linked to peace in neighbouring and surrounding 
regions. Furthermore, the renewed European Consensus on Development8, adopted in 2017, 
establishes "peace" as one of its five focus areas and reaffirms the EU’s commitment to a rules-
based global order, with multilateralism at its core. 
The African continent continues to be marked by violent conflicts that, in addition to negatively 
affecting the lives of many women, men and children and driving forced displacement, hamper 
economic and social development. The promotion of peace and security in Africa is therefore 
critical both to the sustainable development of the continent and the security interests of the EU. As 
evidenced by the Memorandum of Understanding on Peace, Security and Governance signed in 
2018, the African Union (AU) and the EU are committed to working jointly towards this goal. 
This Action Programme promotes just, peaceful and inclusive societies for sustainable development 
(SDG 16) by supporting African-led conflict prevention and management efforts, thus reducing all 
forms of violence, including sexual abuses, deaths, and forced displacement, as well as obstacles to 
economic and social development caused by violent conflicts on the continent. It will achieve the 
overall objective of reducing the incidence, duration and intensity of violent conflicts in Africa by 
improving conflict prevention, management and resolution structures and mechanisms of the 
African Peace and Security Architecture (APSA) (Specific Objective 1); conflict prevention and 
early response by the African Union Commission (AUC) and the Regional Economic Communities / 
Regional Mechanisms (RECs/RMs) (Specific Objective 2); and conflict management through the 
deployment of peace support operations by the AUC and African regional organisations (Specific 
Objective 3). 
                                                 
8 
OJ C 210 of 30.6.2017. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 


 
The Action Programme will be implemented primarily through indirect management with the AU, 
as well as grants or indirect management agreements with RECs/RMs, the G5 Sahel, EU Member 
States agencies, the United Nations Secretariat, the United Nations Office of the High 
Commissioner for Human Rights, the United Nations Office for Project Services and the United 
Nations Support Office in Somalia. Service contracts will be concluded for technical assistance, 
communication, audit and evaluation. Furthermore, an administrative arrangement with the JRC is 
foreseen to provide technical support to the AU on its continental conflict early warning system. 
1  CONTEXT ANALYSIS 
  Context Description 
For the past three years, the number of state-based conflicts and overall fatalities caused by 
organised violence has been decreasing globally after a peak in 2014. However, this positive trend 
is partly counterbalanced by a spike in the number of active conflicts involving non-state actors and 
resulting fatalities, driven in particular by conflicts in sub-Saharan Africa.9 While some successes 
can be noted, the overall situation on the continent remains concerning.10 
The negative impact of violent conflict in Africa on the fight against poverty and the continent's 
prospects for sustainable economic and social development is significant. Moreover, while violent 
conflict results in more direct deaths of men than women, there is scientific evidence pointing to the 
conclusion that conflict reduces women’s life expectancy disproportionately to men’s, as women 
are more affected by indirect effects such as increased food prices, weakened or collapsed health 
care systems, displacement, and sexual and gender-based violence.11 Thus, the prevention and 
management of violent conflict has a crucial bearing on efforts to achieve gender equality. Violent 
conflict also constitutes the main driver of forced displacement, currently affecting more than 68 
million people globally. While about two thirds of displaced persons remain within their country of 
origin, the remainder of refugees puts pressure on host communities predominantly situated in 
neighbouring countries often themselves affected by development-related challenges and fragility.12 
                                                 
9 
Pettersson, Therése, Eck, Kristine: Organized Violence, 1989-2017, In: Journal of Peace 
Research 55(4), 18 June 2018, p. 535-547. 
10 
International Institute for Strategic Studies: Armed Conflict Survey, Vol. 4, 2018. 
11 
Plümper, Thomas, Neumayer, Eric. (2005): The unequal burden of war: The effect of armed 
conflict on the gender gap in life expectancy. International Organization, 60, p.723-754. 
12 
UNHCR: Global Trends – Forced Displacement in 2017 (http://www.unhcr.org/5b27be547) 
(31/08/2018). 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 


 
According to the Office of the United Nations High Commissioner for Refugees (UNHCR), 7 out of 
the 10 main countries of origin of refugees are African states.13 The effective management of 
ongoing violent conflicts and targeted activities preventing the escalation of emerging crises can 
therefore contribute to the realisation of Africa’s potential for sustainable development, as well as 
positively influence the global forced displacement picture. 
   Policy Framework (Global, EU) 
Within the global policy framework for development provided by the Sustainable Development 
Goals (SDGs), SDG 16 aims at the establishment of just, peaceful and inclusive societies for 
sustainable development. In this context, the resolve of African partners to promote peace and 
security on the continent has been supported by the EU from the outset, both politically and 
financially. The implementation of the Joint Africa-EU Strategy (JAES) is focused on peace and 
security as one of its four priority areas. The Memorandum of Understanding on Peace, Security 
and Governance, signed in May 2018, following the November 2017 AU-EU Summit in Abidjan, 
puts the AU-EU partnership in this area on a more solid and structured basis.14 
In its essence, the foundation of the EU lies in efforts to overcome divisions and promote peace. 
Article 21 of the Lisbon Treaty establishes the aims to preserve peace, prevent conflict and 
strengthen international security, as well as to consolidate and support democracy, the rule of law, 
Human Rights and the principles of international law as core objectives of EU external action. The 
EU Global Strategy15 defines peace and security as one of the vital interests of the EU, linked to 
both internal and external security: "Our security at home entails a parallel interest in peace in our 
neighbouring and surrounding regions. It implies a broader interest in preventing conflict, 
promoting human security, addressing the root causes of instability and working towards a safer 
world". Within this framework, the Global Strategy adopts an integrated approach to external 
conflicts and crises as one of the five priorities of EU external action. This requires the EU to 
intervene at all stages of the conflict cycle by acting promptly on prevention, responding 
responsibly and decisively to crises, investing in stabilisation, and avoiding premature 
disengagement. 
                                                 
13 
In order of magnitude of the total number of refugees, these are South Sudan, Somalia, 
Sudan, Democratic Republic of Congo, Central African Republic, Eritrea, Burundi. 
14 
Memorandum of Understanding on Peace, Security and Governance between the African 
Union and the European Union, 23 May 2018. 
15 
Shared Vision, Common Action: A Stronger Europe. A Global Strategy for the European 
Union’s Foreign and Security Policy, June 2016. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 

 
In line with the 2030 Agenda for Sustainable Development, the renewed European Consensus on 
Development16, adopted in 2017, establishes "peace" as one of its five focus areas, underlining that 
"peacebuilding [is] essential for sustainable development and should take place at all levels, from 
global to local, and at all stages of the conflict cycle, from early warning and prevention to crisis 
response and stabilisation." The Consensus also underlines that the "EU and its Member States will 
address all aspects of preventing and responding to sexual and gender-based violence in conflict and 
post-conflict situations, and will support women as positive agents for conflict prevention, conflict 
resolution, relief and recovery, and building sustainable peace". 
The EU recognises that it cannot manage violent conflicts alone, as sustainable peace can only be 
achieved through comprehensive agreements rooted in broad, deep and durable regional and 
international partnerships. The Consensus therefore reaffirms the EU’s commitment to a rules-based 
global order, with multilateralism at its core, thus laying the foundation for addressing security 
challenges in cooperation with the AU, regional and international organisations. 
                                                 
16 
Joint statement by the Council and the representatives of the governments of the Member 
States meeting within the Council, the European Parliament and the Commission (2017/C 
210/01): The new European Consensus on Development - "Our World, Our Dignity, Our 
Future", 7 June 2017. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 


 
The African Peace Facility (APF) is the main tool for implementing the AU-EU cooperation on 
peace and security and has been financed under the European Development Fund (EDF) for a total 
envelope of more than EUR 2.7 billion since 2004. In parallel to the EU’s political backing of 
conflict prevention and management efforts on the African continent, the APF provides support to 
the operationalisation of the African Peace and Security Architecture (APSA), support to conflict 
prevention and early response efforts through the Early Response Mechanism (ERM), as well as 
substantial and predictable funding to African-led Peace Support Operations (PSOs). The APF is a 
pan-African instrument and financial support therefore has to be requested by and provided to the 
AU and/or the African Regional Economic Communities (RECs) and Regional Mechanisms (RMs) 
included in the APSA17, and/or sub-regional organisations carrying out a peace and security 
operation with an AU Peace and Security Council (AU PSC) mandate. 
  Public Policy Analysis of the partner region  
The promotion of peace and security is one of the key objectives formulated in the AU Constitutive 
Act of 11 July 2000, which highlights the link between security and development in its preamble. 
Consequently, the Protocol Relating to the Establishment of the AU PSC established the APSA in 
2002, as a continental framework within which the African Union Commission (AUC), RECs and 
RMs contribute to the prevention, management and resolution of conflicts in Africa.18 The APSA 
furthermore involves other key institutions such as the AU PSC, a Panel of the Wise, a Continental 
Early Warning System (CEWS), an African Standby Force and a Peace Fund. The AU has invited 
the EU to participate in the Peace Fund as one of only two non-African members of the governing 
board, the other being the United Nations (UN). 
                                                 
17 
The following organisations are currently part of the APSA based on the signature of a 
Memorandum of Understanding with the AU: the Arab Maghreb Union (AMU), the 
Economic Community of Sahelo-Saharian States (CEN-SAD), the Common Market of East 
and Southern Africa (COMESA), the East African Community (EAC), the Eastern Africa 
Stand-by Force (EASF), the Economic Community of Central African States (ECCAS), the 
Economic Community of West African States (ECOWAS), the Inter-Governmental 
Authority for Development (IGAD), the North Africa Regional Capability (NARC), and the 
South African Development Community (SADC). 
18 
Protocol relating to the Establishment of the Peace and Security Council of the African 
Union. Adopted by the 1st Ordinary Session of the Assembly of the African Union. Durban, 
9 July 2002. 
 
8458/19  
 
KH/br 

ANNEX 
RELEX.1.B 
 
EN 
 

 
The strategic framework for the socio-economic transformation of the continent over the next 50 
years is provided by the AU's Agenda 2063.19 Its aspiration for "a peaceful and secure Africa" aims 
at putting in place functional mechanisms for peaceful conflict prevention and management by 
2020. This commitment has been developed further in the AU initiative "Silencing the guns by 
2020", adopted in 2014. 
The APSA Roadmap 2016-2020 paves the way for future collaboration between the AU, the RECs 
and the RMs in achieving the goals of the "Silencing the guns by 2020" initiative. It identifies five 
strategic priorities: 1) conflict prevention, with a focus on early warning systems and preventive 
diplomacy; 2) crisis and conflict management, with a focus on mediation and on the African 
Standby Force; 3) post-conflict reconstruction and peacebuilding, including Security Sector Reform 
and Disarmament, Demobilisation and Reintegration of ex-combatants; 4) strategic securities 
issues, such as the fight against terrorism, the proliferation of small arms and light weapons, and 
illicit financial flows; and 5) coordination and partnerships within APSA structures, among the 
APSA members and with other international actors. The AU is considering to review this APSA 
Roadmap in 2019 or 2020; however details on the scope and aim of this review are not yet know. In 
parallel, the AU Assembly endorsed an "AU Master Roadmap of Practical Steps to Silence the 
Guns in Africa by the Year 2020"20, a political rather than solely operational document with a wider 
scope, going beyond peace and security-related issues. 
                                                 
19 
African Union: The Agenda 2063 - The Africa we want. Agreed in the Solemn Declaration 
on the 50th Anniversary of the Organisation of African Unity/African Union adopted by 
African Heads of States and Governments, 25 May 2013. 
20 
Assembly/AU/Dec.630(XXVIII). Assembly of the African Union, Twenty-Eight Ordinary 
Session, 30-31 January 2017, Addis Ababa, Ethiopia. 
 
8458/19  
 
KH/br 
10 
ANNEX 
RELEX.1.B 
 
EN 
 

 
To reduce the AU’s dependence on external donors, AU Member States have made a commitment 
in principle to increase their contribution to the AU budget. This includes the July 2015 pledge to 
fund 25% of the AU budget for PSOs by 2020. In July 2016, Member States agreed on a 0.2 % levy 
on eligible goods imported to Africa,21 which has the potential to generate over EUR 1 billion per 
year.22 Implementation of the necessary legislation and practical measures is progressing, albeit at 
different speeds across AU Member States.23 In addition, the AU is actively engaged with the UN to 
secure the remaining 75% of funding for PSOs not foreseen to be covered by AU Member States at 
this point. 
The January 2017 AU Summit furthermore adopted a comprehensive reform agenda spearheaded 
by Rwandan President Paul Kagame. It proposes a reduction of the AU’s core areas of pan-African 
competence to peace and security, political affairs, the establishment of a continental free trade 
area, and the representation of Africa on a global level, as well as a clear division of labour between 
the AU, its Member States, and the RECs and RMs.24 The November 2018 extraordinary Summit 
on AU reforms adopted an initial set of measures, including the merging of the Political Affairs and 
the Peace and Security Departments of the AUC, and the intention to have a single Commissioner 
responsible for these highly intertwined issues.25 During the November 2018 extraordinary Summit, 
the AU Peace Fund was officially launched, with the objective to revitalise it. 
The initiatives outlined above show the importance AU Member States attach to peace and security 
in Africa, as well as to the reduction of financial dependence on external donors. However, the 
currently still insufficient provision of funds by AU Member States, as well as the absence of an 
agreement on UN funding for African-led PSOs mean that relevant actions in the field of peace and 
security will continue to depend on external financial support for the foreseeable future. 
                                                 
21 
Assembly/AU/Dec.605(XXVII). Assembly of the African Union, Twenty-Seventh Ordinary 
Session, 17-18 July 2016, Kigali, Rwanda. 
22 
International Crisis Group: Time to Reset African Union-European Union Relations. Africa 
Report no. 255. 17 October 2017. 
23 
Assembly/AU/2(XXXI). Assembly of the African Union, Thirty-First Ordinary Session, 1-2 
July 2018, Nouakchott, Mauritania. 
24 
Assembly/AU/Dec/635(XXVIII). Assembly of the African Union, Twenty-Eight Ordinary 
Session, 30-31 January 2017, Addis Ababa, Ethiopia. 
25 
Ext/Assembly/AU/Dec.1-4(XI). Assembly of the African Union, Eleventh Extraordinary 
Session, 17-18 November 2018, Addis Ababa, Ethiopia. 
 
8458/19  
 
KH/br 
11 
ANNEX 
RELEX.1.B 
 
EN 
 


 
  Stakeholder analysis 
Direct beneficiaries and duty bearers of this Action Programme are the AU, the RECs/RMs, and 
any sub-regional organisations carrying out a peace and security operation with an AU PSC 
mandate. Right holders are the people living in African states ultimately less affected by conflicts 
and thus living in safer environments. People in Europe will also benefit from a safer and more 
stable African continent, as stability in Europe cannot be dissociated from stability in the European 
neighbourhood and beyond. 
The following are the most relevant stakeholders in the context of the APF: 
The AU Peace and Security Council (AU PSC) is the primary actor in the area of peace and security 
on the African continent as foreseen by the 2002 AU PSC Protocol. It is the standing decision-
making organ for the prevention, management and resolution of conflicts. Its key tasks are to 
provide political leadership, to coordinate the other components of the APSA, and to generate 
relevant action. It is composed of representatives of AU Heads of States. While the PSC has 
affirmed its leadership over the years, there are still some challenges and gaps in the 
operationalisation of the PSC Protocol. Specifically, there is a need to operationalise the subsidiary 
bodies of the PSC. Furthermore, the link between the PSC and the CEWS could be strengthened. To 
this end, the practice of including horizon-scanning sessions in the PSC agenda could be 
institutionalised. The PSC approach to mediation and peacebuilding could go beyond the 
designation and deployment of mediators or special envoys, and could benefit from a clearer 
mediation strategy, including on the tools to be used. 
The AU Commission Peace and Security Department (AU PSD) provides support to the AU PSC 
and to the AU Commission as a whole and can be understood as the “engine” of the APSA. The 
PSD has set up liaison offices in countries affected or at risk of being affected by conflict. These 
liaison offices contribute to conflict analysis, provide conflict early warning, and support the 
implementation of conflict management activities. While the PSD's capacities have been 
significantly increased over the years, including through EU support, the department is weakened 
by its high turnover and slow recruitment processes. The current structure of the PSD is rigid and 
remains an obstacle to its reform. The aforementioned AU reforms, including related to AUC 
administration and the foreseen merger of the PSD and the Department of Political Affairs, present 
an opportunity for improvements in this regard. 
 
8458/19  
 
KH/br 
12 
ANNEX 
RELEX.1.B 
 
EN 
 

 
The Panel of the Wise (PoW), the Continental Early Warning System (CEWS) and the African 
Standby Force (ASF) are also foreseen to play a critical role in the AU's conflict-prevention and 
conflict-management activities as part of the APSA, although they are not yet fully operational. 
They will therefore be supported under the capacity-building component of this Action Programme 
(Specific Objective 1). Although the AU special technical committee on defence, safety and 
security declared the ASF fully operational in 2016 following the AMANI Africa II field training 
exercise in South Africa, the Force has never been deployed. Aspects of the original concept for the 
ASF need to be updated in view of lessons learnt from AU missions and operations and related to 
new security threats like terrorism and transnational crimes, as well as in view of the emergence of 
new sub-regional ad hoc coalitions such as e.g. the G5 Sahel. 
The RECs and RMs are key partners within the APSA. Their relationship with the AU was 
established in a Memorandum of Understanding in 2008, and their role regarding peace and security 
has been officially recognised in the AU PSC Protocol. While they are formally independent, a high 
level of cooperation is sought between the RECs/RMs and the AU, and several APSA components, 
such the ASF, depend on regional structures for their functioning. Consequently, the RECs and 
RMs, as well as sub-regional organisations carrying out a peace and security operation with an AU 
PSC mandate, are also entitled to receive APF funding with AU endorsement. It has become clear 
that applying the principle of subsidiarity between the AU and RECs/RMs does not always produce 
a clear division of labour. The AU and RECs/RMs rely more on the notions of comparative 
advantage and complementarity, as well as on their willingness to actually work together. The 
ongoing AUC assessment of its relationship with the RECs should lead to better complementarity 
and coordination in the future. 
 
8458/19  
 
KH/br 
13 
ANNEX 
RELEX.1.B 
 
EN 
 


 
The UN is a key stakeholder regarding peace and security in Africa, both as a global body 
implementing its own Peacekeeping Operations on the continent, and as an important contributor to 
African-led PSOs and the AU budget in the area of peace and security. There are strong linkages 
between AU and UN operations, with UN missions often taking over from those implemented by 
the AU. APF-funded PSOs are consistent with UN principles and objectives, and UN Security 
Council mandates. UN bodies and agencies may also function as implementing partners in the 
context of specific PSOs. International responses to conflict situations in Africa, e.g. in Somalia, 
Mali and the Central African Republic, have highlighted the increasing triangular cooperation 
between the UN, the AU and the EU. Paying greater attention to the way in which the three 
organisations shape and implement their actions, both individually and collectively, will be key if 
existing gaps and overlaps are to be addressed, responses comprehensive, and timely action to be 
taken. 
  Problem analysis/priority areas for support 
Over the last decades, Africa has experienced unprecedented levels of economic growth. However, 
instability and insecurity in some states and regions remain highly concerning, hampering 
sustainable social and economic development and threatening the security of local populations. An 
effective response strategy has to be led by regional actors with a comprehensive understanding of 
the key drivers of conflict in each particular context, benefitting from effective analytical 
frameworks and tools. The progressive development of the APSA in the past 15 years has provided 
an agreed framework at continental and regional level that leaves African institutions such as the 
AU, RECs and RMs well placed to address conflicts on the continent, which can be complemented 
by sub-regional organisations carrying out peace and security operations with an AU PSC mandate. 
 
8458/19  
 
KH/br 
14 
ANNEX 
RELEX.1.B 
 
EN 
 

 
The intractability and protracted nature of most conflicts in Africa once they erupt into violence 
demonstrates that as much effort as possible needs to go into preventing their escalation. The most 
effective way to prevent societies from descending into crisis, including violent conflict, is to foster 
resilience through inclusive and sustainable development. Beyond this, more targeted measures of 
conflict prevention and management have to be employed in a timely manner whenever necessary 
and for as long as needed. The benefit of such preventive action seems self-evident; yet both 
spending and efforts on prevention currently represent only a fraction of those related to crisis 
response and reconstruction. A shift away from managing and responding to crises and toward 
preventing conflict sustainably, inclusively, and collectively can save lives and greatly reduce 
costs.26 
This Action Programme aims to support the AU in its ongoing shift from reactive to preventive 
strategies emphasising the primacy of political and negotiated results over coercive solutions. The 
operationalisation of APSA has included the establishment of the CEWS and a Mediation Support 
Unit within the AUC, as well as relevant structures within the RECs and RMs. To ensure the 
effectiveness of these structures, there is a need to guarantee immediate and flexible funding so that 
preventive diplomacy and mediation initiatives are timely and proactive, and training and support 
are available for mediators and special envoys involved in preventive measures. 
Despite this increased focus on conflict prevention measures, conflict management to adequately 
respond to erupting violent conflict and ensure a transition to sustainable peace is still necessary, 
and will continue to demand the majority of the available funding under this Action Programme, 
due to the significantly higher cost associated with this type of actions. The APSA provides 
appropriate decision-making mechanisms to mandate African-led PSOs. Through the ASF, it will 
also provide the necessary tool to carry them out once the hurdles to the ASF’s full 
operationalisation caused by insufficient commitment from AU Member States and limited and 
inconsistent capacities at both the strategic and operational level are overcome. 
                                                 
26 
World Bank Group and United Nations: Pathways for Peace - Inclusive Approaches to 
Preventing Violent Conflict, 2018. 
 
8458/19  
 
KH/br 
15 
ANNEX 
RELEX.1.B 
 
EN 
 

 
RECs and RMs constitute the building blocks of the APSA, collaborating closely with the AUC to 
ensure a common and tailored African response to violent conflict and crises is delivered. However, 
several factors undermine the APSA’s overall efficiency: 
•  As outlined above, a number of its components are not yet fully operational. 
•  Cooperation among the APSA organisations, i.e. the AU, RECs, and RMs, remains weak, and 
its underlying principles of subsidiarity, complementarity and comparative advantage need to be 
applied coherently including, as applicable, in line with Article 16 of the AU PSC Protocol. 
Proposed recommendations put forward in the Kagame report on the reform of the AU highlight 
the need for the AU to focus its responsibilities, and to establish a clear division of labour and 
effective collaboration between the AU and the RECs/RMs.27 The AU Assembly has published 
an issues paper presenting the main challenges and a roadmap leading towards the first Summit-
level Coordination Meeting of AU and RECs leadership foreseen for July 2019.28 
•  Given the evolving nature of transnational threats and the resulting conflict dynamics, 
RECs/RMs are not always the most relevant actors for intervention since countries affected by a 
crisis might belong to different regional organisations. As a consequence, African states 
occasionally decide to coordinate relevant actions in an ad hoc manner, leading to the 
emergence of new sub-regional organisations carrying out peace and security operations with an 
AU PSC mandate. Although these are not formally part of the APSA, they manage PSOs which 
are endorsed by the AU, as is currently the case for the Multinational Joint Task Force against 
Boko Haram (MNJTF) under the auspices of the Lake Chad Basin Commission, and the G5 
Sahel Joint Force. This creates an additional layer and challenges regarding coordination with 
and/or integration into the APSA. 29 
                                                 
27 
H.E. Paul Kagame: The Imperative to strengthen our Union. Report on the proposed 
recommendations for the institutional reform of the African Union, 29 January 2017, p.11. 
28 
Assembly/AU/2(XXXI). Assembly of the African Union, Thirty-First Ordinary Session, 1-2 
July 2018, Nouakchott, Mauritania. 
29 
See Communiqué of the 733rd AU PSC meeting “on the cooperation between the AU and 
ad hoc sub-regional peace arrangements, with particular focus on the Multi-National Joint 
Task Force (MNJTF) against Boko Haram and the Joint Force of the Group G5-Sahel”, 13 
November 2017. 
 
8458/19  
 
KH/br 
16 
ANNEX 
RELEX.1.B 
 
EN 
 

 
2  RISKS AND ASSUMPTIONS 
Risks 
Risk 
Mitigating measures 
level 
(H/M/L) 

1. AUC and RECs/RMs financial 

AUC-EC Aide-Mémoire signed April 
management is not strong enough 
2016 and amended in May 2017. 
to pass the EC Institutional 
 
Assessment ("pillar assessment"). 
Regular AUC-EC Aide-Mémoire Steering 
 
Committees to follow up on 
 
implementation of Aide-Mémoire in place. 
 
 
Remedial measures included in all 
 
contracts with the AUC. 
 
 
Recognised progress in 2018 leading to an 
 
AUC pillar assessment to be undertaken in 
 
2019. 
 
 
No indirect management with RECs/RMs 
 
 
that have not passed the pillar assessment. 
 
 
 
2. Insufficient funds for funding 

EU support to each PSO capped at a 
demands. 
maximum of 80% of the 2015 UN rate for 
 
troop stipends. 
 
 
If necessary, focus of funding on the most 
 
critical PSOs. 
 
 
Exit strategies for all PSOs in place. 
 
 
EU diplomatic support to African efforts 
 
towards fund diversification (UN, non-EU 
 
donors). 
 
 
EU support to AU initiatives for financial 
 
sustainability, in particular related to the 
 
revitalised AU Peace Fund. 
 
 
Coordination mechanisms with other 
 
donors to ensure efficient use of donor 
 
 
funding. 
 
 
 
 
 
 
 
 
 
8458/19  
 
KH/br 
17 
ANNEX 
RELEX.1.B 
 
EN 
 

 
3. Limited effectiveness of PSOs in 

Definition of clear rules of engagement, 
achieving goals formulated in the 
strategic objectives, etc. as part of the 
respective Strategic Concept of 
 
Strategic CONOPS. When needed, prior 
Operations (CONOPS)  
Technical Assistance will be made 
 
available to assist the AU/RECs/RMs in 
 
this process. 
 
 
Targeted capacity-building support to 
 
strengthen Mission Support Units. 
 
 
Increased field monitoring of PSOs. 
 
 
External gender-sensitive and right-based 
 
 
approach evaluations when relevant / 
feasible. 
 
 
 
 
4. PSOs not conducted in 

Support to AU capacities at HQ and field 
compliance with Human Rights and 
level to establish and implement a 
international humanitarian law 
continental HR/IHL and conduct and 
(HR/IHL), as well as accepted 
discipline compliance framework, 
norms on conduct and discipline. 
integrating a gender-sensitive approach. 
Ensure that existing complaint 
mechanisms are fully functional and 
accessible to individuals, communities 
and/or civil society organisations that are 
negatively affected by PSOs. 
Assumptions 
Peace and security remains a priority area of EU-AU/RECs/RMs cooperation. 
The APSA remains the framework within which challenges to peace and security in Africa 
are addressed. 
The AUC continues to implement the Aide-Mémoire on strengthening financial 
management. 
The AUC remains committed to improving the HR/IHL compliance of African-led PSOs. 
 
 
8458/19  
 
KH/br 
18 
ANNEX 
RELEX.1.B 
 
EN 
 


 
3  LESSONS LEARNT AND COMPLEMENTARITY  
 
Lessons learnt 
An external evaluation30 of the APF carried out in 2017 found that the APF underpinned the AU’s 
ability to respond to peace and security crises on the continent, and had made an overall positive 
contribution to the implementation and functioning of the APSA.  
Regarding APF support to PSOs, it concluded that the EU plays a substantial role as an interlocutor 
and stakeholder due to the scale, predictability and long-term commitment of its funding. While this 
comes with a risk of overdependence on EU funds, thus limiting the development of exit strategies 
and involvements of additional donors, the evaluation noted that the EU decision to reduce APF 
support to troop stipends to 80 % of the UN rate in 2015 had accelerated the reflection on 
alternative and sustainable African sources of finance.31 This ceiling, which has been applied to 
every PSO since January 2016, will therefore continue to be applied to all PSOs funded under this 
Action Programme. 
Concerning APF support to the APSA, the evaluation found that results were poor. APF-funded 
activities were fragmented rather than part of an overarching strategy. The evaluation recommended 
to maintain APF support to the APSA, but called for 1) a strengthened dialogue with African 
partners; 2) a more selective and focused support programme; 3) an incentive-based approach to 
improve performance; and 4) the prioritisation of capacity-building for PSO support structures at 
the AUC and relevant RECs/RMs within the ASF framework. The evaluation's recommendations 
will be incorporated in the next phase of the APSA Support Programme. 
                                                 
30 
https://ec.europa.eu/europeaid/evaluation-implementation-african-peace-facility-instrument-
supporting-african-efforts-manage_en 
 
31 
Particip Consortium: Evaluation of the implementation of the African Peace Facility as an 
instrument supporting African efforts to manage conflicts on the continent, December 2017. 
 
8458/19  
 
KH/br 
19 
ANNEX 
RELEX.1.B 
 
EN 
 

 
In September 2018, the Court of Auditors published a Special Report32 on EU support to the APSA. 
It concluded that this support has shown poor results and needs refocusing. The Court made two 
main recommendations: 1) phasing out EU support to operational costs and linking support to the 
fulfilment of the AU's commitments to achieve financial independence; and 2) ensuring that 
interventions are results-based and better monitored to reduce delays in contracting and avoid 
retroactive financing. The report also called for a comparative analysis of available EU financing 
instruments to use them coherently. While it can be argued that the report insufficiently 
acknowledged the complex environment in which both the APSA and relevant EU support operate, 
thus diminishing the overall positive impact of the EU’s support to the APSA, this Action 
Programme will aim to implement the recommendations made by the Court. 
The 2017 external evaluation of the APF did not cover the design and implementation modalities of 
the Early Response Mechanism (ERM), which was evaluated in 2015. This evaluation indicated 
that the ERM might face an increased demand to support long-term actions, such as extended 
mediation efforts to address protracted and highly complex conflicts. This Action Programme 
therefore extends the maximum duration of ERM support to mediation and conflict prevention 
activities to 24 months. 
The results of the Institutional Assessment ("pillar assessment") of the AUC carried out in 2015 
highlighted that AUC's financial management systems required to be strengthened. In an Aide-
Mémoire signed in 2016, the AUC and the Commission agreed on a number of measures to this 
end. A new Institutional Assessment is expected to take place in the second quarter of 2019, 
following the successful implementation of the activities foreseen in the Aide-Mémoire. 
3.2  
Complementarity, synergy and donor coordination 
In the context of the EU’s Integrated Approach, violent conflict and crises are addressed through an 
array of external action instruments, which are complementary in their nature and approach.33 The 
APF forms a key part of the implementation of this approach on the African continent, as evidenced 
e.g. in Somalia and the Sahel region, where APF-funded activities are part of wider EU regional and 
national strategies. 
                                                 
32 
European Court of Auditors: The African Peace and Security Architecture: need to refocus 
EU support, Special Report 2018/20, Luxembourg: Publications Office of the European 
Union, 18 September 2018. 
33 
Shared Vision, Common Action: A Stronger Europe. A Global Strategy for the European 
Union’s Foreign and Security Policy. June 2016. 
 
8458/19  
 
KH/br 
20 
ANNEX 
RELEX.1.B 
 
EN 
 

 
EU development cooperation instruments covering African countries, including the EU Emergency 
Trust Fund for Africa,34 support projects promoting conflict prevention and enforcing the rule of 
law through capacity-building in the area of security and development, as well as law enforcement. 
They thus complement activities that the APF Action Programme will fund at continental and 
regional level. 
The Regional Indicative Programmes (RIPs) can support the RECs with core and long-term 
institutional capacity-building, including for regional peace and security activities that are not of a 
military nature. All African RIPs under the 11th EDF include peace and security as a priority sector. 
Synergies and complementarities between the APF and the RIPs will be further promoted in support 
to the priorities identified in the 2016-2020 APSA Roadmap. EU staff dealing with peace and 
security matters, including in regional EU Delegations and in the EU Delegation to the AU, are 
working closely together as a community of practitioners, building on each other's experience to 
ensure more effective and complementary actions. Country-level National Indicative Programmes 
(NIPs) also provide significant support to conflict prevention, peacebuilding and post-conflict 
reconstruction in African countries.  
Interlinkages with Common Security and Defence Policy (CSDP) operations in Africa, in particular 
EU Training Missions, provide opportunities to increase the impact of activities while avoiding a 
duplication of efforts. CSDP Missions also provide important complementarity and lessons learnt 
on the implementation of commitments on Human Rights and gender equality, including of UN 
Security Council Resolution 1325. Relevant links also exist with initiatives under the Instrument 
contributing to Stability and Peace (IcSP), in particular its component for Capacity-building in 
support of Security and Development, adopted in December 2017.35 IcsP-funded activities at the 
national level can complement APF support, which is restricted to the continental and regional 
levels. 
                                                 
34 
Commission Decision C(2015)7293. 
35 
Regulation (EU) No 230/2014, OJ L77, 15.3.2014, p. 1. 
 
8458/19  
 
KH/br 
21 
ANNEX 
RELEX.1.B 
 
EN 
 


 
Complementarity between this Action Programme and bilateral support provided by EU Member 
States to the AU and RECs/RMs will be ensured through regular exchanges of information, e.g. in 
relevant Council working groups. Furthermore, the use of the APF as a vehicle to channel financial 
contributions from EU Member States and third countries offers the potential of fully coordinating 
relevant support. Regarding the coordination with African partners, the AU partners’ group on 
peace and security chaired by the EU Delegation to the AU, as well as EU Delegations to the RECs 
have an important role to play. 
Finally, the EU is an active participant in relevant peace and security coordination committees 
within the UN system. Through the APF, the EU aims to build a wide-ranging coalition of African 
and international partners contributing to African efforts towards peace and security. This is 
complemented by relevant discussions in the trilateral format AU-EU-UN. 
4  DESCRIPTION OF THE ACTION 
  Overall objective, specific objective(s), expected outputs and indicative activities 
The overall objective of this APF Action Programme 2019-2020 is to reduce the incidence, 
duration and intensity of violent conflicts in Africa. 
The specific objectives of this Action Programme are the following: 
1.  The conflict prevention, management and resolution structures and mechanisms of the African 
Peace and Security Architecture are improved. 
2.  Conflict prevention and early response by the AUC and the RECs/RMs are improved.  
3.  Conflict management through the deployment of peace support operations by the AUC and 
African regional organisations is improved. 
 
8458/19  
 
KH/br 
22 
ANNEX 
RELEX.1.B 
 
EN 
 

 
The expected outputs and related indicative activities of this Action Programme are the following: 
Specific Objective (S.O.) 1: The conflict prevention, management and resolution structures and 
mechanisms of the African Peace and Security Architecture are improved. 
Expected outputs: 
S.O.1 Output 1: Targeted outputs of the 2016-2020 APSA Roadmap are delivered36 
S.O.1 Output 2: AUC-RECs/RMs coordination in the area of peace and security is improved 
S.O.1 Output 3: A HR/IHL compliance framework applicable to all African-led PSOs is established 
Indicative activities: 
The APSA is the framework for the AUC and the RECs/RMs to address peace and security 
challenges in Africa. Strengthening its conflict prevention, management and resolution structures 
and mechanisms means ensuring that the APSA pillars are set up and functioning to carry out their 
tasks and deliver on their mandates, at both continental and regional level. 
The APSA 2016-2020 Roadmap identifies five broad priority areas of intervention: conflict 
prevention, crisis and conflict management, post-conflict reconstruction and peacebuilding, 
strategic security issues, and coordination and partnerships. In the framework of this Roadmap, a 
specific sub-set of results to be funded will be defined jointly with African partners, while paying 
particular attention to the AU priorities for "Silencing the Guns by 2020". 
As recommended by the Court of Auditors37 and to increase its impact, APF support to the 
operationalisation of the APSA under this Action Programme will focus on a number of key 
objectives, be results-based and limit its coverage of operational costs. Moreover, the design of this 
support will be tailored to take into account the APSA operationalisation objectives already covered 
under the RIPs.  
                                                 
36 
This expected output would also take into account the outcomes of a possible review of the 
2016-2020 APSA Roadmap 
37 
European Court of Auditors: The African Peace and Security Architecture: need to refocus 
EU support, Special Report 2018/20, Luxembourg: Publications Office of the European 
Union, 18 September 2018. 
 
8458/19  
 
KH/br 
23 
ANNEX 
RELEX.1.B 
 
EN 
 

 
As recommended by the 2017 external evaluation of the APF and as part of the horizontal support 
to the APSA, specific funding should be provided to build capacities in the context of African-led 
PSOs. Consequently, particular attention will be paid to the gender and Human Rights dimension of 
the operationalisation of the APSA, and support will be provided to the AU and other relevant 
actors to establish a continental Human Rights and international humanitarian law (HR/IHL) 
compliance framework, pursuant to UN Security Council Resolution 2320 (2016) and the 
recommendations of Kaberuka Report,38 applicable to all African-led PSOs. While ad hoc 
compliance frameworks have already been conceived within specific African-led PSOs, namely 
AMISOM and more recently the G5 Sahel Joint Force, the integration of Human Rights in African 
PSOs so far is not systematic and the existence of monitoring and accountability mechanisms still 
fragmented. With regard to PSOs carried out by RECs, Human Rights compliance frameworks still 
have to be put in place, taking into account developments at AU level. It is imperative for the EU 
that all future AU- and REC-led PSOs supported through the APF are conducted in accordance with 
international Human Rights law and international humanitarian law, as well as accepted 
international norms of conduct and discipline. 
Specific Objective 2: Conflict prevention and early response by the AUC and the RECs/RMs are 
improved. 
Expected output: 
S.O.2 Output 4: AUC and REC/RM initiatives are carried out in the areas of mediation, shuttle 
diplomacy, fact-finding missions and/or the set-up phase of a peace support operation 
Indicative activities: 
The main activity under this result will be the set-up of the third phase of the Early Response 
Mechanism (ERM). The ERM provides the AU and RECs/RMs with an immediately available 
source of funding for initiatives aimed at preventing and managing violent conflict in case of urgent 
and unforeseen needs in crisis situations. 
                                                 
38 
Securing Predictable and Sustainable Financing for Peace in Africa. Annex III: Towards an 
Integrated AU Human Rights & Conduct and Discipline Compliance Framework for 
African Union Peace Support Operations. July 2016. 
 
8458/19  
 
KH/br 
24 
ANNEX 
RELEX.1.B 
 
EN 
 

 
Specifically, the ERM provides support to increase the role and decision-making capacity of the AU 
and RECs/RMs on mediation and preventive diplomacy, and to strengthen their capacity to set up 
conflict prevention operations through mediation, political negotiation and/or shuttle diplomacy. In 
this context, particular attention will be paid to the creation of synergies between track 1 (official, 
high-level) and track 2 and 3 (unofficial, meso- and local/community-level) mediation efforts, 
including with relevant activities funded under other EU development cooperation instruments. 
Efforts will be made to ensure the equal participation of women in all stages and on all levels of 
mediation activities. Furthermore, the meaningful involvement of African civil society, including 
youth, will be encouraged where feasible and relevant. 
The ERM furthermore allows for support to the deployment of security and/or Human Rights 
observers and the strategic planning and preparation for African-led PSOs, e.g. through fact-finding 
missions, as well as the initial phases of deployment of PSOs in cases of unforeseen crisis. 
Responding to the findings of the 2015 evaluation of the ERM, the maximum duration of mediation 
and political negotiation initiatives will be extended from 12 (9+3) to 24 (12+12) months, to 
respond to the need for reliable support to long-term engagement in complex conflict environments. 
The maximum duration of any other urgent unforeseeable action will remain at 9 (6+3) months. In 
both cases, extensions beyond the initial duration of an initiative will have to be duly justified. 
Specific Objective 3: Conflict management through the deployment of peace support operations by 
the AUC and African regional organisations is improved. 
Expected output: 
S.O.3 Output 5: Forces of African-led PSOs are adequately prepared, including through training on 
gender, humanitarian law and Human Rights aspects, with a particular focus on sexual and gender-
based violence, and deployed, and undertake the tasks mandated in the relevant Strategic CONOPS. 
 
8458/19  
 
KH/br 
25 
ANNEX 
RELEX.1.B 
 
EN 
 


 
Indicative activities: 
The APF will provide funding to African-led PSOs in accordance with the procedure detailed in 
Appendix I of this Action Programme. Lessons learned during the implementation of past Action 
Programmes have shown that funding requirements have consistently exceeded the available 
means; therefore, the APF contribution to troop stipends will continue to be limited to a maximum 
of 80% of the 2015 UN rate for stipends paid to troops and police deployed in the framework of 
African-led PSOs, as foreseen in section 5.6. In addition, Commission Services and the EEAS will 
assess whether individual PSO funding requests can rely on sufficient in-kind and/or 
complementary financial support to ensure their effectiveness. The field monitoring of PSOs will be 
enhanced to assess progress towards the objectives as defined in the relevant Strategic CONOPS. 
The scope of activities eligible for funding under this Specific Objective is not limited to peace-
enforcement and peace support operations, but may also include the initial steps of post-conflict 
peacebuilding efforts such as disarmament, demobilisation and reintegration. 
The APF is intended as a means to support African-led PSOs for a limited period of time during the 
most acute phases of crisis. To avoid an excessive concentration of funding on particular PSOs, exit 
strategies will be discussed and agreed at an early stage of APF involvement in the financing of 
PSOs, and regularly updated depending on the evolution of the situation on the ground. 
This Action Programme will support activities with a continental or regional dimension 
implemented either by the AU, by RECs/RMs, or by sub-regional organisations carrying out a 
peace and security operation with an AU PSC mandate. 
  Intervention Logic 
This Action Programme aims at preventing the negative consequences of violent conflict, removing 
a direct cause of forced displacement and creating favourable conditions for sustainable social and 
economic development. It does so with the understanding that there can be no sustainable 
development without security. 
In line with the JAES, the basic assumption upon which this Action Programme relies is that the 
most effective strategy to achieve peace and stability in Africa is to support the efforts of African 
organisations that have a mandate to promote peace and security. 
 
8458/19  
 
KH/br 
26 
ANNEX 
RELEX.1.B 
 
EN 
 

 
This will be achieved through AU and/or African regional organisations’ interventions to prevent 
(Specific Objective 2) and, if necessary, manage violent conflict (Specific Objective 3). To be 
effective, these interventions require an operational APSA (Specific Objective 1) which ensures 
appropriate capabilities and know-how, as well as direct external financial support to African 
preventive diplomacy initiatives and PSOs, as the AU and RECs/RMs are currently unable to cover 
the associated costs on their own. 
4.3  Mainstreaming 
Strengthening the human rights dimension of conflict prevention, crisis management and post-
conflict processes is one of the key areas of cooperation under the priority area "Peace and 
Security" of the JAES. The AU-EU Memorandum of Understanding on Peace, Security and 
Governance further underlines the centrality of Human Rights, including the fight against conflict-
related gender-based violence, in the attainment of peace and security on the African continent. 
Under this Action Programme, Human Rights will be integrated in all foreseen activities, including 
all future African-led PSOs. Particular attention will be paid to the mainstreaming of relevant 
guidelines on Human Rights, gender sensitivity, and the protection of women, children and persons 
in the most vulnerable situations in armed conflict. This includes a focus on the role of women as 
active participants in all issues related to their security and safety, and the security and safety of 
their families and communities, as well as in addressing and managing conflict, including the 
promotion of the implementation of the protocol on the Rights of Women in Africa (Maputo 
Protocol), and the full application of all UN Security Council Resolutions on Women, Peace and 
Security, on youth in conflict prevention and resolution, as well as on the protection of children 
affected by armed conflict. These will be systematically integrated and followed up upon 
throughout the Action Programme by promoting the increased participation of women in conflict 
prevention, conflict management and peacebuilding efforts by the AU and RECs/RMs. 
To this end, the actions implemented under the present Action Programme will include the 
following measures as relevant: 
•  Activities to prevent and respond to Human Rights violations, including sexual and gender-
based violence in conflict and post-conflict situations, and activities promoting and/or 
reinforcing women’s participation in PSOs, as well as in conflict prevention and other relevant 
activities. Specific budget lines will be included to finance these activities. 
 
8458/19  
 
KH/br 
27 
ANNEX 
RELEX.1.B 
 
EN 
 


 
•  Specific contract provisions requesting detailed reporting on training activities regarding Human 
Rights and gender, on measures adopted to prevent Human Rights violations, including gender 
and sexual violence in PSOs, on the number of cases reported, investigated and prosecuted as 
relevant, as well as on the number of women within PSO contingents and the number of women 
involved in mediation activities. All data provided will be, whenever possible, disaggregated by 
sex and age. 
•  When formulating actions, an "atrocity-prevention lens" will be applied to promote the 
prevention of Human Rights and international humanitarian law violations, and ensure that EU-
supported actions are conflict-sensitive, do no harm and are in line with the global political 
commitment towards the Responsibility to Protect endorsed by all UN member states in 2005. 
This Action Programme focuses on strengthening African capacities and financing African efforts 
to prevent and manage violent conflict. While “Gender Equality and Women’s and Girl’s 
Empowerment” is not one of its significant objectives, this will be established as a significant 
objective of actions under this Action Programme whenever feasible, in line with the Council of the 
EU’s conclusions on women, peace and security adopted on 10 December 2018, which recall the 
commitments of the EU and its Member States to the implementation of UN Security Council 
Resolution 1325 and its follow-up resolutions, and the promotion of the role of women in achieving 
sustainable peace, security, Human Rights, justice and development. The AU shares these 
objectives, as evidenced by its Gender Strategy 2018-2027, which aims “to ensure women’s equal 
and effective participation in all areas of conflict prevention and resolution, peacebuilding, as well 
as post-conflict reconstruction and development”. 
As far as possible and whenever relevant, efforts will be made to mainstream relevant guidelines on 
sustainable development, including those related to the integration of climate change and 
environmental issues, in APF actions and contracts.  
  Contribution to SDGs  
This intervention is relevant for the United Nations 2030 Agenda for Sustainable Development. It 
contributes primarily to the progressive achievement of SDG 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", in particular SDG 16.1 "Significantly reduce all 
forms of violence and related death rates everywhere". 
 
8458/19  
 
KH/br 
28 
ANNEX 
RELEX.1.B 
 
EN 
 






 
5  IMPLEMENTATION  
 
Financing agreement 
In order to implement this action, it is foreseen to conclude a financing agreement with the African 
Union Commission. 
 
Indicative implementation period  
The indicative operational implementation period of this action, during which the activities 
described in section 4 will be carried out and the corresponding contracts and agreements 
implemented, is 72 months from the date of entry into force of the financing agreement.  
Extensions of the implementation period may be agreed by the Commission’s responsible 
authorising officer by amending this Decision and the relevant contracts and agreements.  
 
Implementation of the budget support component 
N/A 
 
Implementation modalities 
The Commission will ensure that the EU appropriate rules and procedures for providing financing 
to third parties are respected, including review procedures, where appropriate, and compliance of 
the action with EU restrictive measures39
  Specific Objective 1: 1. The conflict prevention, management and resolution 
structures and mechanisms of the African Peace and Security Architecture are 
improved. 

5.4.1.1  Procurement (direct management) 
As part of the support to the operationalisation of the APSA, targeted technical assistance will be 
procured to support the AU and RECs/RMs. Procurement procedures for service contracts will be 
launched indicatively during the fourth quarter of 2019. 
                                                 
39 
www.sanctionsmap.eu Please note that the sanctions map is an IT tool for identifying the 
sanctions regimes. The source of the sanctions stems from legal acts published in the 
Official Journal (OJ). In case of discrepancy between the published legal acts and the 
updates on the website it is the OJ version that prevails. 
 
8458/19  
 
KH/br 
29 
ANNEX 
RELEX.1.B 
 
EN 
 

 
As part of the support to the operationalisation of the APSA, through an administrative 
arrangement, the Joint Research Centre (JRC) will provide scientific and technical support to the 
AU’s Continental Early Warning System (CEWS) to enable AU decision-makers to enhance their 
early detection of emerging risks and situations, as well as to respond proactively and 
proportionally through collaborative monitoring and risk analysis. The JRC will perform capacity-
building activities and trainings on the use and operation of the AU Conflict Analysis and Alerting 
Systems. The commitments of the JRC, e.g. related to reporting, will be detailed in an 
administrative arrangement40
Subject 
Indicative type 
Indicative trimester of 
(works, supplies, 
launch of the procedure 
services) 
Technical Assistance 
Services 
Q4 2019 
JRC Technical Assistance to the CEWS 
Services 
Q4 2019 
5.4.1.2  Indirect management with an international organisation: United Nations 
Office of the High Commissioner for Human Rights 
A part of this action may be implemented in indirect management with the United Nations Office of 
the High Commissioner for Human Rights (OHCHR). This implementation entails support by the 
OHCHR to the establishment and implementation of a HR/IHL compliance framework for African-
led PSOs. 
The envisaged entity has been selected using the following criteria: the organisations mandate and 
institutional experience, which make the OHCHR the most suitable entity to provide expertise and 
advise the AU on the definition and implementation of policies, measures and mechanisms to 
ensure that African-led PSOs are compliant with Human Rights and international humanitarian law, 
and conduct and discipline standards. Pursuant to UN Security Council Resolution 2320 (2016), the 
OHCHR is the main actor already providing technical support to the AUC PSD to initiate the 
establishment of the continental HR/IHL compliance framework. To this end, OHCHR staff is 
based within the UN Office to the African Union in Addis Ababa. 
                                                 
40 
To be signed between DG DEVCO and DG JRC of the European Commission. 
 
8458/19  
 
KH/br 
30 
ANNEX 
RELEX.1.B 
 
EN 
 

 
5.4.1.3  Indirect management with a regional organisation 
A part of this action with the objective of "improving the conflict prevention, management and 
resolution structures and mechanisms of the African Peace and Security Architecture" may be 
implemented in indirect management with the AUC, according to the following modalities: 
The regional organisation will act as the contracting authority for the procurement and grant 
procedures. The Commission will control ex-ante all the procurement and grant procedures. 
Payments are executed by the Commission. 
The responsible authorising officer will ensure that this entity complies with the conditions of 
points (a) to (d) of Article 154(4) of Regulation (EU, Euratom) 2018/1046 applicable in accordance 
with Article 15 of Council Regulation (EU) 2018/1877. Where it complies with those requirements 
only in part, the Commission will take appropriate remedial measures to supervise and support the 
implementation of the tasks entrusted to them. 
The AUC underwent the assessment under Regulation (EU, Euratom) No 966/2012. The results of 
this review were not satisfactory for the procurement, accountancy and sub-delegation pillars. The 
Commission therefore negotiated a new AUC-EC Aide-Mémoire on measures to strengthen 
financial management of the AUC that contains a series of engagements, including remedial 
measures that had been agreed in previous Aide-Mémoires signed in 2009 and 2011. The new Aide-
Mémoire was signed on 14 April 2016 and revised on 24 May 2017 to account for progress 
achieved by the AUC. Its provisions include the implementation of a pillar assessment roadmap, 
and regular communication of the AUC’s audited financial statements as well as information on 
actual expenditures, accounts and the detailed financial situation of the AUC as an organisation to 
the EC. Annex II of the revised Aide-Mémoire contains remedial measures that are to be included 
in the Special Conditions of all contracts signed between the Commission, on behalf of the 
European Union, and the AUC. The pillar assessment roadmap is regularly monitored by the same 
team of external consultants that organised the pillar assessment in 2015. 
 
8458/19  
 
KH/br 
31 
ANNEX 
RELEX.1.B 
 
EN 
 


 
  Specific  Objective  2:  Conflict  prevention  and  early  response  by  the  AUC  and  the 
RECs/RMs are improved.  
5.4.2.1  Indirect management with a regional organisation 
A part of this action with the objective of "improving conflict prevention and early response by the 
AUC and the RECs/RMs" may be implemented in indirect management with the AUC, according to 
the following modalities: 
The regional organisation will act as the contracting authority for the procurement and grant 
procedures. The Commission will control ex-ante all the procurement and grant procedures. 
Payments are executed by the Commission. 
The responsible authorising officer will ensure that this entity complies with the conditions of 
points (a) to (d) of Article 154(4) of Regulation (EU, Euratom) 2018/1046 applicable in accordance 
with Article 15 of Council Regulation (EU) 2018/1877. Where it complies with those requirements 
only in part, the Commission will take appropriate remedial measures to supervise and support the 
implementation of the tasks entrusted to them. 
The AUC underwent the assessment under Regulation (EU, Euratom) No 966/2012. The results of 
this review were not satisfactory for the procurement, accountancy and sub-delegation pillars. The 
Commission therefore negotiated a new AUC-EC Aide-Mémoire on measures to strengthen 
financial management of the AUC that contains a series of engagements, including remedial 
measures that had been agreed in previous Aide-Mémoires signed in 2009 and 2011. The new Aide-
Mémoire was signed on 14 April 2016 and revised on 24 May 2017 to account for progress 
achieved by the AUC. Its provisions include the implementation of a pillar assessment roadmap, 
and regular communication of the AUC’s audited financial statements as well as information on 
actual expenditures, accounts and the detailed financial situation of the AUC as an organisation to 
the EC. Annex II of the revised Aide-Mémoire contains remedial measures that are to be included 
in the Special Conditions of all contracts signed between the Commission, on behalf of the 
European Union, and the AUC. The pillar assessment roadmap is regularly monitored by the same 
team of external consultants that organised the pillar assessment in 2015. 
 
8458/19  
 
KH/br 
32 
ANNEX 
RELEX.1.B 
 
EN 
 


 
  Specific Objective 3: Conflict management through the deployment of peace support 
operations by the AUC and African regional organisations is improved. 
For support to new PSOs, the elements required by point (f) of Article 110(3) of Regulation (EU, 
Euratom) 2018/1046 applicable in accordance with Article 24 of Council Regulation (EU) 
2018/1877 will be specified in an additional Commission Decision (see Annex I, section 1).  
5.4.3.1  Grants: (direct management)  
(a) Purpose of the grant(s) 
The purpose of the grants will be to have the RECs/RMs/G5 Sahel make efficient use of their 
conflict management and resolution tools. 
(b) Type of applicants targeted 
Grants may be awarded without a call for proposals to the RECs/RMs which currently are part of 
the APSA by virtue of having signed a Memorandum of Understanding with the AU in this regard: 
the Arab Maghreb Union (AMU), the Economic Community of Sahelo-Saharian States (CEN-
SAD), the Common Market of East and Southern Africa (COMESA), the East African Community 
(EAC), the Eastern Africa Stand-by Force (EASF), the Economic Community of Central African 
States (ECCAS), the Economic Community of West African States (ECOWAS), the Inter-
Governmental Authority for Development (IGAD), the North Africa Regional Capability (NARC), 
and the South African Development Community (SADC). 
In addition, subject to relevant mitigating measures, grants may be awarded without a call for 
proposal to the G5 Sahel by virtue of its regional mandate to coordinate  regional cooperation in 
security matters among its Member States (Burkina Faso, Mali, Mauritania, Niger, Chad), notably 
though its Joint Force. The AU has endorsed the mandate of the G5 Sahel Joint Force. 
(c) Justification of a direct grant 
Under the responsibility of the Commission’s authorising officer responsible, grants may be 
awarded without a call for proposals to the RECs/RMs mentioned under section 5.4.3.1 (b). Under 
the responsibility of the Commission's authorising officer responsible, the recourse to an award of a 
grant without a call for proposal is justified because of the RECs/RMs’ legal and factual monopoly 
over the implementation of peace and security actions in their respective regions within the context 
of the APSA, and because of the crisis-management character of the foreseen peace and security 
actions. 
 
8458/19  
 
KH/br 
33 
ANNEX 
RELEX.1.B 
 
EN 
 

 
Under the responsibility of the Commission's authorising officer responsible, grants with relevant 
mitigating measures may be awarded without a call for proposals to the G5 Sahel. Under the 
responsibility of the Commission's authorising officer responsible, the recourse to an award of a 
grant without a call for proposal is justified because of the role of the G5 Sahel's institutional 
framework in coordinating regional cooperation in security matters among its Member States 
(Burkina Faso, Mali, Mauritania, Niger, Chad). In this context, the G5 Sahel Joint Force was set up 
and the AU has endorsed its mandate. 
5.4.3.2  Indirect management with a Member State Organisation  
A part of this action may be implemented in indirect management with an entity which will be 
selected by the Commission’s services using the following criteria: particular experience of the 
organisation in the provision of capacity-building expertise, particular experience of the 
organisation in implementing peace and security programmes in highly insecure environments, and 
presence of the organisation on the ground in the geographical area concerned. 
The implementation by this entity entails technical, operational and logistical support to the 
governance structure of a sub-regional organisation carrying out a peace and security operation with 
an AU PSC mandate. It also entails the delivery of goods, services and works to a sub-regional 
organisation carrying out a peace and security operation with an AU PSC mandate. 
5.4.3.3  Indirect management with an international organisation: United Nations 
Office of the High Commissioner for Human Rights 
A part of this action may be implemented in indirect management with the United Nations Office of 
the High Commissioner for Human Rights (UN OHCHR). This implementation entails support to 
the establishment and implementation of a dedicated HR/IHL compliance framework for the 
operations of the G5 Sahel Joint Force as per UNSC Resolution 2391. 
The envisaged entity has been selected using the following criteria: The UN OHCHR’s mandate 
regarding the respect of Human Rights and international humanitarian law. 
 
8458/19  
 
KH/br 
34 
ANNEX 
RELEX.1.B 
 
EN 
 

 
5.4.3.4  Indirect management with an international organisation: United Nations 
Secretariat 
A part of this action may be implemented in indirect management with the UN Secretariat. This 
implementation entails logistical and operational support to the G5 Sahel Joint Force through the 
UN Secretariat. 
The envisaged entity has been selected using the following criteria: the UN Secretariat mandate of 
providing support to PSOs, and its presence in the area of operations. 
5.4.3.5  Indirect management with an international organisation: United Nations 
Office for Project Services 
A part of this action may be implemented in indirect management with the UN Office for Project 
Services (UNOPS). This implementation entails logistical and operational support to the Somali 
Security Forces, as part of the APF support to AMISOM. 
The envisaged entity has been selected using the following criteria: UNOPS expertise and presence 
in the area of operations. 
5.4.3.6  Indirect management with an international organisation: United Nations 
Support Office in Somalia 
A part of this action may be implemented in indirect management with the UN Support Office in 
Somalia (UNSOS). This implementation entails logistical and operational support to the Somali 
Security Forces, as part of the APF support to AMISOM.  
The envisaged entity has been selected using the following criteria: UNSOS expertise and presence 
in the area of operations. 
5.4.3.7  Indirect management with a regional organisation 
A part of this action with the objective of "improving conflict management through the deployment 
of peace support operations by the AUC" may be implemented in indirect management with the 
AUC, according to the following modalities: 
The regional organisation will act as the contracting authority for the procurement and grant 
procedures. The Commission will control ex-ante all the procurement and grant procedures. 
 
8458/19  
 
KH/br 
35 
ANNEX 
RELEX.1.B 
 
EN 
 

 
Payments are executed by the Commission. 
The responsible authorising officer will ensure that this entity complies with the conditions of 
points (a) to (d) of Article 154(4) of Regulation (EU, Euratom) 2018/1046 applicable in accordance 
with Article 15 of Council Regulation (EU) 2018/1877. Where it complies with those requirements 
only in part, the Commission will take appropriate remedial measures to supervise and support the 
implementation of the tasks entrusted to them. 
The AUC underwent the assessment under Regulation (EU, Euratom) No 966/2012. The results of 
this review were not satisfactory for the procurement, accountancy and sub-delegation pillars. The 
Commission therefore negotiated a new AUC-EC Aide-Mémoire on measures to strengthen 
financial management of the AUC that contains a series of engagements, including remedial 
measures that had been agreed in previous Aide-Mémoires signed in 2009 and 2011. The new Aide-
Mémoire was signed on 14 April 2016 and revised on 24 May 2017 to account for progress 
achieved by the AUC. Its provisions include the implementation of a pillar assessment roadmap, 
and regular communication of the AUC’s audited financial statements as well as information on 
actual expenditures, accounts and the detailed financial situation of the AUC as an organisation to 
the EC. Annex II of the revised Aide-Mémoire contains remedial measures that are to be included 
in the Special Conditions of all contracts signed between the Commission, on behalf of the 
European Union, and the AUC. The pillar assessment roadmap is regularly monitored by the same 
team of external consultants that organised the pillar assessment in 2015.    
5.4.3.8  Changes from indirect to direct management mode due to exceptional 
circumstances 
In very exceptional cases, where the envisaged entity has revealed lacking specific expertise and 
capacity to manage the procurement foreseen for the implementation of a particular PSO, and where 
no other alternative can provide a viable solution, the Commission may implement part of Specific 
Objective 3 of this Action Programme through procurement in direct management
 
8458/19  
 
KH/br 
36 
ANNEX 
RELEX.1.B 
 
EN 
 



 
 
Scope of geographical eligibility for procurement and grants 
The geographical eligibility in terms of place of establishment for participating in procurement and 
grant award procedures and in terms of origin of supplies purchased as established in the basic act 
and set out in the relevant contractual documents shall apply. In this respect, the AUC will make 
sure that the above-mentioned geographical eligibility rules are complied with when applying its 
own procurement rules. 
The Commission’s authorising officer responsible may extend the geographical eligibility on the 
basis of urgency or of unavailability of products and services in the markets of the countries 
concerned, or in other duly substantiated cases where the eligibility rules would make the 
realisation of this action impossible or exceedingly difficult. 
 
Indicative budget 
 
EU contribution 
(amount in EUR) 
of which
• 75 522.39 from the Grand 
Duchy of Luxembourg 
through a transfer agreement 
to be signed  
• 69 284.06 from the Czech 
Republic through a transfer 
agreement to be signed 
Specific Objective 1: The conflict prevention, management 
52 069 284.06 
and resolution structures and mechanisms of the African 
Peace and Security Architecture are improved, composed of 
5.4.1.1 Procurement (direct management)  
1 500 000 
5.4.1.2 Indirect management with a regional organisation  
40 569 284.06 
5.4.1.3 Indirect management with an international organisation – 
10 000 000 
OHCHR 
 
8458/19  
 
KH/br 
37 
ANNEX 
RELEX.1.B 
 
EN 
 

 
 
Specific Objective 2: Conflict prevention and early response 
25 000 000 
by the AUC and the RECs/RMs are improved, composed of 
5.4.2.1 Indirect management with a regional organisation 
25 000 000 
Specific objective 3: Conflict management through the 
705 075 522.39 
deployment of peace support operations by the AUC and 
African regional organisations is improved, composed of 
5.4.3.1 Grants (direct management) 
 
5.4.3.2 Indirect management with a Member State Organisation 
5.4.3.3 Indirect management with an international organisation – 
UN OHCHR 
5.4.3.4 Indirect management with an international organisation – 
UN Secretariat 
5.4.3.5 Indirect management with an international organisation – 
UNOPS 
5.4.3.6 Indirect management with an international organisation – 
UNSOS 
5.4.3.7 Indirect management with a regional organisation 
Evaluation, (cf. section 5.9), Audit / Expenditure Verification 
2 000 000 
(cf. section 5.10) 
Communication and visibility (cf. section 5.11) 
1 000 000 
Contingencies 
15 000 000 
Totals 
800 144 806.45 
The APF will continue to be open to additional voluntary contributions from EU Member States 
and from other donors, managed in line with Council Regulation (EU) 2018/1877 of 26 November 
2018 on the financial regulation applicable to the 11th European Development Fund, to promote 
coherence and reduce transaction costs and administrative burden for the African partners. 
 
8458/19  
 
KH/br 
38 
ANNEX 
RELEX.1.B 
 
EN 
 

 
Additional voluntary contributions to the Action Programme, each of which up to EUR 10 000 000 
not exceeding 20 % of the maximum contribution of the European Union for the implementation of 
the programme shall not be considered as specific changes to the Action Programme to the effect of 
Article 15(b) of Council Regulation 2015/322 of 2 March 2015 on the implementation of the 11th 
European Development Fund. Therefore, the authorising officer responsible may adopt such non-
substantial changes in accordance with the principles of sound financial management and 
proportionality. 
Retroactive financing 
In order to prevent delays and avoid gaps in funding, the implementing partners may pre-finance 
certain activities from 1 January 2019, in accordance with Article 19 of Annex IV of the Cotonou 
Agreement. Retroactive financing will only be permitted for expenditures incurred after the date of 
request by the beneficiary of the specific actions under this Action Programme, which shall be 
mentioned in the Special Conditions of the grant contracts or indirect management delegation 
agreements to be signed with the implementing partners. 
Eligibility of costs  
An indicative list of eligible expenditure includes: per diems, troop allowances, salaries for the 
civilian component of PSOs, rations, medical consumables and facilities, transport, travel, fuel, as 
well as communication services and equipment. The following constitutes an indicative list of non-
eligible expenditure: ammunition, arms and specific military equipment, spare parts for arms and 
military equipment, salaries for soldiers, and military training for soldiers. 
 
8458/19  
 
KH/br 
39 
ANNEX 
RELEX.1.B 
 
EN 
 


 
For the reimbursement of costs related to the deployment of troops to African-led PSOs, lump sums 
will be used, in accordance with the principles of sound financial management and on the basis of 
the methodology used by the UN to calculate the average cost per soldier per month. This 
methodology separates such costs into five sub-items, three of which are eligible for financing 
under the APF (allowances; pre-deployment medical examinations, tests and vaccinations; inland 
travel to move a contingent to the point of disembarkation to the peace operation). As for the 
amount of the lump sum, taking into account the outcome of the discussions in the EU Political and 
Security Committee of 7 July 2015,41 an amount of EUR 738 per soldier per month is fixed as the 
maximum. Payment will be made to the governments of the troop contributing countries (TCCs) or 
directly to troops on the ground depending on arrangements with TCCs. 
A Memorandum of Understanding signed between the implementing partner and the TCCs, 
governing, inter alia, the disbursement of funds to the TCCs, will be established at the beginning of 
an operation and updated when and if necessary. The Memorandum of Understanding will 
explicitly mention the list of non-eligible expenditures, and the TCCs' responsibility to provide in a 
timely manner all the supporting documents requested by auditors engaged either by the 
Commission or by the implementing partner. 
 
Organisational set-up and responsibilities 
Coordination with the AU and RECs/RMs takes place within the institutional framework foreseen 
in the JAES, complemented by the AUC-EC Aide-Mémoire, which foresees an annual Joint 
Coordination Committee (JCC) at political level and quarterly Aide-Mémoire Steering Committee 
meetings at senior official level. 
The JCC, including representatives of the EU from Commission services and the EEAS, and of the 
AU/RECs/RMs, will be responsible for providing strategic guidance for the implementation of 
support under the APF. The JCC is chaired jointly by the AUC and the EU. AU and EU member 
states will be fully informed on the outcomes of the JCC meetings and could also be associated to 
the meetings on an ad hoc basis, as has been the practice in the past. 
                                                 
41 
The conclusions of the EU Political and Security Committee of 7 July 2015 refer to a ceiling 
of the APF-funded troop allowance of 80% of the UN rate at that time (USD 1 028). 
 
8458/19  
 
KH/br 
40 
ANNEX 
RELEX.1.B 
 
EN 
 


 
In addition, the AUC and the Commission have set up the Aide-Mémoire Steering Committee to 
facilitate the effective oversight of the implementation of EU-funded actions by the AUC, as well as 
progress made regarding the implementation of the commitments contained in the Aide-Mémoire. 
The Aide-Mémoire Steering Committee is composed of representatives of the AUC and the 
Commission. 
Technical meetings, as appropriate, will prepare the JCC and Aide-Mémoire Steering Committee. 
Regular information meetings on the implementation of this Action Programme gathering relevant 
Commission and EEAS services will be organised. 
 
Performance and Results monitoring and reporting 
The day-to-day technical and financial monitoring of the implementation of this action will be a 
continuous process, and part of the implementing partner’s responsibilities. To this aim, the 
implementing partner shall establish and maintain a permanent internal, technical and financial 
monitoring system for the action and elaborate regular progress reports, no less than annually, and 
final reports. Every report shall provide an accurate account of the implementation of the action, 
difficulties encountered, changes introduced, as well as the degree of achievement of its results 
(outputs and direct outcomes) as measured by corresponding indicators, using as reference the 
Logframe matrix. Wherever feasible, monitoring and evaluation should be gender sensitive, and 
assess the implementation of rights-based approach working method principles (Participation, Non-
discrimination, Accountability and Transparency). Monitoring and evaluation are to be based on 
indicators that are disaggregated by sex and age. 
SDGs indicators and, if applicable, any jointly agreed indicators as for instance per Joint 
Programming document should be taken into account. 
The report shall be laid out in such a way as to allow monitoring of the means envisaged and 
employed and of the budget details for the action. The final report, narrative and financial, will 
cover the entire period of the action implementation. 
The Commission may undertake additional project monitoring visits both through its own staff and 
through independent consultants recruited directly by the Commission for independent monitoring 
reviews (or recruited by the responsible agent contracted by the Commission for implementing such 
reviews). 
 
8458/19  
 
KH/br 
41 
ANNEX 
RELEX.1.B 
 
EN 
 



 
Enhanced coordination with the EU Delegation to the AU, as well as with regional Delegations and 
with the Delegations in countries where actions are implemented will be ensured. 
 
Evaluation  
Having regard to the importance and nature of the action, a final evaluation will be carried out for 
this action and/or its components via independent consultants contracted by the Commission.  
It will be carried out for accountability and learning purposes at various levels (including for policy 
revision), taking into account in particular the fact that this evaluation can serve to inform the 
design of follow-up instruments to the APF post-2020. 
The Commission shall inform the implementing partner at least one month in advance of the dates 
foreseen for the evaluation missions. The implementing partner shall collaborate efficiently and 
effectively with the evaluation experts, and inter alia provide them with all necessary information 
and documentation, as well as access to the project premises and activities. 
The evaluation reports shall be shared with the implementing partner and other key stakeholders. 
The implementing partner and the Commission shall analyse the conclusions and recommendations 
of the evaluations and jointly decide on the follow-up actions to be taken and any adjustments 
necessary, including, if indicated, the reorientation of the project. 
The budget of this action programme includes an evaluation provision which the Commission will 
use, inter alia, to organise a final evaluation of this action programme. It is foreseen that evaluation 
services may be contracted under a framework contract. 
  Audit 
Without prejudice to the obligations applicable to contracts concluded for the implementation of 
this action, the Commission may, on the basis of a risk assessment, contract independent audits or 
expenditure verification assignments for one or several contracts or agreements. 
The budget of this action programme includes an audit provision which the Commission will use to 
organise external audits of operations financed under this programme, whenever deemed necessary. 
It is foreseen that audit services may be contracted under a framework contract. 
 
8458/19  
 
KH/br 
42 
ANNEX 
RELEX.1.B 
 
EN 
 


 
  Communication and visibility 
Communication and visibility of the EU is a legal obligation for all external actions funded by the 
EU.  
This action shall contain communication and visibility measures which shall be based on a specific 
Communication and Visibility Plan of the Action, to be elaborated at the start of implementation. 
In terms of legal obligations on communication and visibility, the measures shall be implemented 
by the Commission, the partner organisations, contractors, grant beneficiaries and/or entrusted 
entities. Appropriate contractual obligations shall be included in, respectively, the financing 
agreement, procurement and grant contracts, and delegation agreements.  
The Communication and Visibility Requirements for European Union External Action (or any 
succeeding document) shall be used to establish the Communication and Visibility Plan of the 
Action and the appropriate contractual obligations. 
A contract financed under the 2017-2018 Action Programme of the APF aiming at implementing an 
APF communication strategy is ongoing since in December 2017 and will run until July 2019. As 
such, it ought to be considered as the initial Communication and Visibility Plan of the Action. An 
extension of this contract may be considered to cover the duration of this Action. 
It is foreseen that a contract for communication and visibility may be contracted under a framework 
contract. 
 
 
8458/19  
 
KH/br 
43 
ANNEX 
RELEX.1.B 
 
EN 
 

 
APPENDIX I - DECISION-MAKING PROCEDURES FOR THE AFRICAN PEACE FACILITY,  2019-2020 
As a general rule, the formal decision-making process for each action funded by the APF will be 
launched upon a request from the AU or from a REC/RM or sub-regional organisation carrying out 
a peace and security operation with an AU PSC mandate. When a REC/RM or a sub-regional 
organisation carrying out a peace and security operation with an AU PSC mandate requests an 
initiative, this initiative shall require the political approval of the AU. Peace Support Operations 
funded by the APF should be consistent with UN principles and objectives. In this respect, 
endorsement in the broadest sense should be sought from the UN system, in accordance with the 
UN Charter, in particular Chapters VII and VIII. While seeking this UN endorsement, the decision-
making should, however, be flexible enough to advance with regard to the provision of funding. 
The following procedures will apply to APF–funded interventions: 
1) Standard procedure 
Upon a request from the AU or a REC/RM or a sub-regional organisation carrying out a peace and 
security operation with an AU PSC mandate, the EEAS and Commission services will present a 
joint information note on the intervention envisaged including recommendations to the relevant 
Council working groups and will seek the approval of the Political and Security Committee (PSC) 
on the political appropriateness of the requested intervention.  
For support to new Peace Support Operations, once the request has been endorsed by the PSC, the 
Commission will launch its internal decision-making process. In case of (i) an extension or renewal 
of support to an existing Peace Support Operation, or (ii) support to the operationalisation of the 
APSA, no new Commission Decision will be needed. 
2) Early Response Mechanism (ERM) 
The ERM will finance interventions that require immediate financial support due to their nature of 
responding to urgent and unforeseen needs in crisis situations. The maximum duration of mediation 
and political negotiation initiatives is 24 (12+12) months, while the maximum duration of any other 
urgent unforeseeable action is 9 (6+3) months. In both cases, extensions beyond the initial duration 
of an initiative have to be duly justified. 
 
8458/19  
 
KH/br 
44 
ANNEX 
RELEX.1.B 
 
EN 
 

 
Upon receipt of a request from the AU or a REC/RM, the EEAS and Commission services will 
assess the request and decide jointly on the appropriateness of funding the requested initiative. No 
new Commission Decision will be required to finance individual initiatives under the ERM. The 
PSC and the relevant Council working groups will be kept informed on activities supported by the 
ERM. 
Further details on the scope of the ERM, as well as the principles and procedures for its 
implementation are set out in the ERM Implementing Guidelines. 
3) Audit, monitoring, evaluation, technical assistance and visibility  
Operational activities such as audit, monitoring, evaluation, technical assistance, lessons learned 
and visibility will be decided by the Commission in consultation with the EEAS and will not be 
submitted to the decision-making process required for other actions under the APF Action 
Programme. 
 
 
8458/19  
 
KH/br 
45 
ANNEX 
RELEX.1.B 
 
EN 
 

 
APPENDIX II - INDICATIVE LOGFRAME MATRIX  
 
Results chain: 
Indicators 
Sources of data 
Assumptions 
Main expected results (maximum 10) 
(at least one indicator per expected result) 
O.O: To reduce the incidence, duration and 
1. Number of violent conflict-related deaths per 
1. Uppsala Conflict Data 
Not applicable 
intensity of violent conflicts in Africa. 
year in Africa 
Program (UCDP) 
2. Number of violent conflicts per year in Africa 
2. Heidelberg Conflict 
Impact 
Barometer (HIIK) 
(Overall 
Objective) 
3. Intensity of violent conflicts per year in Africa 
3. Heidelberg Conflict 
Barometer (HIIK) 
4. Duration of violent conflicts in Africa 
4. Heidelberg Conflict 
Barometer (HIIK) 
S.O.1: The conflict prevention, management 
1.1 To be completed (ex: number of African-led 
1.1 To be completed  
Africa experiences 
and resolution structures and mechanisms of 
PSOs implementing ASF doctrines; number of 
progressive socio-economic 
 
Outcomes 
the African Peace and Security Architecture are  strategic planning sessions involving the 
development and improved 
(Specific 
improved 
PLANELMs; number of Strategic CONOPS and 
welfare of its citizen. 
 
Objectives) 
support plans reviewed or drafted) 
Peace and security remains a 
 
S.O.2: Conflict prevention and early response 
2.1 Number of conflict prevention initiatives by the 
2.1 APSA Impact Report  priority area of EU-
by the AUC and the RECs/RMs are improved 
AUC and the RECs compared to the number of 
(IPSS / GIZ) 
AU/RECs/RMs cooperation. 
conflicts eligible for intervention by APSA actors.  
The APSA remains the 
 
8458/19  
 
KH/br 
46 
ANNEX 
RELEX.1.B 
 
EN 
 

 
framework within which 
 
2.2 Level of quality of these initiatives (as per the 
2.2 APSA Impact Report  challenge to peace and 
IPSS / GIZ methodology). 
(IPSS / GIZ) 
 
security in Africa will be 
addressed. 
2.3 Level of effectiveness of these initiatives (as per  2.3 APSA Impact Report 
 
the IPSS / GIZ methodology). 
(IPSS / GIZ) 
 
 
 
S.O.3: Conflict management through the 
3.1 Number of peace support operations deployed 
3.1 APSA Impact Report 
deployment of peace support operations by the 
by the AUC and the African regional organisations 
(IPSS / GIZ) 
 
AUC and African regional organisations 
compared to the number of conflicts eligible for 
conflict is improved 
intervention by APSA actors. 
3.2 Level of quality of these interventions (as per 
3.2 APSA Impact Report 
the IPSS / GIZ methodology). 
(IPSS / GIZ) 
3.3 Level of effectiveness of these interventions (as 
3.3 APSA Impact Report 
per the IPSS / GIZ methodology). 
(IPSS / GIZ) 
S.O.1 – O.1: Targeted outputs of the 2016-2020  1.1.1 To be completed at contract level (ex: status 
1.1.1 Reports from 
Decisions of the AU PSC 
APSA Roadmap are delivered 
of legal arrangements and procedures for the 
capacity building 
are implemented. 
employment of the ASF by the AUC and REC/RMs) 
contracts 
Outputs  
S.O.1 – O.2: AUC-RECs/RMs coordination in 
2.1.1 To be completed at contract level (ex: number  2.1.1 Reports from 
No threat or eruption of a 
the area of peace and security is improved 
of coordination meetings organised) 
capacity building 
violent conflict among 
contracts 
Member States of the AUC 
 
 
and/or of any given African 
 
regional organisation. 
 
8458/19  
 
KH/br 
47 
ANNEX 
RELEX.1.B 
 
EN 
 

 
S.O.1 – O.3: A HR/IHL compliance framework  3.1.1 To be completed at contract level (ex: status 
3.1.1 Reports from 
The AUC continues to 
applicable to all African-led PSOs is 
of the HR/IHL compliance framework applicable to  capacity building 
implement the Aide-
established 
all African-led PSOs) 
contracts 
Mémoire on strengthening 
financial management. 
S.O.2 – O.4: AUC and REC/RM initiatives are 
4.1.1 To be completed at contract level (ex: number  4.1.1Reports from ERM 
The AUC remains 
carried out in the areas of mediation, shuttle 
of AUC and RECs/RMs initiatives carried out in the  contracts and initiatives 
committed to improve the 
diplomacy, fact-finding missions and/or the set-
area of mediation) 
HR/IHL compliance of 
up phase of a peace support operation 
African-led PSOs. 
For each PSO, a Strategic 
S.O.3 – O.5: Forces of African-led PSOs are 
5.1.1 To be completed at contract level (ex: number  5.1.1 Reports from PSO 
CONOPS is in place, 
prepared, deployed and undertake the tasks 
of forces of African-led PSOs deployed) 
contracts 
relevant and implemented.  
mandated in the relevant Strategic CONOPS 
AU Member States continue 
to provide troops for PSO 
deployments. 
 
 
8458/19  
 
KH/br 
48 
ANNEX 
RELEX.1.B 
 
EN 
 

Document Outline