The Democratic Republic of Congo:
Background and Current Developments
Ted Dagne
Specialist in African Affairs
June 4, 2010
Congressional Research Service
7-5700
www.crs.gov
R40108
CRS Report for Congress
P
repared for Members and Committees of Congress
The Democratic Republic of Congo: Background and Current Developments
Summary
In October 2008, the forces of the National Congress for the Defense of the Congolese People
(CNDP), under the command of General Laurent Nkunda, launched a major offensive against the
Democratic Republic of Congo Armed Forces (FARDC) in eastern Congo. Within days, the
CNDP captured a number of small towns and Congolese forces retreated in large numbers.
Eastern Congo has been in a state of chaos for over a decade. The first rebellion to oust the late
President Mobutu Sese Seko began in the city of Goma in the mid-1990s. The second rebellion in
the late 1990s began also in eastern Congo. The root causes of the current crisis are the presence
of over a dozen militia and extremist groups, both foreign and Congolese, in eastern Congo, and
the failure to fully implement peace agreements signed by the parties. Over the past 14 years, the
former Rwandese armed forces and the Interhamwe militia have been given a safe haven in
eastern Congo and have carried out many attacks inside Rwanda and against Congolese civilians.
A Ugandan rebel group, the Lord’s Resistance Army (LRA), is also in Congo, despite an
agreement reached between the LRA and the Government of Uganda.
In November 2008, United Nations Secretary General Ban Ki-Moon appointed former Nigerian
President Olusegun Obasanjo as his envoy to help broker a peace agreement to end the crisis in
eastern Congo. Since his appointment, Obasanjo has met with Congolese President Joseph
Kabila, General Nkunda, Rwandan President Paul Kagame, and other officials in the region. The
parties have agreed to participate in a U.N.-led peace initiative. The crisis in eastern Congo has
displaced an estimated 2.1 million Congolese, according to United Nations High Commissioner
for Refugees (UNHCR). Other regions of Congo have also been affected by sporadic violence.
In late 2008, the governments of Rwanda and Congo agreed on a wide range of issues. The two
governments agreed to launch a joint military offensive against the National Congress for the
Defense of the Congolese People (CNDP) and the Democratic Forces for the Liberation of
Rwanda (FDLR). They also agreed to restore full diplomatic relations and to activate economic
cooperation. In January 2009, Rwanda and Congo launched the joint military operation in eastern
Congo. In late February Rwandese forces pulled out of Congo as part of an agreement reached
with Congo.
The United States has been actively engaged in facilitating the Tripartite Plus talks among the
four key players in the Great Lakes region: Rwanda, DRC, Burundi, and Uganda. The Tripartite
Plus process has led to a number of agreements over the past several years, including the creation
of a Joint Verification Mechanism (JVM) to address cross-border issues. The United States
provided $205.1 million in FY2008 and $111.6 million in FY2009. The DRC received a total of
$296.5 million in FY2009 and an estimated $183 million in FY2010. The Obama Administration
has requested $213.2 million for FY2011.
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The Democratic Republic of Congo: Background and Current Developments
Contents
Recent Developments.................................................................................................................. 1
Background: The Crisis in DRC .................................................................................................. 2
Regional Issues: Background and Recent Agreements ........................................................... 3
Political Developments ............................................................................................................... 4
Rwanda, DRC, and the CNDP............................................................................................... 5
Former Rwandan Forces in DRC........................................................................................... 6
Joint Military Operations............................................................................................................. 7
Umoja Wetu .......................................................................................................................... 7
Operation Kimia II................................................................................................................ 7
Amani Leo (Peace Today) ..................................................................................................... 8
MONUC: Overview.................................................................................................................... 8
The Role of MONUC in the Current Crisis............................................................................ 9
MONUC: Human Rights Concerns ....................................................................................... 9
Human Rights Conditions ......................................................................................................... 10
Economic Conditions ................................................................................................................ 11
U.S.-Congo Relations ............................................................................................................... 11
U.S. Assistance to Congo .......................................................................................................... 12
Figures
Figure 1. Congo ........................................................................................................................ 12
Contacts
Author Contact Information ...................................................................................................... 13
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The Democratic Republic of Congo: Background and Current Developments
Recent Developments
In early June 2010, the leader of the Voice of the Voiceless in the DRC, Floribert Chebeya, was
found dead in his car. Mr. Chebeya was a well known human rights advocate. He had expressed
concern about his safety in recent months. The State Department offered the DRC government
help in the investigation. U.N. Secretary General Ban Ki-moon said in a statement that “his work
will be remembered as a tribute to Congolese perseverance.” Ban Ki-moon also called for a
transparent and independent investigation.
In January 2010, the United Nations High Commissioner for Refugees (UNHCR) said that it was
providing assistance to over 100,000 civilians from eastern Congo. United Nations officials report
that an estimated 2.1 million people are displaced throughout the Democratic Republic of Congo.
In a September 2009 report to the United Nations Security Council, Secretary General Ban Ki-
moon stated that the “humanitarian situation remained precarious during the reporting period due
to large-scale population displacements, human rights violations by armed men, including rapes,
killings and lootings; impeded humanitarian access; and security incidents against humanitarian
workers.”1
In December 2009, the United Nations Security Council extended the mandate of the U.N.
Organization Mission in DRC (MONUC) until May 2010, a six-month extension. The U.N.
Secretary General was also requested to conduct strategic review about conditions on the ground.
Security Council Resolution 1906 stated that “the linkage between the illicit exploitation and
trade of natural resources and the proliferation and trafficking of arms is one of the major factors
fuelling and exacerbating conflicts in the Great Lakes region, particularly in the Democratic
Republic of Congo.” The resolution also called for the protection of civilians and for MONUC to
use all necessary means to carry out its mandate.
In August 2009, Secretary of State Hillary Clinton visited Kinshasa and Goma in eastern Congo.
At a press conference with Foreign Minister Alexis Thambwe, Secretary Clinton stated that “the
DRC, its government, and the people face many serious challenges, from the lack of investment
and development to the problem of corruption and difficulties with governance to the horrible
sexual and gender-based violence visited upon the women and children in the country.” The
Secretary assured the Minister that the United States will help the DRC government address these
challenges.
In late 2008, the governments of Rwanda and Congo agreed on a wide range of issues. The two
governments agreed to launch a joint military offensive against the National Congress for the
Defense of the Congolese People (CNDP) and the FDLR. They also agreed to restore full
diplomatic relations and to activate economic cooperation. In January 2009, Rwanda and Congo
launched the joint military operation in eastern Congo. The military operation dislodged and
seriously weakened the CNDP forces. In January, the leader of the CNDP, General Laurent
Nkunda, was arrested inside Rwanda, after he fled eastern Congo. The FDLR forces were also
dislodged from their stronghold in north Kivu and forced to retreat.
1 http://www.un.org/documents/repsc.htm
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In late February 2009, Rwandese troops pulled out of Congo as part of the agreement with the
Kabila government. The DRC government has requested the extradition of General Nkunda.
Nkunda remained under arrest in Rwanda as of early May 2009. In May 2009, the DRC
Parliament passed a bill granting amnesty to militias, although the bill excludes amnesty for those
accused of war crimes like General Nkunda. Meanwhile, remnants of the FDLR continue to target
Congolese civilians. In late April 2009, United Nations officials accused the FDLR of committing
serious atrocities against civilians in Luofu, a town north of Goma.
According to the June 2009 U.N. Secretary General report, “the overall situation in the
Democratic Republic of Congo continued to pose many challenges. In eastern part of the country,
despite an improved political environment and expanded State presence, the security situation
remained very volatile and the humanitarian situation deteriorated.” Foreign armed groups
continue to terrorize the civilian population in DRC. More than 1,000 women are raped each
month in eastern Congo, according to U.N. officials and international observers.
Background: The Crisis in DRC
The DRC, formerly Zaire, has been in political turmoil for years. In May 1997, the Alliance of the
Democratic Forces for the Liberation of Congo-Zaire (AFDL), with the support of Rwanda and
Uganda, marched into Kinshasa and ousted longtime dictator Mobutu Sese Seko. Within one
year, tensions between then-President Laurent Kabila and his Rwandan and Ugandan allies began
to mount. In August 1998, open conflict erupted between Kabila and Congolese forces supported
by Rwanda. Angola, Namibia, and Zimbabwe joined the fighting in support of Kabila.
DRC at a Glance
• Population: 68.6 million
• Independence: 1960 from Belgium
• Area: Slightly less than one-fourth the size of the United States
• Ethnicity: Over 200 ethnic groups, majority Bantu
• Religions: 50% Catholic, 20% Protestant, 10% Kimbanguist (Syncretic), 10%
Muslim, 10% other/indigenous
• Languages: French (official)
• GDP (purchasing power parity): $21 billion
• GDP per capita: $300 (2008)
CIA World Factbook, 2009
In July 1999, at a summit in Lusaka, Zambia, the leaders of Uganda, Rwanda, Congo, Zimbabwe,
Namibia, and Angola signed a peace agreement. The withdrawal of foreign forces from Congo
was one of the key elements of the Lusaka Accords. The Accords also called for political dialogue
among Congolese political and armed groups to settle their differences peacefully and to map out
a new political chapter for Congo. The former President of Botswana, Sir Ketumile Masire, was
appointed to facilitate the talks. In January 2001, President Kabila was assassinated by a member
of his security guards. A few weeks later, his son, Joseph Kabila, was sworn in as president. By
late 2002, after a series of South African-U.N.-sponsored talks, foreign troops in DRC withdrew
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their forces. In December 2002, the Inter-Congolese Dialogue achieved a major breakthrough
when President Kabila and the parties to the conflict agreed to a transitional government. The All-
Inclusive Agreement was signed in Pretoria, South Africa by the DRC government, Congolese
Democratic Rally (RCD-Goma), the Movement for the Congolese Liberation (MLC), and
representatives of the unarmed political groups. The agreement called for a transitional
government headed by President Kabila and four Vice Presidents. In July 2003, the four Vice
Presidents were sworn in, and the event was considered by some observers to be an historic step
towards peace in the DRC.
Regional Issues: Background and Recent Agreements
The 2002 Pretoria Agreement between Rwanda and DRC led to significant improvement in
border security in the Great Lakes region. The agreement called for a cessation of hostilities, an
inter-Congolese dialogue, withdrawal of foreign forces, and disarmament of the “negative
forces”. The parties have implemented all of these agreements and a number of the armed groups
have been demobilized. On September 22, 2004, the governments of DRC and Rwanda signed
the terms of reference for a Joint Verification Mechanism (JVM), an agreement designed to
address cross-border issues, specifically to deal with the threats of the Interhamwe and ex-FAR
(former Rwandese Armed Forces), groups responsible for the 1994 genocide in Rwanda.
The Mechanism consists of a Joint Verification Team of experts from the parties, representatives
from MONUC and the African Union. In October 2004, the group had its first meeting, and in
late November the parties adopted operational procedures for the Joint Verification Teams. In
addition, the United States has been facilitating Tripartite Plus talks among the key regional
players: DRC, Rwanda, Uganda, and Burundi. The parties agreed that the most serious threat to
regional stability is the presence of the negative forces in DRC. In order to deal with this threat,
the parties established a Tripartite Joint Commission and agreed to disarm, demobilize, and
repatriate foreign armed groups.
The governments of Rwanda and DRC cooperate on a wide range of issues, including on security
matters. Rwanda helped facilitate dialogue between the Kabila government and some political
groups in DRC on issues related to the 2006 elections. Moreover, Rwanda agreed to help find a
political solution with General Nkunda, as requested by President Kabila. But the process did not
go far because the Kabila government launched a campaign against General Nkunda. Kagame
stated in August 2007 that he remains very concerned about the activities of the remnants of the
Interhamwe and FDLR forces. He asserted that these forces are currently reorganizing in eastern
Congo.2
In November 2007, the governments of the DRC and Rwanda signed an agreement in Kenya “on
a common approach to end the threat posed to peace and stability” in the Great Lakes region. The
parties agreed to end political and material support to armed groups in the region. The
government of the DRC agreed to disarm the ex-FAR and Interhamwe militia and to hand over
those individuals wanted by the government of Rwanda and International Criminal Tribunal for
Rwanda (ICTR). According to the agreement, those who do not wish to return to Rwanda will be
placed in a camp away from the border until a solution is found. In January 2007, several dozen
rebel groups and the DRC government signed the Goma Accord, primarily focused on ending the
2 Ted Dagne’s interview with President Kagame, August 2007.
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violence in Eastern Congo. Since the signing of the agreement, while progress has been made,
there have been a number of reports of ceasefire violations and sexual violence against civilians.
Political Developments
Some progress has been made over the past several years in moving the DRC from political
instability and civil war to relative stability and limited democratic rule, although eastern Congo
remains a region marred by civil strife. The international community has been actively engaged in
support of the transitional process, conflict resolution, and democracy promotion. On July 30,
2006, the DRC held its first presidential and parliamentary multi-party elections in almost four
decades. Regional, local, and international observers monitored the elections. More than 19
million Congolese were registered to vote in the 2006 elections, including 2.9 million in
Kinshasa, the capital. In the presidential elections, there were 33 presidential candidates, while an
estimated 9,707 candidates ran for the 500-seat parliament. There were an estimated 50,000
polling stations for the 25.6 million registered eligible voters. According to Congolese and
international observers, the elections were largely peaceful and well managed, considering the
logistical and other challenges, although post-election conditions were not properly managed in
some areas.3 In parliament, no party emerged with a majority, while none of the candidates in the
presidential elections secured the necessary 50% of the vote. In October 2006, President Joseph
Kabila defeated Jean-Pierre Bemba in the second round of presidential elections. On December 6,
2006, President Kabila was sworn in as president. The next presidential elections are scheduled
for 2011.
The DRC faces serious challenges, despite progress in some areas and relative stability in most
regions of the country. Relations between the DRC and its neighbors have improved over the past
two years, largely due to facilitation by the United States of the Tripartite Plus process, a policy
initiative aimed at regional stability and cooperation. The four key regional participants in the
process are DRC, Uganda, Rwanda, and Burundi. Despite progress in regional security, insecurity
in parts of the DRC, especially in the east of the country, continues to pose a serious threat to
political stability in the Great Lakes region. Relations between DRC and Burundi are warm.
Uganda upgraded its diplomatic presence to ambassadorial level over a year ago. Relations with
Rwanda have improved as well.
The presence of armed groups in parts of Congo is a major source of instability. The Special
Representative of the Secretary General of the U.N. reportedly stated that, while there are many
challenges facing Congo, conditions have improved in some parts of eastern Congo since the
handover of two militia leaders to the International Criminal Court (ICC) for trial. In October
2007, the DRC government transferred former Ituri militia leader Germain Katanga to the ICC in
the Hague. In February 2008, Congolese authorities arrested and later transferred to ICC custody
Mathieu Ngudjolo Chui, former chief of staff of the Front for National Integration (FNI). In
March 2006, Thomas Lubanga Dyilo, the leader of the Union of the Congolese Patriots (UPC),
was handed over to the ICC.
The presence of the Lord’s Resistance Army militia, a Ugandan rebel force, in the Garamba
National Park in eastern Congo was a major source of tension between Uganda and DRC over the
past several years. In September 2007, Uganda and DRC signed an agreement in Arusha,
3 The author met with a number of Congolese officials and election observers in DRC in 2006.
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Tanzania, to cooperate on a wide range of issues, including removing the LRA from Congo. In
October 2007, the third-highest-ranking LRA official, Opio Makasi, surrendered to MONUC and
was later transferred to Congolese authorities. In November 2007, Congolese and MONUC
officials handed over Makasi to Ugandan authorities, who reportedly provided amnesty. President
Kabila has stated on a number of occasions that his government will force the LRA out of DRC.4
In March 2007, the Congolese army and Bemba’s militia clashed in Kinshasa, forcing Bemba to
flee to the South African embassy. In April, Bemba was allowed to leave for Portugal with his
family. Bemba’s departure may have resolved the crisis in the short term, although his supporters
and militia could become a source of instability. Bemba demanded that he be allowed to return to
Congo in order to participate in the political process where his party controls 20% of the seats in
the National Assembly. Bemba saw his forced exile as a sign that Congo might be returning to a
one-man rule.5 In May 2008, Bemba was arrested in Belgium for alleged war crimes committed
by his group in the Central African Republic (CAR) and was handed over to the ICC.
Rwanda, DRC, and the CNDP
In October 2008, the National Congress for the Defense of the People (CNDP), under the
command of General Laurent Nkunda, launched a major offensive against the DRC Armed
Forces (FARDC) in eastern Congo. Within days, the CNDP captured a number of small towns,
and Congolese forces retreated in large numbers. MONUC also withdrew from some areas and
pulled most of its forces into Goma. In late October, General Nkunda declared a unilateral cease-
fire and ordered his forces to remain outside Goma. The cease-fire was violated in subsequent
weeks by both sides, although fighting did not spread to other parts of Congo. On November 19,
2008, the CNDP withdrew from two areas in eastern Congo in order to create humanitarian
corridors.
The DRC government initially accused Rwanda of supporting General Nkunda, although a few
days later in a meeting in Rwanda, Congolese officials did not bring this issue up with senior
Rwandan officials. Rwanda consistently argued that its forces, while deployed along the Rwanda-
DRC border, did not cross into Congolese territory, a position supported by U.S. and United
Nations officials.6 Congolese officials, however, argue that Rwandan soldiers were captured
inside Congo.7 In late October, at the height of the crisis, Congolese Foreign Minister Alexis
Thambwe Mwamba paid a visit to Kigali and met with President Paul Kagame and other
Rwandan leaders. At that meeting, the minister did not raise the issue of Rwanda’s alleged
involvement in support of Nkunda.8 A few days later, Rwandan Foreign Minister Rosemary K.
Museminari visited Kinshasa and met with Congolese officials as well as other foreign leaders.
In subsequent weeks, a number of foreign officials visited the Great Lakes region in an effort to
find a peaceful solution to the crisis in eastern Congo. Then-U.S. Assistant Secretary of State for
African Affairs Jendayi Frazer met with the leadership of Congo and Rwanda in November. The
foreign ministers of France and Britain visited Congo in early November in an effort to broker a
4 CRS interview with President Kabila in 2006 and 2007 in Washington and DRC.
5 CRS interview with Bemba, August and October 2007.
6 CRS interview with MONUC, Rwandan, and U.S. officials in August and November 2008.
7 CRS interview with Congolese ambassador to the United States, November 19, 2008.
8 CRS interview in late October 2008 with a senior Rwandan official in Kigali by phone.
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peace agreement. United Nations Secretary General Ban Ki-moon went to Kenya in early
November to take part in a regional summit on the crisis in eastern Congo. Several heads of state
participated in the Kenya meeting, including Presidents Kabila and Kagame. General Nkunda was
not invited to participate in the Kenyan meeting. The meeting in Kenya did not secure an
agreement. In November 2008, Secretary General Ban Ki-moon appointed former Nigerian
President Olusegun Obasanjo as his envoy to help broker a peace agreement to end the crisis in
eastern Congo. The appointment of Obasanjo was welcomed by regional leaders. President
Kagame told reporters that Obasanjo is the “right person” to help secure a peace agreement to
resolve the crisis in eastern Congo.
Former Rwandan Forces in DRC
At the core of the crisis in eastern Congo is the presence of over a dozen militia and extremist
groups, both foreign and Congolese. Over the past 15 years, the former Rwandan armed forces
and the Interhamwe have been given a safe haven in eastern Congo and have carried out many
attacks inside Rwanda and against Congolese civilians. These well-armed forces are now known
as the Democratic Forces for the Liberation of Rwanda (FDLR). Analysts and officials in the
region estimate their number between 6,000 and 8,000, now led by the most extremist leaders of
the FDLR. The FDLR reportedly receives assistance from Congolese forces and often coordinates
military operations with the Congolese army, according to United Nations and Rwandan officials.
The FDLR also receives assistance and guidance from Rwandan in Europe and the United States.
The Government of Rwanda submitted a list of FDLR, Interhamwe and other militia leaders in
early 2008 to U.S. and other government officials.
On November 4, 2008, German authorities released the Secretary General of the FDLR, Callixte
Mbarushimana, who was arrested in Frankfurt in July 2008. The State Department criticized the
release of the FDLR official and blamed the group as the “root cause of instability in eastern
Congo.”9 A week after the release of the FDLR official, German authorities arrested a senior
Rwandese government official, Rose Kibuye. Rose Kibuye is a senior Rwandan government
official, a liberation fighter with the Rwandan Patriotic Front (RPF), the group that ended the
1994 genocide, and served in different government positions over the past decade, including as
Mayor of Kigali and Personal Secretary of President Kagame. The Government of Rwanda
condemned her arrest and later expelled the German ambassador to Rwanda. German authorities
did not detain Kabuye in April 2008 when she traveled with President Kagame to Germany
because of diplomatic immunity. Rwandan officials contend that Kibuye went to Germany as an
advance team member to prepare for President Kagame’s visit to Germany. She traveled on her
diplomatic passport and the German embassy in Rwanda was informed about the purpose of her
visit to Germany. On November 19, Kibuye was transferred to France to stand trial.
In addition to the FDLR and other negative forces in DRC, the forces and leadership of the Lord’s
Resistance Movement (LRA), a Ugandan rebel movement, are also in DRC, even though the
LRA agreed to a peace agreement mediated by the Government of South Sudan. Moreover, there
are over a dozen militia groups active in eastern Congo, some of which support and coordinate
their actions with the Congolese government.
9 State Department Press Release, November 13, 2008.
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Joint Military Operations
Umoja Wetu
In late 2008, the governments of Rwanda and Congo agreed on a wide range of issues and agreed
to launch a joint military offensive against the CNDP and the FDLR. They also agreed to restore
full diplomatic relations and to activate economic cooperation. In January 2009, Rwanda and
Congo launched a joint military operation in eastern Congo. The military operation dislodged and
seriously weakened the CNDP forces. In January, the leader of the CNDP, General Laurent
Nkunda, was arrested inside Rwanda, after he fled eastern Congo. The FDLR forces were also
dislodged from their stronghold in north Kivu and forced to retreat. More than 2,000 Rwandan
refugees returned home in January and February, as well as some FDLR militia members. In late
February 2009, Rwandan troops pulled out of Congo as part of the agreement with the Kabila
government. The government of Congo has requested the extradition of General Nkunda. Nkunda
still remains under arrest in Rwanda. Congolese forces continued to go after the remaining CNDP
and FDLR forces. As part of an earlier agreement, those CNDP forces willing to join the
Congolese army were integrated. Rwanda also welcomed FDLR forces willing to return home.
Meanwhile, remnants of the FDLR continue to target Congolese civilians. In late April 2009,
United Nations officials accused the FDLR of committing serious atrocities against civilians in
Luofu, a town north of Goma.10 Human rights organizations criticized abuses carried out by
government forces against civilians.
Operation Kimia II
After the withdrawal of Rwandan forces and the completion of Operation Umoja Wetu, the
government of Congo, with the support of MONUC forces, launched Operation Kimia II. In
eastern Congo, government forces targeted FDLR militia, especially in mining areas. According
to a December 2009 report by the United Nations Secretary General Ban Ki-moon, “the role
played by MONUC in Kimia II continued to be focused on assisting FARDC with planning and
on providing logistical support, including tactical helicopter lift, medical evacuation, fuel and
rations.”11 The report also stated that MONUC provided military support to government forces.
Kimia II operations involved an estimated 16,000 government forces in North and South Kivu,
according to U.N. officials. Government forces reportedly engaged in serious abuses against
civilians, while FDLR forces retaliated by attacking civilians as well. According to Human Rights
Watch, “the attacks against civilians have been vicious and widespread. Local populations have
been accused of being collaborators by one side or the other and deliberately targeted, their
attackers saying they are being punished.”12 Human Rights Watch reported that an estimated
1,400 civilians were killed between January and September 2009. MONUC forces have been
accused of providing support to government military units engaged in serious human rights
abuses. Human rights groups also criticized MONUC for failing to protect civilians. United
Nations officials assert that despite the many challenges, MONUC has made every effort to
protect civilians. United Nations Special Representative for the DRC, Alan Doss, stated that the
10 http://allafrica.com/stories/200904271233.html
11 Report of the U.N. Secretary General on the United Nations Organization Mission in the Democratic Republic of
Congo, December 4, 2009.
12 Human Rights Watch. You Will Be Punished, December 13, 2009.
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primary objectives of Kimia II were to “protect the population; to put an end to the threat of the
FDLR; and to re-establish the authority of the Congolese state.”13
Amani Leo (Peace Today)
On December 31, 2009, the government of Congo ended Operation Kimia II and in February
2010 launched Operation Amani Leo. According to United Nations officials, the objectives of
Amani Leo are to protect civilians, remove negative forces from population centers, re-establish
authority in liberated areas, and restore state authority. According to a directive signed by
Congolese military Chief of Staff, General Didier Etumba and MONUC Force Commander Lt.
General Babacar Gayer, Congolese and MONUC forces “will concentrate on controlling strategic
areas in order to ensure that armed groups, notably FDLR elements, will not be able to retake
territory and inflict reprisals.” 14 The Congolese government and MONUC also agreed “the
deployment of Military Police at the battalion level in order to prevent and sanction violations of
human rights, international humanitarian and refugee law by their own forces. A zero tolerance
policy for human rights violations will be strictly enforced.”
MONUC: Overview
In August 1999, the United Nations Security Council authorized the deployment of 90 United
Nations military liaison personnel to the DRC. In November 1999, Security Council Resolution
1279 affirmed that the previously authorized United Nations personnel would constitute the
United Nations Organization Mission in the DRC (MONUC). The operation is authorized under
Chapter VII of the United Nations Charter, which allows peacekeepers to use force, if necessary,
to carry out their mandate. Over the past decade, the Security Council passed a number of
resolutions to strengthen MONUC’s force and its mandate. Resolution 1291, passed in 2000,
authorized MONUC to carry out a number of important tasks, including implementation of the
cease-fire agreement, verification of disengagement and redeployment of forces, and support for
humanitarian work and human rights monitoring. The resolution provided MONUC the mandate,
under Chapter VII, to protect its personnel, facilities, and civilians under imminent threat of
physical violence.
Resolution 1565, adopted in 2004, increased MONUC personnel, with a primary objective of
MONUC deployment to eastern Congo to ensure civilian protection and seize or collect arms, as
called for in U.N. resolution 1493. The resolution also authorized MONUC to temporarily
provide protection to the National Unity Government institutions and government officials.
Resolution 1493 authorized MONUC to assist the DRC government to disarm foreign combatants
and repatriate them to their home countries. The resolution, under Chapter VII, authorized
MONUC to use “all means necessary” to carry out its mandate.15 In December 2009, Security
Council resolution 1906 authorized MONUC’s mandate until the end of May 2010. The Kabila
government has asked for the withdrawal of MONUC forces by 2011. A U.N. Security Council
delegation was scheduled to visit Congo in late April 2010 but was postponed to May due to
travel complications. In mid-May, a Security Council delegation visited the DRC and met with
13 http://www.irinnews.org/Report.aspx?ReportId=84943
14 MONUC News. After Operation Kimia II, January 2010.
11 http://www.monuc.org
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senior Congolese officials. The delegation was led by Ambassador Gerard Araud of France.
According to Ambassador Araud, “The mission of the Security Council was to begin a dialogue
with the authorities, population and civil society of the Democratic Republic of the Congo over
the future of the United Nations presence.”16 As of February 2010, MONUC had 20,573 total
uniformed personnel, including 18,645 troops, 760 military observers, 1,216 police, 1,001
international civilian personnel, 2,690 local civilian staff and 629 United Nations Volunteers.17
MONUC is currently the largest U.N. peacekeeping operation in the world.
The Role of MONUC in the Current Crisis
The United Nations has been actively engaged in mediation efforts, although MONUC has come
under criticism for failing to carry out its mandate to protect civilians.18 Congolese sources and
foreign observers have reported that MONUC forces did not provide sufficient protection to
civilians, who have been the primary target of government forces and militia groups. MONUC
has a robust U.N. Security Council-authorized mandate to protect civilians under eminent
physical threat. United Nations officials argue that MONUC has done what it could under
difficult circumstances and that Congo is a large territory to effectively manage. These officials
contend that it is the primary responsibility of the Kabila government to protect its citizens, over
250,000 of whom were displaced as a result of the military clashes in eastern Congo. According
to United Nations officials, abuses by government forces and militia groups have been carried out
against civilians. There is no reliable estimate of the number of people killed since the current
crisis erupted.
MONUC: Human Rights Concerns
MONUC’s record has been marred by persistent allegations that it has not been able to halt gross
human rights violations of civilians by local groups in the Ituri and Kivu regions and charges of
incompetence since its deployment in 1999. In late February 2005, nine Bangladeshi
peacekeepers were killed by militia members in the Ituri region. Then-U.N. Secretary General
Kofi Annan condemned the killings and called on the Transitional Government to “hold
accountable those responsible for this reprehensible and criminal attack.” The United Nations has
increased the number of troops to help bring stability and security, especially in the Kivus and
Ituri regions.
MONUC also was the focus of allegations of sexual exploitation and abuse of women and
children. In December 2004, in his report to the Security Council, then-Secretary General Annan
stated that “between June and September 2004, an Office of Internal Oversight Services
investigation into sexual misconduct in Bunia revealed that 8 of some 72 allegations could be
corroborated.” The report revealed that the majority of these allegations involved “soliciting the
services of prostitutes.” This kind of behavior by U.N. peacekeeping troops, the report contends,
is a violation of the United Nations “Code of Conduct” for peacekeeping troops.
In November 2004, a team from the United Nations Department of Peacekeeping Operations was
sent to investigate allegations of sexual exploitation by several United Nations civilian personnel
16 http://allafrica.com/stories/201005171804.html
17 MONUC Mission website available at http://www.un.org/Depts/dpko/missions/monuc/
18 Tom Maliti, “African Leaders Chide Peacekeepers,” Chicago Tribune, November 9, 2008.
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The Democratic Republic of Congo: Background and Current Developments
in other parts of DRC. Another U.N. team was sent to DRC to investigate allegations against
MONUC personnel. In January 2005, a report by the United Nations Office of Internal Oversight
Services (OIOS) issued its findings about sexual exploitation and abuse by MONUC personnel in
DRC. The OIOS made a number of recommendations, which it claimed have been accepted by
the United Nations Department of Peacekeeping Operations. Still, between January and
September 2008, 23 sexual exploitation and abuse allegations were made against MONUC
personnel.
Human Rights Conditions
Human rights abuses continue to plague the DRC despite movement toward democratic rule and
an end to the civil war. Government security forces and armed rebel groups committed serious
abuses against civilians. Security forces were responsible for the arbitrary arrest, abduction, and
torture of civilians despite the country’s law prohibiting torture, according to human rights groups
and the State Department’s Country Reports on Human Rights Practices. According to the State
Department’s 2009 report,
In all areas of the country, the government's human rights record remained poor, and security
forces continued to act with impunity throughout the year, committing many serious abuses,
including unlawful killings, disappearances, torture, and rape. Security forces also engaged
in arbitrary arrests and detention. Severe and life-threatening conditions in prison and
detention facilities, prolonged pretrial detention, lack of an independent and effective
judiciary, and arbitrary interference with privacy, family, and home also remained serious
problems. Security forces retained and recruited child soldiers and compelled forced labor by
civilians. Members of the security forces also continued to abuse and threaten journalists,
contributing to a decline in freedom of the press. Government corruption remained
pervasive. Security forces at times beat or threatened local human rights advocates and
obstructed or threatened UN human rights investigators.19
There were no confirmed reports that abductions were politically motivated, although some of the
abductees were journalists. Government security forces also raped civilians, according to the
same report. On a positive note, professionalism among police forces appears to be increasing;
government security forces, however, remained corrupt and ineffective. Prison conditions
remained inadequate due to overcrowding and lack of funds. The judicial system remained
ineffective and highly corrupt, and civil courts are rarely used by the public. According to the
State Department’s annual report, the government restricted freedom of speech, although
Congolese law provides these rights. On a number of occasions, radio and television stations were
temporarily closed for violating a media code of conduct.
As the internal conflict in the East continued, according to reports, security forces and rebel
groups killed, abducted, tortured, and raped civilians in addition to burning or destroying their
homes and villages. Mass rape and sexual violence were used as weapons of war, and FARDC
soldiers committed sexual violence against young girls, especially in eastern Congo. Gang rapes
also occurred and were frequently committed in front of the victims’ families. The trafficking of
women and children also remained common in the East. Humanitarian aid workers and NGOs
reported being threatened and harassed by armed groups, especially in eastern DRC. The
19 http://www.state.gov/g/drl/rls/hrrpt/
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The Democratic Republic of Congo: Background and Current Developments
government did not provide adequate protection or assistance to civilians in conflict areas, and
armed groups restricted humanitarian access to IDPs and routinely abuse the civilian population.
Economic Conditions
Bilateral and multilateral donors have made significant investments in support of DRC’s
transitional process. The World Bank has a number active projects in DRC. The International
Monetary Fund (IMF) is requiring the DRC to implement reforms in macroeconomic stability
before it will begin a poverty reduction and growth facility program. A tight fiscal policy is
thought to be necessary for the DRC to improve economic conditions. The DRC’s fiscal policy is
primarily focused on increasing domestic revenue and shifting state expenditures toward
infrastructure and the social sectors. The Central Bank of the DRC appears committed to
maintaining price stability and tight control of the country’s money supply, according to the
Economist Intelligence Unit (EIU). Real GDP growth is expected at 5.2% in 2010 and 6% in
2011, according to the EIU.20 Inflation rates, however, are expected to reach 25% in 2010 and
30% in 2011.
Although agriculture is the dominant sector of the economy (accounting for approximately half of
GDP and employing 75% of the labor force), development and productivity rates are nearly
impossible to gauge due to a lack of reliable statistics. The mining sector is likely to be the
country’s primary vehicle for growth as foreign direct investment increases. Mining output should
also increase the DRC’s export earnings and compensate for falling commodity prices in the
international market. DRC’s high external debt burden ($13.5 billion) underscores the need for
debt relief under the IMF-World Bank’s HIPC (heavily indebted poor countries) initiative and the
multilateral debt relief initiative. In February 2010, the Paris Club agreed to reschedule or write
off at least half of the $7 billion DRC’s debt. The Kabila government’s budget expenditure plans
are very cautious and somewhat vague, a fact government officials attribute to the need for
pragmatism to address DRC’s large external debt. In recent years, China has expanded its trade
and economic activities with DRC. In 2008, China signed a major mining and construction
agreement with the DRC government. The mining agreement is a source of contention in Congo.
U.S.-Congo Relations
Relations between the United States and Congo are warm, although there are a number of areas of
concern. Over the past decade, the United States played key roles in mediation efforts to bring
about peace and stability in the Great Lakes region. In August 2009, Secretary of State Hillary
Clinton visited Kinshasa and Goma in eastern Congo. At a press conference with Foreign
Minister Alexis Thambwe, Secretary Clinton stated that “the DRC, its government, and the
people face many serious challenges, from the lack of investment and development to the
problem of corruption and difficulties with governance to the horrible sexual and gender-based
violence visited upon the women and children in the country.” The Secretary assured the Minister
that the United States will help the DRC government address these challenges.
20 The Economist Intelligence Unit. Country Report: Democratic Republic of Congo, March 2010.
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The Democratic Republic of Congo: Background and Current Developments
U.S. Assistance to Congo
One of the major objectives of the U.S. Agency for International Development (USAID) program
in the DRC is to support the country’s transition to democracy and to strengthen its healthcare and
education systems. Special attention is being paid to the HIV/AIDS epidemic, with $4 million of
funding designated for AIDS treatment and prevention programs. In FY2011, Economic Support
Funds (ESF) are targeted to support the government of Congo’s “stabilization and recovery
program through support to community recovery and reconciliation, conflict mitigation and
resolution, and the extension of authority.” International Military Education and Training (IMET)
funds are intended to focus on training Congolese officers on military justice, human rights and
joint operations. The United States also provides significant humanitarian assistance to DRC. The
United States provided $205.1 million in FY2008 and $111.6 million in FY2009. The DRC
received a total of $296.5 million in FY2009 and an estimated $183 million in FY2010. The
Obama Administration has requested $213.2 million for FY2011.
Figure 1. Congo
Source: CRS
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The Democratic Republic of Congo: Background and Current Developments
Author Contact Information
Ted Dagne
Specialist in African Affairs
tdagne@crs.loc.gov, 7-7646
Congressional Research Service
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