Lord Collins of Highbury
That this House takes note of the rising tensions in the Horn of Africa.
The Parliamentary Under-Secretary of State, Foreign, Commonwealth and Development Office (Lord Collins of Highbury) (Lab)
My Lords, I welcome the opportunity to have an in-depth debate about the rising tensions in the Horn of Africa, including Ethiopia, Eritrea, Djibouti and Somalia. We have had some excellent contributions and I am determined that, as we go forward as a Government, we give this House the opportunity to have a proper debate on these issues.
Rising tensions in the Horn of Africa matter significantly to the United Kingdom. These tensions are further destabilising the region, which risks having knock-on effects on the ability of the United Kingdom and regional and international partners to counter al-Shabaab. As a result, the United Kingdom’s capacity to advance growth, climate and development partnerships in the region could be jeopardised, with worsening political instability and a worsening security environment. I recognise the importance and complexity of the issues contributing to these tensions. Despite other pressing global conflicts, we must not overlook the potential of the Horn of Africa. Yet the multiple concurrent challenges it faces—security, humanitarian and development—hinder its ability to realise that potential. But we must not give up on it.
Since 2019, the United Kingdom has allocated more than £1 billion across east Africa to humanitarian operations, helping to reach tens of millions of people with life-saving support. However, despite the progress made, the United Nations estimates that around 63 million people will still require humanitarian aid this year—that is a staggering number of people in desperate need of help. This is due to a combination of pressures, including a drought of unprecedented severity and duration, as well as flooding and conflict.
To make matters worse, the situation in the Horn has been growing more tense in recent months. At the beginning of this year, Ethiopia and Somaliland signed a memorandum of understanding that could grant Ethiopia access to the sea in return for Ethiopian recognition of Somaliland. This has subsequently led to a worrying deterioration in relations between Ethiopia and Somalia, and it has drawn in other regional actors, such as Egypt and Eritrea. Together with international partners, the United Kingdom has reaffirmed its support for Somalia’s sovereignty and territorial integrity, while Turkey is leading mediation efforts between Ethiopia and Somalia. As the United Kingdom, we are supportive of Turkey’s attempts to initiate dialogue between the two countries, and we welcome its engagement on this issue.
I will take Somalia and Ethiopia in turn to expand on this. This is a critical time for the region, as the African Union’s peacekeeping mission in Somalia will transition into a new mission. Crucial details still need to be finalised regarding the mission structure and the associated force, including which countries will contribute troops. There are still unresolved issues regarding the funding of a future mission. In recent years, the United Kingdom, alongside the EU, has been a core donor to the African Union’s mission in Somalia. But we fear that, without a sustainable funding mechanism drawn from a broader base of donors for a future mission, the crucial security gains made in recent years will be lost.
I turn to Ethiopia. Only recently, we marked the 40th anniversary of the 1984 famine. We have also recently addressed a question relating to the tensions in the Horn. As I have repeatedly said, Ethiopia is a country of unbridled possibilities, with an innovative population, an expanding economy and a rich history. Yet challenges persist, and we continue to raise them with its Government. That includes finding political solutions to internal conflicts, which have a devastating impact on civilians, particularly women and girls. The Ethiopia-Somaliland MoU risks bringing further instability to a region that is already engaged in tackling issues such as conflict, food insecurity and terrorism, while also posing a threat to Somalia’s territorial integrity. That comes on top of already tense relations between Ethiopia and Eritrea, making it all the more necessary that we do everything possible to de-escalate tensions.
It is clear that the rising tensions and deteriorating relationships in the Horn of Africa have been exacerbated by the signing of the MoU. The United Kingdom and the international community remain focused on a diplomatic approach aimed at finding a mutually agreeable solution by encouraging dialogue between the parties. It is, however, crucial to avoid any action that could destabilise regional security.
I will add a bit about Sudan, because we cannot talk about the Horn of Africa without acknowledging the serious situation there. I know that Sudan is a matter of deep concern to many Peers across the House. Since conflict erupted between the Sudanese Armed Forces and the Rapid Support Forces in April last year, Sudan has witnessed one of the world’s most severe humanitarian crises. Over 24 million people urgently need humanitarian assistance, and famine has been confirmed in northern Darfur. Humanitarian access continues to be deliberately blocked, and atrocities are being committed on a horrific scale.
In response, the United Kingdom has provided £113.5 million in aid this year to support those fleeing violence in Sudan and neighbouring countries. The United Kingdom continues to be at the forefront of efforts to respond to this crisis. Most recently, on 18 October, we led a joint statement, together with 10 other donors, condemning the obstruction of aid and calling upon the warring parties to comply with their obligations under international humanitarian law. We continue to pursue all diplomatic avenues to press the parties into a permanent ceasefire, to allow unrestricted humanitarian access, to protect civilians and to commit to a sustained and meaningful peace process. Additionally, as we prepare to assume the presidency of the United Nations Security Council in November, the United Kingdom will push for actionable steps to protect civilians in Sudan, in alignment with recent UN recommendations.
The United Kingdom’s commitment to Sudan remains strong, with continued advocacy for peace, accountability and relief for the Sudanese people.
Lord Collins of Highbury (Lab)
My Lords, I thank everyone for their contributions. It has been an excellent debate, but, like other noble Lords, I have to start by congratulating my noble friend Lady Harman on her excellent maiden speech. She and I go back a long way, even before she was elected to Parliament—we have been friends for many, many years. I have only one warning for her about this idea of post-ambition politics; I realise that I have had many post-ambition jobs, and every time I think I have finished one, I end up with another—so I am determined to follow through in terms of looking forward to new challenges. What she displayed in her maiden speech was that still-strong passion for changing and challenging inequalities and championing feminism. Let me reassure her—she knows this—that I will always be a very strong ally in support of her feminist ambitions.
I will also say, on the passion she has shown on the issue FGM, that we are committed to working hard to end this disgraceful thing, and we will continue to support groups to ensure that we can end this practice. We are supporting grass-roots organisations and activists, not only in Africa but in this country too, to challenge that practice. So I congratulate her on that excellent speech and I know she will make many, many more.
This has been a really thought-provoking debate that has highlighted the tensions between Ethiopia and Somalia, which remain high and risk drawing in the wider region, damaging the prospects for growth and stability. To echo the comments of the noble Lord, Lord Bruce, we are determined to focus on the positive opportunities that the region offers. It does offer growth and opportunity and we are determined to focus on our partnership to do that. But we have to acknowledge that the region is beset with a range of challenges, from climate change, conflict and terrorism. All these issues were central to my recent visit to Ethiopia, where I met the Ethiopian Prime Minister to discuss the full range of our relationship. This included plans to implement the cessation of hostilities agreement that brought the Tigray conflict to an end, as well as steps we could take to de-escalate tensions in the region.
I also underlined to him the United Kingdom’s respect for the sovereignty and territorial integrity of Somalia. This is a critical time for the Horn of Africa, as the African Union’s current mission comes to an end, and we must protect the region’s stability. The United Kingdom will continue to call for dialogue and de-escalation to avoid that dangerous escalation. I will share some examples to demonstrate how the United Kingdom is helping. I will take each region in turn, beginning with Somalia. The United Kingdom is one of Somalia’s closest and longest-standing partners, and we remain committed to building a safer, freer and more secure country for all Somalis. I welcome the steps that they are taking towards these goals, including their huge achievement in clearing arrears to international financial institutions last year, putting Somalia on a sound footing to rebuild its economy, having overcome so many challenges.
As Somalia’s debt relief champion, the United Kingdom has worked side by side with its Government to reach this milestone. We have also helped Somalia strengthen its economy and create livelihoods and jobs for marginalised groups, especially women, girls and young people. Ranked the second most vulnerable country to climate change globally, Somalia has experienced severe climate events, ranging from El Niño rains and flooding to prolonged drought, as we have heard in this debate. Naturally, this has had significant impact on industries and livelihoods. This is why the United Kingdom has driven forward discussion to support fragile states such as Somalia to access climate change finance in the face of soaring adaptation needs and protracted humanitarian crises. This includes being an anchor donor to support its accession to the task force on access to climate finance.
Finally, we are working on multiple fronts to help Somalia tackle the key challenges it faces from continuing efforts to degrade al-Shabaab and supporting Somali plans to drive economic growth, addressing the immediate pressures facing communities vulnerable to climate shocks. We remain a long-term champion of its people and its future.
On the question from the noble Lord, Lord Purvis, about the ATMIS project, I say that Ethiopia is a key contributor to Somalia’s security through its troops and through the AU peace support operation. It is a significant bilateral presence and we welcome Ethiopia’s contribution to ATMIS and any successor mission.
To respond to the noble Lord’s specific question, we encourage a smooth transition from the current AU peace support operation to a future mission in 2025 that can support Somalia’s security and stability and protect those hard-won gains. The AU and Somalia’s federal Government have proposed a new peace support operation called the African Union Support and Stabilization Mission in Somalia—AUSSOM. We support this and planning is under way.
As the noble Lord pointed out, there remains a significant funding gap for the new mission and our least conservative estimates put it in the region of tens of millions of dollars. We continue to work urgently with stakeholders, both bilaterally and multilaterally, to address this. All my conversations with African Union officials are to ensure that we get that support. We cannot continue with the current arrangement, and therefore it is important that we have broader support.
I will focus on noble Lords’ questions on Somaliland. As was pointed out, the UK’s long-standing position, alongside others in the international community, is not to recognise Somaliland’s unilateral declaration of independence. It is for Somalia, including Somaliland, to resolve Somaliland’s status through dialogue between authorities in both capital cities. It is not for the United Kingdom to determine.
Nevertheless, I point out to the noble Lord, Lord Polak, and the noble Baroness, Lady Hoey, that we have a strong relationship with Somaliland. We work closely with its Government to enhance stability and promote economic, social and human development. I have certainly met officials in its Government. Ahead of its presidential election on 13 November, we will support its National Electoral Commission and international observer missions, because holding peaceful, free and fair elections is crucial to ensuring that we avoid further conflict in the region.
The noble Lord, Lord Callanan, asked me what we are doing with like-minded partners on the MoU. We regularly discuss these issues, working together with international partners including the US, to encourage dialogue between Ethiopia and Somalia. As I mentioned in my opening remarks, we also welcome Turkish efforts, which have created space for that dialogue, and we hope that Ethiopia and Somalia will continue to talk so that we can find a mutually acceptable solution and reduce tensions.
We have a long and shared history with Ethiopia, and it is easily one of our closest development partners. We have worked to support Ethiopia’s recent IMF and World Bank programmes, and we have provided support for its ambitious economic reform programme. It is a partnership rooted in trust and mutual respect and, as the noble Lord, Lord Bruce, said, it is a country that is central to the stability of the Horn of Africa. There can hardly be better proof of this than, as I have said, its long-standing commitment to the African Union’s mission in Somalia.
Of course, Ethiopia has its challenges, many of which I witnessed during my recent visit. That is why we are taking steps to alleviate humanitarian suffering, including that caused by conflict, and to help rebuild people’s livelihoods. I recently announced funding for the national demobilisation and remigration programme, supporting ex-combatants back into civilian life, and the next phase of our industrialisation-focused Accelerate programme, which will help rebuild Tigray’s economy.
I met those ex-combatants, and I saw the damage that that war has caused and realised the huge ambition that those people have for a better world and a better country. But I know that it is not enough, and that we have to go further to end the ongoing conflicts in Amhara and Oromia and to implement its transitional justice policy, all of which the United Kingdom stands ready to support. It is vital that Ethiopia, among others, strives to find a mutually acceptable solution to current tensions while respecting the territorial integrity of Somalia.
In spite of these tensions, to pick up a point made by the noble Lord, Lord Bruce, the Horn of Africa remains an area of endless possibilities. It is a region with the most incredible community-led innovations and solutions to problems. It is clear that there is a strong appetite for growth and enterprise, and the United Kingdom partners with regional governments and the private sector on a wide range of bilateral and multilateral programmes covering health, education, economic development, security and resilience.
We were pleased to join the Horn of Africa Initiative as one of the five development partners last year. The initiative provides a platform for co-operation across the region, led by member states, including Ethiopia, Djibouti, Kenya, Somalia, Eritrea, South Sudan and Sudan. The menace of violent extremism, conflict and climate shocks—problems that span national borders—requires a united approach. We are working closely with members, including through our £15 million Deris Wanaag programme, to build stability and end the scourge of al-Shabaab in the border areas between Kenya, Somalia and Ethiopia. Efforts are going a long way to enabling the Horn of Africa to truly unlock its potential.
My noble friend asked about ongoing participation in the CSDP missions, including that in Somalia. We are working closely alongside the federal Government of Somalia and with security partners, including Turkey and the US. He asked us what assessment we are making of Eritrea’s and Ethiopia’s relationship with China. We continue to urge all stakeholders to support dialogue and de-escalation, and to refrain from words or actions that will fuel further tensions in the region. We are drawing on a range of levers to pursue UK objectives and deliver UK policy that builds resilience in those countries.
The noble Lords, Lord Polak and Lord Bruce, raised a question about the Djibouti-Ethiopia relationship, in particular on access to the sea. The two countries are interdependent. Ethiopia gets more than 90% of its imported goods via Djibouti port, and Djibouti gets the bulk of its electricity and potable water from Ethiopia. There have been tensions in the last year over Ethiopia’s desire to gain access to a Red Sea port, but those tensions need to be addressed through dialogue, not unilateral demands.
I want to focus on the need to continue to encourage all parties to engage in dialogue and to de-escalate existing tensions. We need to allow for the positive and constructive relationships necessary for the region to enjoy peace, stability and mutual prosperity. We have to do that in the spirit of genuine partnership, with respect and equality at the heart of our approach, because that is the only way that we will deliver meaningful progress.
I reassure noble Lords that this debate is only the start of many. It is important that we engage on a cross-party basis to address these issues, and we will have an opportunity to discuss Sudan further tomorrow. As the noble Lord, Lord Purvis, recognised, we may be focused on the conflict, its generals and warring factions, but there is a very strong civil society, of which His Excellency Mr Hamdok is just one example. We must continue to support those civil society actors, because they are determined to represent the interests of their people, so we should do all in our power to ensure that they do. I thank all noble Lords for their contributions.