[Congressional Record Volume 140, Number 143 (Wednesday, October 5, 1994)]
[House]
[Page H]
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[Congressional Record: October 5, 1994]
From the Congressional Record Online via GPO Access [wais.access.gpo.gov]


                              {time}  2130
 
                    AFRICAN CONFLICT RESOLUTION ACT

  Mr. JOHNSTON of Florida. Mr. Speaker, I ask unanimous consent to take 
from the Speaker's table the Senate bill (S. 2475) to authorize 
assistance to promote the peaceful resolution of conflicts in Africa, 
and ask for its immediate consideration in the House.
  The Clerk read the title of the Senate bill.
  The SPEAKER pro tempore (Mr. Mazzoli ). Is there objection to the 
request of the gentleman from Florida?
  Mr. GILMAN. Mr. Speaker, reserving the right to object, I do not 
intend to object, but I yield to the gentleman from Florida to explain 
the measure.
  Mr. JOHNSTON of Florida. Mr. Speaker, I thank the gentleman for 
yielding.
  Mr. Speaker, I rise in strong support of S. 2475, which I believe 
will make a lasting contribution to peace on the African continent.
  Since the House is today considering the Senate version of the 
African Conflict Resolution Act and is waiving a conference, I am 
submitting the following to complete the legislative record in the 
House. The following language is slightly revised from Report 103-723, 
which accompanied H.R. 4541, to reflect minor changes made in the 
Senate bill.
  The following is a detailed analysis of the provisions of S. 2475.

                                Purpose

       In the last decade, between 2 million and 4 million 
     Africans have died because of war. There are now nearly 7 
     million refugees and 15 million displaced people in Africa. 
     This problem does not appear to be diminishing; looming or 
     ongoing conflicts threaten millions more Africans. War and 
     civil conflict have also caused untold damage to the 
     economies of the nations of Africa. Economic development, 
     even food production, is impossible in a nation at war.
       The foreign affairs committee believes that conflict 
     resolution and demobilization of African armies should be a 
     priority for U.S. foreign policy in Africa. A relatively 
     small U.S. investment in African conflict resolution and 
     remobilization can help save lives and help the United States 
     avoid huge future expenditures on war-related humanitarian 
     disasters. The need for United Nations intervention in 
     African conflicts will also diminish if African institutions 
     develop the ability to resolve African conflicts. Reductions 
     in the size of African armed forces will enhance political 
     and economic stability and enable the reallocation of scarce 
     African resources to development needs.
       The purpose of S. 2475, as amended, is to help 
     institutionalize conflict resolution capability in Africa. 
     Toward this end, S. 2475, as amended, authorizes assistance 
     for:
       (1) the Organization of African Unity and subregional 
     organizations established by countries of sub-Saharan Africa 
     to strengthen their conflict resolution capabilities;
       (2) Strengthening the mediation and reconciliation 
     capabilities of nongovernmental organizations in Africa.
       (3) demobilization and reintegration into civilian society 
     of former military personnel;
       (4) establishing a program to provide education and 
     training in conflict resolution and pracekeeping for civilian 
     and military personnel; and
       S. 2475, as amended, draws almost exclusively on funds 
     already allocated to Africa; no new funding is authorized by 
     this legislation.


                      SECTION-BY-SECTION ANALYSIS

                         Section 1--Short title

       Section 1 establishes a short title of the ``African 
     Conflict Resolution Act'' for purposes of this act.

              Section 2--Findings and statement of policy

       Section 2 contains congressional findings regarding the 
     need for improved African conflict resolution capabilities 
     and declares that a key goal of U.S. foreign policy should be 
     support for institutionalization of conflict resolution 
     capability in Africa.

   Section 3--Improving the conflict resolution capabilities of the 
                     Organization of African Unity

       Section 3 authorizes the President to provide assistance, 
     including technical assistance, to strengthen the conflict 
     resolution capability or the Organization of African Unity 
     (OAU). Assistance under this section may be provided to the 
     OAU or may be used for the expenses of sending individuals 
     with expertise in conflict resolution to work with the OAU. 
     Section 3 also states that, of the foreign assistance funds 
     allocated for sub-Saharan Africa, not less than $1.5 million 
     in each of the fiscal years 1995 through 1998 should be used 
     to carry out the purposes of this section.
       The committee notes that the OAU, under the leadership of 
     Secretary General Salim Salim, last year established new 
     conflict resolution mechanism and approved an enhanced role 
     for the OAU secretariat in conflict resolution. The committee 
     is encouraged by these developments, and believes U.S. 
     assistance is warranted.
       Consistent with the committee's initiative of last year, 
     the executive branch made $1.5 million available in fiscal 
     year 1994 for assistance to the OAU. These funds will provide 
     critical computer and communications equipment, negotiation 
     support, and other assistance to the OAU's conflict 
     resolution unit. The committee commends the executive branch 
     for its efforts in this regard to date. The authorization in 
     this section of funds for four additional years should enable 
     the OAU to deal with conflict situations more effectively.
       The committee believes that effective conflict resolution 
     in Africa also requires coordination between the United 
     States and multilateral institutions. The committee 
     recognizes the United Nations Development Program's (UNDP) 
     efforts in conflict resolution in Africa, especially in 
     providing resources and technical assistance to the OAU.

 Section 4--Improving conflict resolution capabilities of multilateral 
                  subregional organizations in Africa

       Section 4 authorizes the President to provide assistance, 
     including technical assistance, to strengthen the 
     conflict resolution capabilities of subregional 
     organizations in sub-Saharan Africa. Assistance under this 
     section may be provided to such an organization or may be 
     used for expenses of sending individuals with expertise in 
     conflict resolution to work with such organizations. 
     Section 4 also provides that of the foreign assistance 
     funds allocated for sub-Saharan Africa, such sums as may 
     be necessary for each of the fiscal years 1995 through 
     1998 may be made available to carry out the purposes of 
     this section.
       In recognizing the potential of subregional organizations 
     to contribute to conflict resolution, the committee notes the 
     potential to strengthen the conflict resolution capabilities 
     of the Economic Community of West African States (ECOWAS), 
     the Intergovernmental Authority on Drought and Development 
     (IGADD), and the Southern African Development Community 
     (SADC). The committee recommends that the executive branch 
     allocate up to $1.5 million for this purpose in each of the 
     fiscal years 1995 through 1998.

     Section 5--Improving Conflict Resolution Capabilities of Non-
                       Governmental Organizations

       Section 5 authorizes the President to provide assistance to 
     non-governmental organizations (NGOs) that are engaged in 
     mediation and reconciliation efforts in Africa. Section 5 
     also provides that of the foreign assistance funds allocated 
     for sub-Saharan Africa, such sums as may be necessary for 
     each of the fiscal years 1995 and 1996 should be used to 
     carry out the purposes of this section.
       In authorizing the use of such sums as may be necessary for 
     the purposes of this section, the committee recommends that 
     the executive branch allocate not less than $500,000 in each 
     of the fiscal years 1995 and 1996 for this purpose.
       The committee believes that in some cases crisis situations 
     can be best addressed by non-governmental organizations or 
     private mediation efforts. Africa has a long tradition of 
     mediation by eminent figures acting informally. It is the 
     committee's intention that assistance under this section 
     build on that tradition. In addition to African organizations 
     and initiatives, examples of relevant NGOs include, but are 
     not limited to, the Carter Center, the Global Coalition for 
     Africa, the Free Africa Foundation, the International Peace 
     Academy, and the African-American Institute.
       The committee also supports the establishment of an 
     informal conflict prevention network in Africa. Such a 
     network would link senior African and international 
     statesmen, both active and retired, and non-governmental 
     organizations that could provide trained mediation experts. 
     This network could provide early warning and help prevent 
     conflicts. The committee believes the proposed joint venture 
     between the OAU and the Global Coalition for Africa--``Africa 
     Reconciliation''--is a good example of this type of network. 
     The network would coordinate its activities with the 
     Secretary General of the OAU, and its purpose would be to 
     provide early warning and conflict mediation.

        Section 6--African demobilization and retraining program

       Section 6 authorizes the President to facilitate reductions 
     in the size of the armed forces of countries of sub-Saharan 
     Africa by providing assistance for encampment and related 
     activities for the purpose of demobilization of forces and 
     for the reintegration of demobilized military personnel 
     into civilian society. This section also authorizes the 
     President to promote civilian involvement in the planning 
     and organization of demobilization and reintegration 
     activities. Section 6 states that of the foreign 
     assistance funds allocated for sub-Saharan Africa, $25 
     million in each of the fiscal years 1995 and 1996 should 
     be used to carry out the purposes of this section, if 
     conditions permit.
       The committee believes that demobilization, retraining, and 
     reintegration activities are particularly important to the 
     success of conflict resolution activities. These activities 
     will require a close cooperative relationship between the 
     Agency for International Development (AID), the Department of 
     State, and the Department of Defense, and should be 
     undertaken in conjunction with the United Nations, 
     international financial institutions, and other bilateral 
     donors.

      Section 7--Training for Africans in conflict resolution and 
                              peacekeeping

       Section 7 authorizes the President to provide education and 
     training in conflict resolution and peacekeeping for civilian 
     and military personnel of countries in sub-Saharan Africa. 
     Section 7 also provides that of the foreign assistance funds 
     that are available for sub-Saharan Africa, such sums as may 
     be necessary for each of the fiscal years 1995 and 1996 
     should be used to carry out subsection (a).
       The committee expects that training for African military 
     and civilian professionals under this section will be 
     conducted in both the United States and Africa.
       To further build Africa's indigenous conflict resolution 
     expertise, the committee also recommends that the United 
     States Information Agency (USIA) fund a linkage program 
     between an American university and an African university to 
     develop a conflict management program in an African 
     university. The program should help design curricula in the 
     African institution, provide for lecturing and program 
     consultation by American faculty, and provide conflict 
     management training for African faculty. The committee 
     believes that by institutionalizing Africa's ability to train 
     African experts, the need for U.S. assistance will diminish.

 Section 8--Plan for United States support for conflict resolution and 
                  demobilization in sub-Saharan Africa

       Section 8 requires the President to develop an integrated 
     long-term plan to provide support for the enhancement of 
     conflict resolution capabilities and demobilization 
     activities in sub-Saharan Africa. Section 8 requires the 
     President to submit a report to the appropriate congressional 
     committees containing a description of such a plan within 180 
     days of enactment.

                    Section 9--Reporting requirement

       Section 9 requires the President to submit a report to the 
     appropriate congressional committees within 180 days of 
     enactment describing the efforts and progress made in 
     carrying out the provisions of this Act.

                  Section 10--Consultation requirement

       Section 10 requires the President to consult with the 
     appropriate congressional committees prior to providing 
     assistance under sections 3 through 7.

        Section 11--Appropriate congressional committees defined

       Section 11 defines ``appropriate congressional committees'' 
     for purposes of this Act to mean the Committee on Foreign 
     Affairs and the Committee on Appropriations of the House of 
     Representatives and the Committee on Foreign Relations and 
     the Committee on Appropriations of the Senate.

  Mr. GILMAN. Mr. Speaker, I thank the gentleman for his explanation.
  Mr. BURTON of Indiana. Mr. Speaker, I rise in support of H. Res. 60, 
concerning United States support for the new South Africa. I join with 
my colleagues in welcoming President Nelson Mandela to the United 
States, and I too wish him the best in his endeavors to establish a 
nonracial, prosperous, free-market democracy.
  I wish to clarify my position on the final provision of the 
resolution which was the subject of negotiation between majority and 
minority staff and among the Members. The final version reads: ``Steps 
should be taken to increase trade, investment, and development in South 
Africa.''
  I would like to clarify my own understanding of the meaning of this 
phrase and to expound on the reasons why I was not prepared to support 
other formulations. My intent is to ensure that we do not open the door 
to giving away any more taxpayers' dollars to a country which we all 
support but which is very richly endowed with minerals and other 
resources.
  South Africa is a country that deserves massive investment by 
business, and I support such investment wholeheartedly. It is an insult 
to the citizens of South Africa to imply, in the aftermath of 
apartheid--which we all opposed vehemently, albeit in different ways--
that they can only succeed by being on the dole.
  Mr. GILMAN. Mr. Speaker, I withdraw my reservation of objection.
  The SPEAKER pro tempore. Is there objection to the request of the 
gentleman from Florida?
  There was no objection.
  The Clerk read the Senate bill, as follows:

                                S. 2475

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``African Conflict Resolution 
     Act''.

     SEC. 2. FINDINGS AND STATEMENT OF POLICY.

       (A) Findings.--The Congress makes the following findings:
       (1) It is in the national interest of the United States to 
     help build African capability in conflict resolution. A 
     relatively small investment of assistance in promoting 
     African conflict resolution--
       (A) would reduce the enormous human suffering which is 
     caused by wars in Africa;
       (B) would help the United States avoid huge future 
     expenditures necessitated by Somalia-like humanitarian 
     disasters; and
       (C) would reduce the need for United Nations intervention 
     as African institutions develop the ability to resolve 
     African conflicts.
       (2) Africa, to a greater extent than any other continent, 
     is afflicted by war. Africa has been marred by more than 20 
     major civil wars since 1960. Rwanda, Somalia, Angola, Sudan, 
     Liberia, and Burundi are among those countries that have 
     recently suffered serious armed conflict.
       (3) In the last decade alone, between 2,000,000 and 
     4,000,000 Africans have died because of war. There were 
     5,200,000 refugees and 13,100,000 displaced people in Africa 
     in 1993.
       (4) Millions more Africans are currently at risk of war-
     related death. Looming or ongoing conflicts in Zaire, Angola, 
     Sudan, Rwanda, and other countries threaten Africa's future.
       (5) War has caused untold economic and social damage to the 
     countries of Africa. Food production is impossible in 
     conflict areas, and famine often results. Widespread conflict 
     has condemned many of Africa's children to lives of misery 
     and, in certain cases, has threatened the existence of 
     traditional African cultures.
       (6) Conflict and instability in Africa, particularly in 
     large, potentially rich countries such as Angola, Sudan, and 
     Zaire, deprive the global economy of resources and 
     opportunities for trade and investment. Peace in these 
     countries could make a significant contribution to global 
     economic growth, while creating new opportunities for United 
     States businesses.
       (7) Excessive military expenditures threaten political and 
     economic stability in Africa while diverting scarce resources 
     from development needs. Demobilization and other measures to 
     reduce the size of African armies, and civilian control of 
     the military under the rule of law are in the interest of 
     international security and economic development.
       (8) Conflict prevention, mediation, and demobilization are 
     prerequisites to the success of development assistance 
     programs. Nutrition and education programs, for example, 
     cannot succeed in a nation at war. Billions of dollars of 
     development assistance have been virtually wasted in war-
     ravaged countries such as Liberia, Somalia, and Sudan.
       (9) Africans have a long tradition of informal mediation. 
     This tradition should be built upon to create effective 
     institutions through which Africans can resolve African 
     conflicts.
       (10) The effectiveness of U.S. support for conflict 
     resolution programs requires coordination and collaboration 
     with multilateral institutions and other bilateral donors.
       (11) African institutions are playing an active role in 
     conflict resolution and mediation utilizing the experience of 
     elder statesmen. Groups such as the All African Council of 
     Churches have assisted in defusing conflicts. The Economic 
     Community of West African States (ECOWAS) has sought to 
     address the conflict in Liberia by deploying an African 
     peacekeeping force. The Southern African states have been 
     working to prevent a crisis in Lesotho. The Intergovernmental 
     Authority on Desertification and Drought (IGADD) has been 
     engaged in attempting to resolve the conflict in Sudan.
       (12) The Organization of African Unity, under the 
     leadership of Secretary General Salim Salim, has established 
     a conflict resolution mechanism and has been active in 
     mediation and conflict resolution in several African 
     countries.
       (b) United States Policy.--The Congress declares, 
     therefore, that a key goal for United States foreign policy 
     should be to help institutionalize conflict resolution 
     capability in Africa.

     SEC. 3. IMPROVING THE CONFLICT RESOLUTION CAPABILITIES OF THE 
                   ORGANIZATION OF AFRICAN UNITY.

       (a) Authorization of Assistance.--The President is 
     authorized to provide assistance to strengthen the conflict 
     resolution capability of the Organization of African Unity, 
     as follows:
       (1) Funds may be provided to the Organization of African 
     Unity for use in supporting its conflict resolution 
     capability, including providing technical assistance.
       (2) Funds may be used for expenses of sending individuals 
     with expertise in conflict resolution to work with the 
     Organization of African Unity.
       (b) Funding.--Of the foreign assistance funds that are 
     allocated for sub-Saharan Africa, not less than $1,500,000 
     for each of the fiscal years 1995 through 1998 should be used 
     to carry out subsection (a).

     SEC. 4. IMPROVING CONFLICT RESOLUTION CAPABILITIES OF 
                   MULTILATERAL SUBREGIONAL ORGANIZATIONS IN 
                   AFRICA.

       (a) Authorization of Assistance.--The President is 
     authorized to provide assistance to strengthen the conflict 
     resolution capabilities of subregional organizations 
     established by countries in sub-Saharan Africa, as follows:
       (1) Funds may be provided to such organizations for use in 
     supporting their conflict resolution capability, including 
     providing technical assistance.
       (2) Funds may be used for the expenses of sending 
     individuals with expertise in conflict resolution to work 
     with such organizations.
       (b) Funding.--Of the foreign assistance funds that are 
     allocated for sub-Saharan Africa, such sums as may be 
     necessary for each of the fiscal years 1995 through 1998 may 
     be used to carry out subsection (a).

     SEC. 5. IMPROVING CONFLICT RESOLUTION CAPABILITIES OF NON-
                   GOVERNMENTAL ORGANIZATIONS.

       (a) Authorization of Assistance.--The President is 
     authorized to provide assistance to nongovernmental 
     organizations that are engaged in mediation and 
     reconciliation efforts in sub-Saharan Africa.
       (b) Funding.--Of the foreign assistance funds that are 
     allocated for sub-Saharan Africa, such sums as may be 
     necessary for each of the fiscal years 1995 and 1996 should 
     be used to carry out subsection (a).

     SEC. 6. AFRICAN DEMOBILIZATION AND RETRAINING PROGRAM.

       (A) Authorization of Assistance.--In order to facilitate 
     reductions in the size of the armed forces of countries of 
     sub-Saharan Africa, the President is authorized to--
       (1) provide assistance for the encampment and related 
     activities for the purpose of demobilization of such forces; 
     and
       (2) provide assistance for the reintegration of demobilized 
     military personnel into civilian society through activities 
     such as retraining for civilian occupations, creation of 
     income-generating opportunities, their reintegration into 
     agricultural activities, and the transportation to the home 
     areas of such personnel.
       (b) Funding.--Of the foreign assistance funds that are 
     allocated for sub-Saharan Africa, $25,000,000 for each of the 
     fiscal years 1995 and 1996 should be used for the assistance 
     described in subsection (a), if conditions permit.
       (c) Civilian Involvement.--The President is also authorized 
     to promote civilian involvement in the planning and 
     organization of demobilization and reintegration activities.

     SEC. 7. TRAINING FOR AFRICANS IN CONFLICT RESOLUTION AND 
                   PEACEKEEPING.

       (a) Authorization.--The President is authorized to 
     establish a program to provide education and training in 
     conflict resolution and peacekeeping for civilian and 
     military personnel of countries in sub-Saharan Africa.
       (b) Funding.--Of the funds made available under chapter 5 
     of part II of the Foreign Assistance Act of 1961, such sums 
     as may be necessary for each of the fiscal years 1995 and 
     1996 should be used for the purposes of subsection (a).

     SEC. 8. PLAN FOR UNITED STATES SUPPORT FOR CONFLICT 
                   RESOLUTION AND DEMOBILIZATION IN SUB-SAHARAN 
                   AFRICA.

       (a) In General.--Pursuant to the provisions of sections 3 
     through 7, the President should develop an integrated long-
     term plan, which incorporates local perspectives, to provide 
     support for the enhancement of conflict resolution 
     capabilities and demobilization activities in sub-Saharan 
     Africa.
       (b) Contents of Plan.--Such plan should include:
       (1) The type, purpose, amount, and duration of assistance 
     that is planned to be provided to conflict resolution units 
     in sub-Saharan Africa.
       (2) The type and amount of assistance that is planned to be 
     provided for the demobilization of military personnel of 
     countries of sub-Saharan Africa, including--
       (A) a list of which countries will receive such assistance 
     and an explanation of why such countries were chosen for such 
     assistance; and
       (B) a list of other countries and international 
     organizations that are providing assistance for such 
     demobilization.
       (3) The type and amount of assistance that is planned to be 
     provided to nongovernmental organizations that are engaged in 
     mediation and reconciliation efforts in sub-Saharan Africa.
       (4) A description of proposed training programs for 
     Africans in conflict resolution and peacekeeping under 
     section 7, including a list of prospective participants 
     and plans to expand such programs.
       (5) The mechanisms to be used to coordinate interagency 
     efforts to administer the plan.
       (6) Efforts to seek the participation of other countries 
     and international organizations to achieve the objectives of 
     the plan.
       (c) Report.--Not later than 180 days after the date of the 
     enactment of this Act, the President shall submit to the 
     appropriate congressional committees a report containing a 
     description of the plan developed under this section.

     SEC. 9. REPORTING REQUIREMENT.

       (a) Requirement.--The President shall submit to the 
     appropriate congressional committees a report describing the 
     efforts and progress made in carrying out the provisions of 
     this Act.
       (b) Date of Submission.--The first report submitted under 
     subsection (a) shall be submitted no latter than 180 days 
     after the date of the enactment of this Act, and shall be 
     submitted annually thereafter.

     SEC. 10. CONSULTATION REQUIREMENT.

       The President shall consult with the appropriate 
     congressional committees prior to providing assistance under 
     sections 3 through 7.

     SEC. 11. APPROPRIATE CONGRESSIONAL COMMITTEES DEFINED.

       For purposes of this Act, the term ``appropriate 
     congressional committees'' means the Committee on Foreign 
     Affairs and the Committee on Appropriations of the House of 
     Representatives and the Committee on Foreign Relations and 
     the Committee on Appropriations of the Senate.

  The Senate bill was ordered to be read a third time, was read the 
third time, and passed, and a motion to reconsider was laid on the 
table.

                          ____________________