Great Game in the Horn of Africa (PERSPECTIVE)

By Paul Mutter

Child soldier in Uganda, photo courtesy of UNICEFThe United States announced this past week that it is deploying a 100-man mission to assist the Ugandan government in tracking down the remnants of the Lord's Resistance Army (LRA), a force whose bloody conflict with the Ugandan military has devastated northern Uganda and its environs since 1987.

But why now, in 2011, is the U.S. government making this commitment to combat the LRA?

The humanitarian impulse is certainly present among policymakers, if for no other reason than humanitarianism scores political points in Washington. Multiple human rights groups have been supportive of the announcement. The Ugandan government and people certainly desire an end to this conflict. As undemocratic as the Ugandan government of Yoweri Museveni has proven, the state the LRA would establish—if we take stock of their rule over parts of northern Uganda—would almost certainly be an even more nightmarish place. Joseph Kony, the founder of the LRA who masquerades as a champion of his Acholi ethnic group and as a Christian mystic, has ordered the killing, maiming, and rape of tens of thousands of people across northern Uganda and neighboring countries. This “army” relies heavily on child soldiers and "concubines," young girls abducted from churches and schools to serve as servants and sex slaves.

Make no mistake: the LRA is an abominable threat to the Ugandan people—and to the people of Sudan, South Sudan, the Democratic Republic of Congo, and the Central African Republic, countries the LRA moves in and out of seeking safe havens.

But we must not be blinded by the darkness of the LRA so much that we fail to see the tarnish that mars the U.S. and Ugandan governments’ joint interests in East Africa.

Why did Washington not intervene at any other point over the course of the LRA's horrendous, decades-long campaign in Northern Uganda, where civilians not caught in the sadistic sights of the LRA often found themselves in the crossfire between the terrorist army and the Ugandan military? George W. Bush sent advisers in 2008-9 to assist the Ugandan military in what is said to have been a botched capture operation, but why did it take five U.S. presidents to get to this stage—a stage in which the LRA has been, according to most reports, drastically weakened? What took Washington so long to finally accept this mandate, which human rights activists have been urging for years?

The Obama administration is not likely embracing a “Responsibility to Protect.” The sad answer is that only now, in the post-9/11 world, is there sufficient U.S. interest to risk getting "mired" in Africa. The unstated target of this 100-man deployment is, in fact, al-Qaeda.

AFRICOM and the Horn of Africa

The 100-strong force being sent to Uganda (ostensibly as advisers) will be overseen by AFRICOM, the new strategic command for Africa created by George W. Bush in 2007. AFRICOM provides billions of dollars worth of equipment to U.S. allies in Africa, as well as controversial training and intelligence-sharing programs, and even Special Forces deployments.

For AFRICOM, security imperatives intersect with economic ones. At AFRICOM's urging, for example, the U.S. military has designed war games involving the "fall" of Nigeria, the no. 5 source of U.S. oil imports, to insurgent forces. The United States has had a strategic interest since the 1990s in demonstrating its commitment to the security of Uganda, which has fought al-Shabab in Somalia and until recently bordered Sudan. Sudan, an Islamist pariah state and also an LRA supporter, is still on the radar for U.S. and Ugandan policymakers (especially with South Sudan's formation), but Somalia is the "new" looming terror threat, a "failed state" fought over by Islamist groups like al-Shabab and infiltrated by others. The United States asserts that a strong al-Qaeda presence there today has ill designs for the countries of the Arabian Peninsula, Ethiopia, Kenya, and as we saw in 2010, Uganda.

The Ugandans did not pull out from Somalia following the 2010 Kampala bombings, though, and remain committed to maintaining a force there, something other U.S. allies in Africa have been reluctant to do. Those boots on the ground might go some way in firmly establishing a central Somalia government the United States and Uganda can live with. As Michael O’Hanlon of the Brookings Institute has said:

To the extent the United States has any interest in Somalia being stabilized, it has an interest in seeing the Ugandan government able to keep its own country together, and able to keep it its own forces partially deployed to Somalia in order to help with that country where there have been al-Qaida related groups in the past.

The United States is waging a drone war in Somalia. Although it is not on the scale of the campaigns in Pakistan or Yemen, this may soon change. But with "Black Hawk Down" never far removed from Washington’s memory, sending troops into Somalia will be a hard decision for U.S. officials to make. Furthermore, the United States is, once again after its brief dalliance with "provincial reconstruction teams," no longer as interested in nation building as in effecting regime change and targeted assassinations. Uganda helps the latter along nicely in Somalia and may one day make the former possible there in concert with AFRICOM.

For now and for the foreseeable future, the Ugandan forces in Somalia are working in line with U.S. interests (as are the Kenyans, who this very Monday entered Somalia in force and are fighting against al-Shahab).

A War for Oil?

There are also economic considerations, though these may be secondary to security concerns. Uganda is indeed hoping to exploit newly discovered oil and gas reserves, and the government has undertaken a hurried development campaign. But the United States is not well-placed at this time to pursue energy extraction opportunities there: the UK-registered Tullow Oil, joined by the French Total AS and the PRC's China National Offshore Oil Corporation, holds the best energy extraction hand in Uganda today. The U.S. government is, naturally, keeping an eye on the sector, and as The Economist notes, "several jealous Western governments and companies want to stall China’s advance into the Congo basin, with its vast reserves of minerals and timber."

Whatever potential Uganda holds—in and of itself and as a gateway to the DRC—China's much stronger economic position in Uganda and the UK's ties to its former colony do not leave the United States much economic leeway besides foreign aid allocations at this point. But what is clear is that Washington’s commercial prospects in Uganda in the coming years will depend on the security situation.

Emboldening Museveni

Perhaps the most pressing issue for Ugandans, however, is the extent to which U.S. assistance might not only stir up a renewed conflict in the region but also embolden Yoweri Museveni—once hailed as an upstanding member of "a new generation of African leaders"—to further crack down on opposition politicians in Uganda, which until 2005 was an officially one-party state.

As Wikileaks disclosures show, the United States holds few illusions about the undemocratic and corrupt tendencies of Museveni and his party, the National Resistance Movement (NRM). "It appears Ugandan security services spend the majority their time tracking opposition leaders and critics of the NRM," reported a 2010 cable from the U.S. Embassy in Kampala.

Museveni's participation in the Second Congolese War, in which Ugandan military forces and their Congolese allies were accused of trafficking "blood diamonds" and committing human rights abuses, also damaged his international image. His questionable domestic record on both human rights and corruption issues has further soured foreign lenders and leaders toward him. The presidential election held in Uganda earlier this year delivered Museveni another stellar victory, though it was marred by accusations of intimidation on the part of the security apparatus and ruling party, accusations that the U.S. Embassy found credible in previous elections.

Protests against Museveni's policies have frequently turned deadly thanks to the intervention of the state security apparatus, and just days after the U.S. deployment was announced, Ugandan security forces arrested 45 "Action 4 Change" activists, 15 of whom will be tried for treason. If convicted, they will be subject to a death sentence.

Action 4 Change is a coalition of opposition parties, community organizers, and rights groups who have undertaken a series of "walk to work" protests to demonstrate against food and fuel price increases. The Ugandan government asserts that Action 4 Change members are not nonviolent demonstrators but disgruntled electoral losers plotting the overthrow of the government. And Uganda Radio Network reports that a 500-man Coalition for Stable Uganda (CSU), led by an NRM member, has been formed "to counter activities of [the] Action for Change Coalition" because "there is no doubt in [the CSU's] minds that the opposition actions are well coordinated with backing from other forces bent [on] destabilizing Uganda, loot[ing] property, and caus[ing] deaths."

This landmark U.S. assistance to Uganda against the LRA, simply by putting boots on the grounds, surpasses any past offers of foreign or diplomatic aid from U.S. officials. But will Washington pressure Museveni to clean up corruption or scale back his crackdown on Action 4 Change? That's the sort of discussion that needs to be happening.

- Paul Mutter is a graduate student at the Arthur L. Carter Journalism Institute at NYU and a contributor to Foreign Policy In Focus. 

Originally published by Institute for Policy Studies licensed under a Creative Commons Attribution 3.0 United States License.