The landscape of peace operations in Africa has transformed over the past decade, including a marked increase in African-led peace support operations (PSOs). Since the early 2000s, the African Union (AU) and UN have evolved distinct, albeit parallel, conceptual and operational approaches to the protection of civilians (POC). While the UN views POC in peacekeeping as a whole-of-mission objective, with military, police, and civilian components prioritizing POC and proactively protecting civilians, the AU views itself as contributing to the protection of civilians primarily by neutralizing armed groups and establishing a protective environment. These differences raise important questions about how POC will be upheld in the context of the UN-AU partnership.

This report examines the operational differences between UN and AU approaches to POC, assessing their respective advantages and limitations. It highlights how African-led PSOs tend to be more able and willing to use force to respond to outbreaks of violence and to contain aggressors but have less sustainable and flexible financing than UN peacekeeping operations. Meanwhile, UN peacekeeping missions with POC mandates have more robust civilian and police components but may lack rapid response capabilities. To strengthen their partnership on POC, the two organizations should leverage their comparative advantages, acknowledge their respective limitations, and work toward an approach to POC that is tailored to each context.

Based on the findings in this report, the following recommendations are made:

Understandings of POC:

• The UN Department of Peace Operations (DPO) and AU Peace Support Operations Division (PSOD) should continue to facilitate understanding of their comparative advantages and challenges on POC.
• POC should be a central focus of efforts to implement the 2017 Joint Framework for Enhanced Partnership in Peace and Security.
• UN DPO and AU PSOD should share lessons learned and strengthen each other’s capacity.
• The AU compliance team should continue to support regional economic communities in adhering to AU POC policies.

Structures on POC:

• The UN and AU should establish a joint lessons-learned mechanism within the UN Office to the AU to systematically assess joint UN-AU missions and African-led operations.
• UN DPO and AU PSOD should develop and implement a joint protection strategy when engaged in partnered operations.
• UN DPO and AU PSOD should conduct a thorough joint POC assessment prior to any partnered deployments.
• The AU Peace and Security Council and UN Security Council should engage in regular consultations on peace support operations, including on mandates.