Holding an emergency meeting following advances by the 23 March Movement, or M23, towards the city of Goma in the Democratic Republic of the Congo and concurrent attacks on United Nations peacekeepers there, the Security Council heard today that urgent action is needed to address a rapidly deteriorating situation while time remains to do so.
"The United Nations is profoundly concerned by the resumption of hostilities," said Jean-Pierre Lacroix, Under-Secretary-General for Peace Operations. On 23-24 January, M23 fired on positions of the United Nations Organization Stabilization Mission in the Democratic Republic of the Congo (MONUSCO). He reported that, as a result, several blue helmets were "killed in carrying out the tasks entrusted to them by this Council". He also noted that M23 has significantly extended its territorial gains over the past few weeks and has opened a new front in South Kivu, from which MONUSCO recently withdrew.
"At this critical juncture, with the lives of countless vulnerable civilians, peacekeepers and respect for this Council's mandate at stake, MONUSCO remains committed to the robust defence of its mandate," he stated. He stressed that, for its part, the Council "must honour the sacrifices made by the peacekeepers who laid down their lives in pursuit of this noble goal by sending a clear and unequivocal message to M23 and its backers that actions endangering the lives of civilians and UN peacekeepers will not be tolerated."
Also reporting on the situation was Bintou Keita, Special Representative of the Secretary-General for the Democratic Republic of the Congo and Head of MONUSCO. Noting that M23 and Rwandan forces have penetrated the outskirts of Goma - "causing mass panic and flight amongst the population" - she said that roads are blocked and that M23 has declared Goma's airspace closed. "In other words, we are trapped," she said, calling on the Council to "act now" to secure the civilian population, humanitarian-aid workers and all UN personnel.
Calling on the Democratic Republic of the Congo and Rwanda to continue political negotiations in the context of the Luanda Process, she urged: "More than ever, we must find a political solution." She also called on Rwanda to withdraw its forces from Congolese territory and end support for M23, and on the Democratic Republic of the Congo to "make significant efforts" to neutralize the Democratic Liberation Forces of Rwanda, or FDLR.
Joyce Msuya, Assistant Secretary-General for Humanitarian Affairs and Deputy Emergency Relief Coordinator, then stressed that if hostilities spread into Goma, "the impact on civilians could be devastating". In North and South Kivu, hundreds of civilians have been killed and injured over the last few weeks. Further, hundreds of thousands have fled their homes, humanitarian access remains constrained and hospitals are overwhelmed. Against that backdrop, she urged all parties to "protect civilians and the critical infrastructure they rely on".
She also urged them to avoid using wide-area explosives and heavy weapons in populated areas. "This will be particularly important should the hostilities spread into Goma, given the risks of conflict in urban areas," she observed. And, to address the escalating humanitarian crisis "before the situation worsens further", she called on the Council to end the hostilities, ensure respect for international law and provide adequate funding for humanitarian action.
"The resolution of the conflict in eastern DRC [Democratic Republic of the Congo] must be political, not military," stated the representative of Sierra Leone, also speaking for Algeria, Guyana and Somalia. The Luanda and Nairobi Processes "remain viable paths to peace", he said, while underscoring that the sovereignty and territorial integrity of the Democratic Republic of the Congo must be respected "by all States and non-State actors alike". France's representative, stating that the presence of foreign military forces threatens civilian protection and contributes to displacement, concurred: "Force is not an option."
Along those lines, China's representative said: "All external forces should refrain from providing support to M23 and other armed groups to prevent further deterioration." He also joined other Council members in pointing out that "attacks on peacekeepers may constitute war crimes". The representative of Greece echoed that, also noting that attacks against MONUSCO peacekeepers constitute a basis for sanctions designations. Also making these points was the representative of the United Kingdom, who observed that "the numbers of those lost and injured is changing by the hour".
These attacks, stressed Slovenia's representative, constitute "an attack on peace itself". Recalling the Council's recent, unanimous decision to renew MONUSCO's mandate, she underlined the organ's responsibility to "stand unequivocally behind [its personnel] in these perilous times and ensure they return safely to their loved ones". She added: "The international community, and this Council, cannot afford to remain passive in the face of this crisis." Panama's representative similarly stated: "History will not judge us on our intentions but, rather, our actions."
The United Nations must take immediate measures to ensure the safety and security of both civilians and peacekeepers, underscored the representative of Pakistan. Expressing particular concern over a "highly exposed" Pakistani artillery battery near Sake, he stressed that this unit should be quickly redeployed for the safety of its personnel and heavy, expensive equipment. Stating that peacekeepers cannot be expected to implement the "challenging mandate assigned to them by the Council" without adequate support, he also urged the organ to address the root cause of the conflict - the illegal exploitation of natural resources.
On that, Denmark's representative observed: "The illegal exploitation of natural resources in eastern DRC is a key driver to instability in the Great Lakes region - this must end." The representative of the United States also expressed concern over the illicit exploitation of mining areas in territories controlled by M23, as did the representative of the Russian Federation: "The struggle to gain access towards strategically important Congolese minerals is one of the reasons for the continuation of the crisis."
The representative of the Republic of Korea detailed that crisis: "In the past week alone, as [M23] has expanded its territory by 11 per cent, the number of [internally displaced persons] has doubled to 400,000." He joined other Council members in calling on Rwanda to cease its support for the group and urged both Kinshasa and Kigali to return to dialogue and fully implement their commitments under the Luanda Process. He added: "We recognize the differing interests of the DRC and Rwanda, but further escalation of tensions is simply unacceptable - many lives are at stake."
Thérèse Kayikwamba Wagner, Minister for Foreign Affairs, International Cooperation and Francophonie of the Democratic Republic of the Congo, meanwhile, took the floor to stress that the situation in her country is "not a conflict like others". Rather, it is "a declaration of war that no longer hides itself behind diplomatic manoeuvres", she said, stressing that "Rwanda is preparing to orchestrate a carnage in broad daylight". She also said that it is "clear that this crisis is directly linked to the economic plunder of our country by Rwanda".
On that, she said that over 150 tons of coltan are illegally extracted and transported to Rwanda each month, where they are fraudulently labelled for export. Yet, while this illicit commerce finances the military activities of armed groups, it is "only one aspect of the aggression carried out by Rwanda", she stressed. Others include the systematic targeting of peacekeeping forces, the 24 January assassination of the military governor of North Kivu and the sabotage of the Luanda Process.
Underscoring that the Council "cannot content itself with declarations of concern or simply 'remaining seized of the matter'", she said that the organ's duty is to "defend human life without distinction". It must therefore order an immediate end to Rwanda's hostilities, impose targeted sanctions against those responsible for the aggression, impose an embargo on the export of all minerals labelled as Rwandan - particularly coltan and gold - and revoke Rwanda's status as a troop-contributing country. "History will remember your decision today," she said.
Meanwhile, Rwanda's representative stressed: "The current crisis could have been averted had the DRC Government demonstrated a genuine commitment to peace." While the Luanda Process achieved "significant milestones" - including a ceasefire that came into force on 4 August 2024 - the Government and Armed Forces of the Democratic Republic of the Congo decided to increase militarization in the country's east in October 2024. This included the deployment of heavy weaponry and additional troops - 10,000 from Burundi - along the border.
"By prioritizing militarization of the conflict instead of embracing the regional mechanisms that have been put in place to foster a sustainable solution born out of dialogue, the conflict has continued to escalate - leading to the prevailing situation today," he said. He added that the FDLR has "even moved from being a suppletive force to a strategic ally of the Kinshasa Government". Further, he said that the President of the Democratic Republic of the Congo has publicly vowed to instigate regime change in Rwanda for two years now.
While stating that "no one should harm peacekeepers", he expressed concern that MONUSCO is "at the risk of being sucked into a conflict in which it would be a belligerent force". MONUSCO should therefore focus on protecting civilians instead of fighting alongside Kinshasa's military coalition. Noting that the situation today mirrors that which occurred 12 years ago, he stressed that "the DRC must play a helpful role - after all, this is a Congolese problem, for which the DRC is looking to outsource its solution."
"It is with profound regret that this meeting is taking place at a time when a number of peacekeepers have lost their lives in the line of duty," observed South Africa's representative. Urging the Council to "send a clear message that peacekeepers' lives matter", she underlined the need to "value and safeguard the contribution of those entrusted to carry out the mandates adopted in this chamber". Extending condolences to all victims' families, the representative of Uruguay reiterated his country's "steadfast commitment to peace".
Angola's representative pointed to "remarkable progress in the implementation of the Luanda Process". "We need speedy and unconditional de-escalation of the conflict and genuine, renewed engagement of the parties to explore the ways of overcoming the pending issues," he added. On that, Burundi's representative said that the Luanda and Nairobi Processes "set out a clear road map to reach a lasting ceasefire". Calling on the Council to demand an end to foreign interference and act decisively to guarantee that the Democratic Republic of the Congo can fully exercise its sovereignty and restore peace, he stressed: "Security and stability in Central Africa and beyond are at stake."
