Some Human Security Implications
The threats and vulnerabilities outlined above have had wide-ranging effects on human security in the Gulf of Guinea, some of which have already been discussed. Together, they undermine economic activity, hinder the movement of goods and services, and make it difficult for these countries to attain their development goals. By affecting these areas, maritime security problems compound the sub-region’s human security challenges. Therefore, understanding the implications of continued maritime insecurity (in all its forms) makes a strong case for urgent, comprehensive and collaborative reform.
Economic Losses. Poaching undermines the local fishing industry, crime is a disincentive to commerce because it increases the cost of doing business, and pollution undermines tourism by degrading the beach and marine environments. The fiscal impact of these losses is felt via lost landing fees, licensing fees, taxes, and levies; as well as via the onerous spending required to respond to security incidents. The quantum of annual losses exceeds debt service requirements on multilateral loans in the sub-region. This suggests that efforts to reduce these losses could enhance government revenue, thereby facilitating more investment in health, education and poverty reduction. Potential additional revenue could also be used to fund maritime security initiatives; the Ghanaian government has adopted this approach to partially finance a “home grown” national maritime security strategy (with support from U.S. Naval Forces Europe).
At a micro level, constrained economic activity limits employment opportunities, as well as the income earning potential, of coastal populations. Unemployment and low wages exacerbate human security concerns in the sub-region. Perhaps the most significant losses result from lost investment. Although some researchers estimate some $10 billion worth of investment in the Gulf of Guinea’s petroleum sector from 2005-2015, continued instability in Nigeria’s Delta Region could force investors to reconsider their decisions. Maritime instability is one reason many investors and entrepreneurs have shown relatively little interest in the sub-region’s potentially lucrative fishing and tourism industries.
Trade and Shipping. The safety/security of shipping routes and facilities is also important because an overwhelming proportion of trade in the sub-region traverses the maritime domain. Insecure and inadequate facilities constrain activity and raise both transportation costs and insurance premiums. Trading partners (principally in Europe) have expressed some concern. For example, the failure of most cocoa exporting countries in the Gulf of Guinea to comply with the European Cocoa Association’s June 2004 directive on port security resulted in higher insurance costs for operators in those countries. Some countries are already taking steps to address this issue. The government of Benin signed a Millennium Challenge Compact with the United States in 2006, which in part included improvements to the port of Cotonou. This project prioritized measures to improve port safety and security as a means to promote economic growth and improve human security.
Millennium Development Goals. In the late 1990s developing countries agreed on a set of eight broad objectives, and associated benchmarks, to reduce poverty and enhance human security. Challenges in the maritime domain make it more difficult for countries in the Gulf of Guinea to attain these goals.
Growing Interest in the Gulf of Guinea
The immense potential of the Gulf of Guinea (both in terms of its resource endowment and strategic importance as a shipping route/hub) has drawn domestic and international attention to the urgent need for focused action to address existing and potential challenges. Given the multifaceted nature of pervasive threats, any successful strategy would have to be inter-sectoral, and involve a broad spectrum of domestic and international stakeholders.
Since January 2004, there have been close to twenty international events focusing on various aspects of maritime security in Africa and the Gulf of Guinea. Although this trend has greatly contributed to a fuller appreciation of the nature, scope and implications of these issues (domestically, regionally and globally), much more needs to be done to translate good intentions into coherent, targeted and tangible strategies. Coordinating the outcomes of the various events and initiatives remains a serious challenge. For example, programs to provide equipment and training to improve maritime domain awareness should be complemented by efforts to improve arrest capabilities. Being better aware of activity in the maritime domain is of little value if steps could not be taken to successfully arrest wrongdoers. By the same token, measures to ratify international conventions and promulgate relevant domestic legislation should be accompanied by judicial reform. Good laws require a robust, capable and independent judiciary.
The United States has played an important role in the Gulf of Guinea not only by hosting meetings for experts and decision-makers to consider and develop appropriate strategies, but also by providing technical and material support. The U.S. National Strategy for Maritime Security (September 2005) highlights the importance of integrating efforts to address all threats to maritime security. It underscores the United States’ commitment to assisting African countries to promote maritime sovereignty by helping them improve monitoring, establish responsive decision-making arrangements, enhance interdiction capacity, develop effective policing protocols and promote regional coordination.
Furthermore, the U.S. International Outreach and Coordination Strategy for the National Strategy for Maritime Security emphasizes the importance of “enhanced outreach to foreign governments, international and regional organizations, private sector partners and the public to solicit support for improved global maritime security.” In December 2006, the Bush Administration unveiled the African Maritime Governance Initiative, which is a multi-agency approach to enhanced maritime governance. This initiative will help African countries improve maritime domain awareness and prevent exploitation/misuse of resources, and improve law enforcement efforts, secure facilities and sea lanes.
Developing a Strategic Approach for Enhanced Maritime Governance
A strategic approach for the Gulf of Guinea requires consistency between domestic and partner-initiated programs, as well as significant regional collaboration given the trans-national character of most threats and vulnerabilities. Thus, an effective strategy must incorporate national, regional and global realities. While the precise configuration would largely be country-specific, effective strategies would broadly adhere to a four-fold framework encompassing: demonstrable political commitment, increased operational efficiency, transparent regulatory systems, and heightened public awareness.
1. Demonstrable Political Commitment
Strong political will and national ownership are a vital part of an effective strategy. Leaders and citizens must demonstrate an unwavering commitment to address corruption and implement comprehensive strategies. An unwavering political will (which is central to any successful strategy) is currently lacking because (a) vestiges of a land-centric approach still persist, (b) some authorities are complicit, and (c) other authorities are overwhelmed by the magnitude of the task. Given the trans-national character of maritime security threats, this political will must also be expressed regionally. In this vein, countries in the sub-region must be willing to cede sovereignty concerns to advance regional solutions in this regard.
The success of political and policy pronouncements is contingent upon long-term engagement and an inclusive and participatory political process. Gulf of Guinea states have already taken tangible steps to elevate maritime security issues. The November 2006 communiqué adopted at the Maritime Safety and Security Ministerial Conference in Benin clearly articulates sub-regional commitment to demonstrate sustained political will. National governments are also making progress. The government of Gabon has identified a focal ministry to coordinate maritime security programs and established a Maritime Safety Committee to bolster inter-agency collaboration. The Nigerian government established the Presidential Implementation Committee for Maritime Safety and Security (PICOMSS) in 2005, reporting directly to the head of state, as a demonstration of its renewed commitment to improved maritime security.
2. Increased Operational Efficiency
Countries need to take immediate steps to detect, apprehend and prosecute wrongdoers. This requires the acquisition of appropriate equipment, technology and trained human resources, including obtaining appropriate and adequate AIS systems and surveillance infrastructure. Countries also need to develop processes and policies that would enhance inter-agency coordination and domestic/sub-regional information sharing and analysis.
Capacity building is necessary to recruit and retain required personnel. Gulf of Guinea countries have benefited from multilateral and bilateral initiatives in this regard. In 2005, the International Maritime Organization conducted two national (Gabon and Nigeria) and one sub-regional (held in Ghana) “train the trainers” workshops on maritime security. The U.S. Coast Guard and U.S. Naval Forces in Europe have also been very instrumental in supporting capacity building initiatives across the sub-region.
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Several of the Gulf of Guinea countries are taking steps in the right direction. Benin’s market access project, part of its MCA program, aims to improve operational efficiency by upgrading surveillance and communication facilities and strengthening institutional reforms. Angola’s National Maritime Surveillance System plans to install new radar systems, adopt appropriate AIS technology, and introduce sea patrol vessels and aircraft in order to improve its ability to effectively monitor its maritime environment. The government also plans to establish a network of data collection and processing centers to expedite and facilitate relevant information flows.
At the sub-regional level, Gulf of Guinea countries are committed to collaborative action via the MOWCA initiative. Objectives agreed upon during the July 2006 IMO/MOWCA meeting include the establishment of (a) an integrated sub-regional coast guard network, (b) a center for information and communication, (c) a transit facilitation and “sealed grid” system, and (d) a regional maritime fund to support these efforts.
3. Transparent Regulatory Systems
Countries in the sub-region need to adopt and ratify of international conventions, which would provide a framework for a robust regulatory framework. Within this context, domestic legislative frameworks must be made more transparent and enforceable, while judicial systems should be reformed and judges more accountable.
In addition to taking steps to ratify and implement all relevant international conventions, however, Gulf of Guinea states are also reviewing domestic legislation. Harmonizing sub-regional laws would facilitate policy implementation—for example, the ability of sub-regional states to collaborate on issues like “hot pursuit.” Gabon updated its Merchant Marine Code (January 1963) in December 1994, and introduced specific laws to secure its fishing industry (Law No. 15/2005) in 2005. Other countries (like Ghana) are recognizing that existing laws and regulations may only have limited utility. According to senior Ghanaian officials, existing fisheries laws only affect the country’s two industrial ports in Tema and Takoradi, while 334 smaller landing sites (catering to an estimated 13,000 smaller vessels) are relatively ignored. Efforts are currently underway to make the legislative framework more comprehensive in scope and implementation.
4. Heightened Public Awareness
Finally, sensitizing leaders and general public about the potential maritime security benefits makes it easier to build national/regional ownership for investments in maritime security. Understanding the implications of continued threats also helps domestic and sub-regional actors better understand their respective roles. The Plan of Action adopted at the 2006 ministerial conference in Benin commits Gulf of Guinea states to develop national and sub-regional strategies for increasing public awareness about maritime safety and security, and establish an interactive database and dedicated website to educate and sensitize the general public about the opportunities and challenges in the maritime domain.
Conclusion
As evidenced by their active participation and policy commitments at various regional programs, countries in the Gulf of Guinea recognize the importance of maritime security in the sub-region. Many governments are taking steps to formulate and implement national and regional strategies to address the growing challenges they face. Gulf of Guinea leaders need to move from good intentions to tangible results. It is also clear that no single country will be successful on its own. The benefits of the region’s abundantly endowed maritime domain could be derived through a firm commitment to collective action. A shared investment in maritime security (which is a “public good”) would have far-reaching human security benefits, and positive global implications.
Regional organizations (like MOWCA), international agencies (like the IMO), commercial entities (like petroleum and fishing companies) and bilateral partners (like the United States) could play a crucial role, but their efforts would have limited utility if they are not well coordinated and consistent with the needs of the sub-region. Luckily, both the governments and citizens of Gulf of Guinea states are much better sensitized about the opportunities and vulnerabilities in their maritime domain than in the past, and their expressed commitment to joint action to combat shared threats, with assistance from a broad range of partners, bodes well for the future.
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