Luxembourg delays adoption of EU sanctions against Rwanda

Luxembourg Blocks EU Sanctions Against Rwanda Amid Escalating Conflict in the DRC

The European Union (EU) has hit a roadblock in its efforts to impose sanctions on Rwanda, as Luxembourg surprisingly vetoed the adoption of stricter measures against Kigali. This decision came amid rising tensions over Rwanda’s alleged involvement in the escalating conflict in the Democratic Republic of Congo (DRC), where the M23 rebel group, reportedly supported by Rwanda, recently seized control of the strategic city of Goma. The EU’s High Representative for Foreign Affairs and Security Policy, Kaja Kallas, described the situation as "very grave" and warned that the region is on the brink of a wider conflict. She emphasized that the territorial integrity of the DRC, like that of Ukraine, must be respected and that the UN Charter applies universally. As part of the EU’s response, defence consultations with Rwanda have been suspended, and the bloc has urged Kigali to withdraw its forces from Congolese territory. Additionally, the EU has placed a Memorandum of Understanding (MoU) with Rwanda, signed in February 2024, under review. The MoU focuses on sustainable value chains for raw materials, but its implementation has been fraught with transparency issues and has yet to produce a concrete roadmap.

Luxembourg’s Veto and the Rationale Behind It

Luxembourg’s decision to block more ambitious sanctions against Rwanda has sparked confusion and criticism within the EU. Among the proposed sanctions were individual measures targeting nine individuals and one entity, as well as the freezing of €20 million allocated to Rwanda under the European Peace Facility (EPF) to support its military operations in Mozambique’s Cabo Delgado province. Luxembourg’s Foreign Minister, Xavier Bettel, defended the move, arguing that the EU should wait for the outcome of ongoing negotiations in Harare, Zimbabwe, where African foreign ministers were meeting to address the crisis. Bettel stated that it is crucial to allow these talks to proceed before imposing new sanctions, as they could potentially pave the way for a resolution. However, he also acknowledged that additional pressure on Rwanda is necessary. Luxembourg’s stance appears to be driven by a desire to retain flexibility in negotiations, rather than exhausting all EU leverage at once. However, some observers, such as Erik Kennes of the Egmont Royal Institute for International Relations, have speculated that Luxembourg’s decision may be influenced by its own interests, particularly its 2021 bilateral agreement with Rwanda to support the development of an international financial center in Kigali. Kennes described the EU’s measures as "timid" and "late," criticized the lack of progress on the MoU, and suggested that Rwanda has refused to meet transparency requirements, rendering the agreement ineffective.

The Human Cost of the Conflict and Civil Society’s Call for Action

The conflict in the DRC has had devastating consequences, with thousands of lives lost and widespread displacement reported by the UN. The M23 rebels, allegedly backed by Rwanda, have been accused of exploiting the region’s rich mineral resources. Civil society groups, including the Free Congo collective, have mobilized to demand stronger EU action against Kigali. During a protest in Brussels, Maddy Tiembe, president of AFEDE, shared harrowing accounts of violence, including the killing of young people in Goma, and called for the EU to scrap its MoU with Rwanda. Sonny Kabeya of the UDPS echoed these sentiments, asserting that Rwanda does not possess the minerals covered by the agreement and accusing Kigali of using the M23 to plunder resources in the DRC. These calls for accountability are supported by both Congolese authorities and the UN, who have condemned Rwanda’s alleged interference in the conflict.

International Reactions and the Ongoing Crisis

The international community has stepped up its condemnation of Rwanda’s actions. The UN Security Council recently adopted a resolution "strongly condemning" the M23’s offensive in the DRC, which it alleges is supported by the Rwandan Defence Force. Meanwhile, the European Parliament has called for the suspension of the EU’s MoU with Rwanda until Kigali ceases its involvement in the DRC and halts the export of minerals from M23-controlled areas. Despite these diplomatic efforts, the conflict in the DRC shows no signs of abating. For decades, the region has been plagued by armed groups vying for control of its mineral-rich territories, often with the backing of regional powers. The involvement of external actors like Rwanda has further complicated the situation, raising concerns about the exploitation of resources and the exacerbation of instability.

The Broader Implications of the EU’s Response

The EU’s inability to reach a consensus on sanctions against Rwanda highlights the challenges of coordinating a unified foreign policy among its 27 member states. While some nations argue for tougher measures to hold Rwanda accountable, others, like Luxembourg, advocate for a more cautious approach, emphasizing diplomacy and the need to preserve avenues for negotiation. Erik Kennes has criticized the EU’s measures as insufficient and tardy, pointing to the failure to implement the MoU effectively and the lack of progress on transparency. These criticisms underscore the broader perception that the EU’s response to the crisis has been inadequate, both in terms of timing and substance. Meanwhile, civil society groups continue to press for stronger action, urging the EU to stand firm against Rwanda’s alleged aggression and to prioritize the protection of human rights and territorial integrity in the DRC.

A Call for Accountability and a Path Forward

As the situation in the DRC continues to deteriorate, the EU faces increasing pressure to take decisive action. The bloc must navigate the complex web of interests and alliances at play, balancing the need for accountability with the pursuit of diplomatic solutions. For civil society groups like Free Congo, the stakes are deeply personal, as they bear witness to the devastating impact of the conflict on communities in the DRC. Their calls for justice and transparency serve as a reminder of the human cost of inaction. Moving forward, the EU must weigh its strategic interests against its commitment to upholding international law and protecting vulnerable populations. Whether through targeted sanctions, the suspension of agreements like the MoU, or intensified diplomatic efforts, the EU has a critical role to play in addressing the crisis and preventing further escalation.