DOHA, Qatar — In a cautious step toward ending one of Africa's most enduring conflicts, the Democratic Republic of Congo and the Rwanda-backed M23 rebel group signed a framework agreement on Saturday aimed at forging a comprehensive peace deal in the war-torn east of the country. The signing, mediated by Qatar, comes amid ongoing accusations of bad faith from both sides, with no immediate changes expected on the ground as fighting continues to displace millions.
The agreement, reached after months of intermittent talks, outlines protocols and a timeline for negotiations but stops short of a final accord. Benjamin Mbonimpa, head of the M23 delegation, announced the development in a video posted on X, formerly known as Twitter. "The framework agreement includes eight protocols that address the ‘root causes’ of the conflict and that will be discussed in the coming weeks," Mbonimpa said, without providing specifics on the protocols.
Mbonimpa emphasized the temporary nature of the pact, stating, “There will be neither any change in the situation on the ground nor any activity whatsoever until the protocols are debated, negotiated and discussed one by one and a final peace agreement is reached.” This assurance appears designed to prevent further escalations while talks proceed, though skepticism remains high given past broken deadlines.
A central element of the framework involves joint administration of areas currently controlled by M23 fighters, according to Lawrence Kanyuka, a spokesperson for the rebels. Speaking to The Associated Press, Kanyuka highlighted this as a key objective, potentially paving the way for shared governance in mineral-rich territories that have been flashpoints for violence.
The M23 movement, which resurfaced in 2021 after a brief hiatus, is widely regarded as the most formidable among over 100 armed groups vying for influence in eastern Congo. Backed by neighboring Rwanda — an allegation Kigali denies — the rebels have been accused by the United Nations of exacerbating a humanitarian catastrophe. The U.N. has described the conflict as “one of the most protracted, complex, serious humanitarian crises on Earth,” with more than 7 million people displaced across the region as of recent estimates.
This year's hostilities marked a dramatic intensification, as M23 forces captured Goma, the provincial capital of North Kivu, and Bukavu in South Kivu in a swift offensive that shocked international observers. These cities, gateways to vast deposits of coltan, gold, and other minerals essential for global electronics supply chains, have long been contested, fueling a cycle of militia warfare and foreign interference dating back to the 1990s.
Qatar's role as mediator began in earnest in April, hosting several rounds of discussions focused on building trust and establishing preconditions for broader peace talks. Despite these efforts, progress has been fitful. In July, Congo and M23 inked a declaration of principles in Doha, committing to end the fighting through a comprehensive agreement. This included provisions for restoring Congolese state authority in insurgent-held urban centers and facilitating a prisoner exchange between the parties.
Under that July pact, the sides pledged to conclude a full peace deal by no later than August 18. However, the deadline came and went without resolution, as each accused the other of undermining the process through ceasefire violations and military posturing. Congolese officials claimed M23 continued advances despite the truce, while rebel leaders countered that government forces, possibly with Ugandan support, launched provocative strikes.
Building on that fragile foundation, the two parties agreed in October to create an oversight mechanism to monitor a potential permanent ceasefire. This body, details of which remain sparse, was intended to verify compliance and build momentum toward substantive negotiations. Yet, reports from the ground indicate sporadic clashes persist, underscoring the challenges of enforcing even preliminary agreements in a region riddled with armed factions.
The Saturday signing in Doha drew international attention, with Massad Boulos, a senior adviser to U.S. President Donald Trump, in attendance. Boulos hailed the framework as a “starting point,” adding, “It is only the beginning, but we know the final outcome will be very fruitful.” He described the moment as a “historic” opportunity, reflecting optimism from Washington amid broader U.S. diplomatic pushes in the region.
The Trump administration has positioned itself as a key player in de-escalating tensions between Congo and Rwanda. In June, the two nations signed their own peace agreement, brokered in part by American mediators, which addressed cross-border issues and aimed to curb support for proxy militias like M23. That deal, while welcomed, has faced criticism for lacking enforcement mechanisms, and Rwanda continues to reject claims of its involvement with the rebels.
From Kinshasa's perspective, the framework represents a hard-won concession in a conflict that has drained national resources and deepened ethnic divisions. Congolese President Félix Tshisekedi has repeatedly called for the withdrawal of Rwandan troops, which U.N. experts allege number in the thousands and operate alongside M23. Government spokespeople have expressed guarded hope about the Doha process but warn that any deal must include verifiable disengagement of foreign forces.
M23, for its part, frames the agreement as a pathway to political inclusion, arguing that marginalization of local communities drives the insurgency. The group's origins trace to 2012, when former Congolese army officers mutinied, citing discrimination against Tutsi minorities. Since reactivating, M23 has positioned itself as a defender against other militias, including the Hutu-led Democratic Forces for the Liberation of Rwanda, remnants of the genocidaires who fled to Congo after 1994.
Broader implications of the framework extend beyond immediate ceasefires. Eastern Congo's instability has ripple effects across Central Africa, straining neighboring countries like Uganda and Burundi, which host refugees and face spillover violence. Economically, the conflict disrupts mining operations that could generate billions, instead enriching warlords and fueling illicit trade networks.
As negotiations unfold in the coming weeks, all eyes will be on whether the eight protocols can bridge deep-seated grievances over land rights, citizenship, and resource control. With Qatar continuing its mediation and U.S. involvement providing diplomatic heft, there is cautious optimism that this framework could evolve into something enduring. Yet, history in the region is littered with unfulfilled accords, and tensions between Congo and its M23 adversaries — and by extension, Rwanda — show no signs of abating without concrete actions on the ground.
Reporting from multiple fronts, including Goma and Dakar, underscores the fragility of these talks. As one analyst noted privately, peace in eastern Congo requires not just handshakes in Doha but a fundamental reconfiguration of power dynamics that have persisted for generations. For now, the framework stands as a tentative bridge, with the path forward as uncertain as the battle-scarred landscapes it seeks to heal.