The Doha Framework for a Comprehensive Peace Agreement

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Country/entity: Democratic Republic of Congo
Region: Africa (excl MENA)
Agreement name: The Doha Framework for a Comprehensive Peace Agreement
Date: 15 Nov 2025
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Intrastate/intrastate conflict
Congo Civil Wars (1996 - )
The overthrow of the long-term dictator Mobutu Sese Seko by a rebel Tutsi army backed by Uganda and Rwanda in 1997 acted as a catalyst for a war with regional dimensions, mainly fought in the eastern Kivu provinces. The conflict escalated in 1998, when President Laurent Kabila, then backed by Zimbabwean and Angolan troops, ordered Rwanda and Uganda to leave. After Kabila’s assassination in 2001, his son Joseph took over the presidency and won in the 2006 democratic elections.

In the eastern provinces, Tutsi-led militias, mainly organised in the National Congress for the Defense of the People (CNDP), fought the remnants of the Rwandan Hutu force FDLR, with further involvement of Rwandan and Ugandan troops. Other regionally operating militia groups, like the Lord’s Resistance Army from Northern Uganda, the so-called Mai Mai groups or guerrilla outfits like the March 23 Movement (M23) further contributed, and still contribute, to the complexity of the situation in eastern DRC.

Following Joseph Kabila's departure in 2019, his successor Félix Tshisekedi faced renewed instability as the M23 rebel group, dormant since 2013, resumed operations in late 2021 with substantial Rwandan support. In January 2025, M23 forces backed by Rwandan troops captured the regional capital Goma in the most serious escalation since the Second Congo War. This prompted U.S. mediation under President Trump, leading to talks in Qatar in March 2025 and a preliminary peace agreement signed in Washington on June 27, 2025. The Washington Accords were formally signed by Presidents Tshisekedi and Kagame on December 4, 2025, committing Rwanda to withdraw troops and cease M23 support while the DRC pledged to neutralize the FDLR and establish regional economic integration with significant U.S. commercial involvement. However, fighting continues as of late 2025, with both sides accused of violating commitments.
Stage: Framework/substantive - partial
Conflict nature: Government/territory
Peace process: DRC: the Doha Track for Eastern DRC
Parties: Government of the Democratic Republic of the Congo:
Mr. Sumbu Sita MAMBU

Alliance Fleuve Congo/March 23rd Movement (AFC/M23):
Mr. Benjamin MBONIMPA
Third parties: -
Description: This framework agreement between the Government of the Democratic Republic of Congo and the Alliance Fleuve Congo/March 23rd Movement establishes the foundation for a comprehensive peace agreement to resolve the armed conflict in eastern DRC. The agreement sets forth guiding principles including respect for sovereignty, territorial integrity, protection of civilians, and human rights, while committing both parties to a permanent ceasefire and cessation of hostilities. The framework will be implemented through eight protocols covering areas such as humanitarian access, state authority restoration, DDR, economic recovery, and transitional justice, with implementation to be monitored by international observers including Qatar, the United States, and the African Union.

Agreement document: CD_251115_The Doha Framework for a Comprehensive Peace Agreement (opens in new tab) | Download PDF
Source of document: https://www.peaceau.org/uploads/2025.11.15-signed-framework-peace-agreement-en.pdf

Groups

Children/youth: Groups→Children/youth→Rhetorical
I. INTRODUCTION
...
b. Guiding Principles
...
gender and youth participation;
Disabled persons: No specific mention.
Elderly/age: No specific mention.
Migrant workers: No specific mention.
Racial/ethnic/national group: No specific mention.
Religious groups: No specific mention.
Indigenous people: No specific mention.
Other groups: No specific mention.
Refugees/displaced persons: Groups→Refugees/displaced persons→Substantive
II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
Return and Reinstallation of Internally Displaced Persons and Refugees
Addressing the issue of national identity is vital for the return and reinstallation of displaced persons and refugees.
...
The Parties commit to facilitating the safe, voluntary, and dignified return of refugees to their areas or countries of origin, in accordance with tripartite mechanisms related to the refugees, the DRC – Country of exile – UNHCR.
...
The issue of internally displaced persons will be dealt with in the Protocol.
Social class: No specific mention.

Gender

Women, girls and gender: I. INTRODUCTION
...
b. Guiding Principles
The Parties commit to the following principles in the adoption and implementation of this Framework Agreement and Protocols:
...
gender and youth participation;
Men and boys: No specific mention.
LGBTI: No specific mention.
Family: II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
...
The Parties affirm their respect for international law, including international humanitarian law and international human rights law, when applicable, including regarding the protection of civilians and other persons affected by armed conflict, the protection of missing persons and prisoners of war, the respect for deceased persons, and the protection of family links.

State definition

Nature of state (general): PREAMBLE
...
REAFFIRMING their commitment to national sovereignty and territorial integrity;
...
I. INTRODUCTION
...
b. Guiding Principles
...
respect for the sovereignty and territorial integrity of the DRC;
State configuration: No specific mention.
Self determination: No specific mention.
Referendum: No specific mention.
State symbols: No specific mention.
Independence/secession: No specific mention.
Accession/unification: No specific mention.
Border delimitation: No specific mention.
Cross-border provision: No specific mention.

Governance

Political institutions (new or reformed): Governance→Political institutions (new or reformed)→General references
II. THE PROTOCOLS
...
2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements
a. Restoration of State Authority
In line with the Declaration of Principles signed in Doha on 19 July 2025, the Parties agree that the full restoration of State authority over the entire national territory, the institutions, and services, constitutes a fundamental pillar of this Peace Agreement.
...
b. Reforms
In a country as vast and diverse as the Democratic Republic of Congo, achieving lasting stability and development requires the strengthening of national unity and efficient governance.
The Parties agree that the Government shall undertake the reforms agreed upon in the Protocols in order to ensure the country’s political, security, and institutional stability, in the interest of the population, and aimed at strengthening the performance of State institutions, as well as promoting transparent, accountable, and national participatory governance, in accordance with the Constitution and national legislation.
c. National Participatory Governance Arrangements
...
6. Justice, Truth, and Reconciliation
...
IV. FINAL PROVISIONS
...
The Government commits to adopt the necessary regulatory and legislative measures, including working with the Parliament in accordance with the Constitution of the DRC, for the implementation of the provisions of this Agreement.
Elections: II. THE PROTOCOLS
...
2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements
...
c. National Participatory Governance Arrangements
...
and organize, if conditions permit, free, fair and credible legislative and local elections in the concerned territories.
Electoral commission: No specific mention.
Political parties reform: No specific mention.
Civil society: II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
The Parties commit to unimpeded, safe, and sustained humanitarian access;
Traditional/religious leaders: I. INTRODUCTION
...
b. Guiding Principles
...
respect for customary entities;
...
II. THE PROTOCOLS
...
2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements
a. Restoration of State Authority
...
local and customary authorities will be associated on matters under their jurisdiction.
Public administration: II. THE PROTOCOLS
...
2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements
...
c. National Participatory Governance Arrangements
...
The Parties undertake to coordinate the reinstallation of the apolitical public administration, the freedom of movement of persons and goods, access to civil status and other documents needed by the population, and the reopening of essential services (banks, customs, infrastructure);
Constitution: No specific mention.

Power sharing

Political power sharing: No specific mention.
Territorial power sharing: No specific mention.
Economic power sharing: No specific mention.
Military power sharing: Power sharing→Military power sharing→Other
II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
3. Interim Security Arrangements, DDR of Local Armed Groups, and Neutralization of Foreign Armed Groups
...
The Parties agree to establish transitional security arrangements, in the areas affected by the conflict, in order to ensure public order and the protection of civilians, for a period of five (5) months, with the possibility of extension by the Parties, in consultation with the Facilitators, and in the context of progress in implementing the timeline for the restoration of State authority.

Human rights and equality

Human rights/RoL general: PREAMBLE
...
COMMITTING to promote social cohesion by combating impunity for crimes and to promote respect for human rights and non-discrimination;
...
I. INTRODUCTION
...
b. Guiding Principles
...
protection of civilians and human rights;
...
as well as respect for international humanitarian law.
...
II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
...
The Parties affirm their respect for international law, including international humanitarian law and international human rights law, when applicable, including regarding the protection of civilians and other persons affected by armed conflict, the protection of missing persons and prisoners of war, the respect for deceased persons, and the protection of family links.
...
c. National Participatory Governance Arrangements
...
Return and Reinstallation of Internally Displaced Persons and Refugees
...
The Parties commit to facilitating the safe, voluntary, and dignified return of refugees to their areas or countries of origin, in accordance with tripartite mechanisms related to the refugees, the DRC – Country of exile – UNHCR.
This process will be conducted in compliance with the international humanitarian law.
...
6. Justice, Truth, and Reconciliation
The Parties agree on the establishment by the Government of an independent national commission to promote truth, reconciliation, and accountability for crimes, and to recommend appropriate reparations through a transitional justice process, whose organization and functioning will be consistent with the Constitution and the applicable international law.
Bill of rights/similar: No specific mention.
Treaty incorporation: PREAMBLE
...
REFERRING to the fundamental principles of the Constitution of the Democratic Republic of the Congo (the "DRC"), the rule of law, the Constitutive Act of the African Union (the “AU"), the Charter of the United Nations and all relevant UN Security Council Resolutions that recommend peaceful means to resolve the current armed conflict in the DRC, as well as applicable international law;
Civil and political rights: Human rights and equality→Civil and political rights→Equality
PREAMBLE
...
COMMITTING to promote social cohesion by combating impunity for crimes and to promote respect for human rights and non-discrimination;
...
I. INTRODUCTION
...
b. Guiding Principles
...
non-discrimination;
Human rights and equality→Civil and political rights→Freedom of movement
II. THE PROTOCOLS
...
2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements
...
c. National Participatory Governance Arrangements
...
The Parties undertake to coordinate the reinstallation of the apolitical public administration, the freedom of movement of persons and goods, access to civil status and other documents needed by the population, and the reopening of essential services (banks, customs, infrastructure);
Socio-economic rights: No specific mention.

Rights related issues

Citizenship: Rights related issues→Citizenship→Citizen, general
II. THE PROTOCOLS
...
2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements
...
c. National Participatory Governance Arrangements
...
The Parties undertake to coordinate the reinstallation of the apolitical public administration, the freedom of movement of persons and goods, access to civil status and other documents needed by the population, and the reopening of essential services (banks, customs, infrastructure);
...
Return and Reinstallation of Internally Displaced Persons and Refugees
...
The issue related to identity and citizenship shall be addressed in accordance with the Constitution and national legislation.
Democracy: No specific mention.
Detention procedures: No specific mention.
Media and communication: No specific mention.
Mobility/access: II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
The Parties commit to unimpeded, safe, and sustained humanitarian access;
Protection measures: Rights related issues→Protection measures→Protection of civilians
I. INTRODUCTION
...
b. Guiding Principles
...
protection of civilians and human rights;
...
II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
The Parties commit to unimpeded, safe, and sustained humanitarian access;
protection of humanitarian personnel;
...
The Parties affirm their respect for international law, including international humanitarian law and international human rights law, when applicable, including regarding the protection of civilians and other persons affected by armed conflict, the protection of missing persons and prisoners of war, the respect for deceased persons, and the protection of family links.
...
c. National Participatory Governance Arrangements
...
Return and Reinstallation of Internally Displaced Persons and Refugees
...
For this to happen, the government shall safeguard against persecution, hate speech, denationalization, forced exile, etc.
Other: No specific mention.

Rights institutions

NHRI: No specific mention.
Regional or international human rights institutions: No specific mention.

Justice sector reform

Criminal justice and emergency law: No specific mention.
State of emergency provisions: No specific mention.
Judiciary and courts: No specific mention.
Prisons and detention: No specific mention.
Traditional Laws: No specific mention.

Socio-economic reconstruction

Development or socio-economic reconstruction: Socio-economic reconstruction→Development or socio-economic reconstruction→Socio-economic development
II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
...
and the facilitation of essential services within the territories impacted by the conflict.
...
The Government commits to declaring a state of humanitarian emergency in the disaster zone in regions long impacted by armed conflict, accompanied by a special pacification and reconstruction program, whose operations will be defined in the Protocols.
...
c. National Participatory Governance Arrangements
...
5. Economic Recovery and Social Services
The Parties agree that the Government will take all the necessary measures to restore basic public services, with the support of international partners.
A recovery program for critical infrastructure, livelihoods, education, health, environmental protection, and support of local small and medium enterprises (SMEs) to revive the local economy, prioritizing reintegration of demobilized persons and support to vulnerable groups, will be put in place with international support.
National economic plan: No specific mention.
Natural resources: No specific mention.
International funds: II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
5. Economic Recovery and Social Services
The Parties agree that the Government will take all the necessary measures to restore basic public services, with the support of international partners.
Business: No specific mention.
Taxation: No specific mention.
Banks: No specific mention.

Land, property and environment

Land reform/rights: No specific mention.
Pastoralist/nomadism rights: No specific mention.
Cultural heritage: No specific mention.
Environment: II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
5. Economic Recovery and Social Services
...
A recovery program for critical infrastructure, livelihoods, education, health, environmental protection, and support of local small and medium enterprises (SMEs) to revive the local economy, prioritizing reintegration of demobilized persons and support to vulnerable groups, will be put in place with international support.
Water or riparian rights or access: No specific mention.

Security sector

Security Guarantees: No specific mention.
Ceasefire: Security sector→Ceasefire→General commitments
PREAMBLE
...
REITERATING the will to implement the Prisoner Release Mechanism, signed on 14 September 2025, as well as the Ceasefire Monitoring and Verification Mechanism, signed on 14 October 2025;
...
I. INTRODUCTION
...
b. Guiding Principles
...
The Parties confirm their commitment to the permanent ceasefire and the release of prisoners under the Declaration of Principles and hereby agree to a permanent cessation of hostilities between the Parties.
They also reiterate their agreement to implement the Mechanism for the Liberation of Detainees signed on 14 September 2025 and the Ceasefire Oversight and Verification Mechanism, signed in Doha on 14 October 2025.
Police: No specific mention.
Armed forces: II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
3. Interim Security Arrangements, DDR of Local Armed Groups, and Neutralization of Foreign Armed Groups
...
The Parties agree to establish transitional security arrangements, in the areas affected by the conflict, in order to ensure public order and the protection of civilians, for a period of five (5) months, with the possibility of extension by the Parties, in consultation with the Facilitators, and in the context of progress in implementing the timeline for the restoration of State authority.
DDR: Security sector→DDR→DDR programmes
II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
3. Interim Security Arrangements, DDR of Local Armed Groups, and Neutralization of Foreign Armed Groups
...
However, pathways for integration or demobilization are to be consistent with arrangements between the Parties, in line with the Constitution, DDR international standards.
The Protocol will define the criteria of DDR screening based on best practice in this field.
...
DDR for eligible members of local armed groups and the neutralization of foreign armed groups will be coordinated in accordance with national and international standards and will be included in the Protocols.
...
5. Economic Recovery and Social Services
...
A recovery program for critical infrastructure, livelihoods, education, health, environmental protection, and support of local small and medium enterprises (SMEs) to revive the local economy, prioritizing reintegration of demobilized persons and support to vulnerable groups, will be put in place with international support.
Intelligence services: No specific mention.
Parastatal/rebel and opposition group forces: II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
3. Interim Security Arrangements, DDR of Local Armed Groups, and Neutralization of Foreign Armed Groups
The Parties shall not harbor or support any armed group.
Withdrawal of foreign forces: No specific mention.
Corruption: No specific mention.
Crime/organised crime: No specific mention.
Drugs: No specific mention.
Terrorism: No specific mention.

Transitional justice

Transitional justice general: PREAMBLE
...
COMMITTING to promote social cohesion by combating impunity for crimes and to promote respect for human rights and non-discrimination;
...
I. INTRODUCTION
...
b. Guiding Principles
...
accountability for crimes;
Amnesty/pardon: No specific mention.
Courts: No specific mention.
Mechanism: II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
6. Justice, Truth, and Reconciliation
The Parties agree on the establishment by the Government of an independent national commission to promote truth, reconciliation, and accountability for crimes, and to recommend appropriate reparations through a transitional justice process, whose organization and functioning will be consistent with the Constitution and the applicable international law.
Prisoner release: PREAMBLE
...
REITERATING the will to implement the Prisoner Release Mechanism, signed on 14 September 2025, as well as the Ceasefire Monitoring and Verification Mechanism, signed on 14 October 2025;
...
I. INTRODUCTION
...
b. Guiding Principles
...
The Parties confirm their commitment to the permanent ceasefire and the release of prisoners under the Declaration of Principles and hereby agree to a permanent cessation of hostilities between the Parties.
They also reiterate their agreement to implement the Mechanism for the Liberation of Detainees signed on 14 September 2025 and the Ceasefire Oversight and Verification Mechanism, signed in Doha on 14 October 2025.
Vetting: No specific mention.
Victims: II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
...
The Parties affirm their respect for international law, including international humanitarian law and international human rights law, when applicable, including regarding the protection of civilians and other persons affected by armed conflict, the protection of missing persons and prisoners of war, the respect for deceased persons, and the protection of family links.
Missing persons: II. THE PROTOCOLS
1. Humanitarian Access and Judicial Protection
...
The Parties affirm their respect for international law, including international humanitarian law and international human rights law, when applicable, including regarding the protection of civilians and other persons affected by armed conflict, the protection of missing persons and prisoners of war, the respect for deceased persons, and the protection of family links.
Reparations: Transitional justice→Reparations→Symbolic reparations
II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
6. Justice, Truth, and Reconciliation
The Parties agree on the establishment by the Government of an independent national commission to promote truth, reconciliation, and accountability for crimes, and to recommend appropriate reparations through a transitional justice process, whose organization and functioning will be consistent with the Constitution and the applicable international law.
Transitional justice→Reparations→Material reparations
II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
6. Justice, Truth, and Reconciliation
The Parties agree on the establishment by the Government of an independent national commission to promote truth, reconciliation, and accountability for crimes, and to recommend appropriate reparations through a transitional justice process, whose organization and functioning will be consistent with the Constitution and the applicable international law.
Reconciliation: II. THE PROTOCOLS
...
c. National Participatory Governance Arrangements
...
6. Justice, Truth, and Reconciliation
The Parties agree on the establishment by the Government of an independent national commission to promote truth, reconciliation, and accountability for crimes, and to recommend appropriate reparations through a transitional justice process, whose organization and functioning will be consistent with the Constitution and the applicable international law.

Implementation

UN signatory: No specific mention.
Other international signatory: No specific mention.
Referendum for agreement: No specific mention.
International mission/force/similar: No specific mention.
Enforcement mechanism: c. National Participatory Governance Arrangements
...
6. Justice, Truth, and Reconciliation
...
III. IMPLEMENTATION, MONITORING AND DISPUTE RESOLUTION
...
Disputes arising from this Framework Agreement, or its Protocols shall be addressed in the first instance amicably by the Parties.
Any unresolved matters will be referred to the facilitators.

THE DOHA FRAMEWORK FOR A COMPREHENSIVE PEACE AGREEMENT BETWEEN THE GOVERNMENT OF THE DEMOCRATIC REPUBLIC OF THE CONGO AND THE ALLIANCE FLEUVE CONGO/MARCH 23RD MOVEMENT (AFC/M23)

PREAMBLE

The Government of the Democratic Republic of the Congo (the "Government"), on the one hand, and the Alliance Fleuve Congo/March 23 Movement ("AFC/M23"), on the other hand (the "Parties"):

REAFFIRMING their commitment to national sovereignty and territorial integrity;

REFERRING to the fundamental principles of the Constitution of the Democratic Republic of the Congo (the "DRC"), the rule of law, the Constitutive Act of the African Union (the “AU"), the Charter of the United Nations and all relevant UN Security Council Resolutions that recommend peaceful means to resolve the current armed conflict in the DRC, as well as applicable international law;

REAFFIRMING the commitments and objectives set out in the Declaration of Principles of 19 July 2025 ("Declaration of Principles") in favour of a pathway towards a Comprehensive Peace Agreement;

REITERATING the will to implement the Prisoner Release Mechanism, signed on 14 September 2025, as well as the Ceasefire Monitoring and Verification Mechanism, signed on 14 October 2025;

RECOGNIZING that durable peace cannot be achieved by military means, but through the acknowledgement and resolution of the root causes of the conflict;

REITERATING that lasting peace constitutes the essential foundation for building a united, prosperous, and secure nation for the people of the DRC;

PRIORITIZING dialogue and negotiation as the means for resolving any dispute between the Parties and their irreversible mutual engagement for peace, in accordance with the joint East African Community–Southern African Development Community (EAC–SADC) framework as endorsed by the AU;

COMMITTING to promote social cohesion by combating impunity for crimes and to promote respect for human rights and non-discrimination;

REITERATING that the Framework Agreement aligns with the provisions of the Peace Agreement between the DRC and the Republic of Rwanda signed in Washington on 27 June 2025, as per the Declaration of Principles signed in Doha on 19 July 2025;

FULLY AND IN GOOD FAITH COMMITTED to comprehensive peace and conflict resolution through the implementation of this Framework Agreement in accordance with its defined Protocols, phases, and timelines, in a spirit of cooperation and mutual trust;

and

EXPRESSING their gratitude to the State of Qatar, the United States of America, the AU, and the AU Mediator H.E. Faure Gnassingbé, President of the Council of Ministers of the Togolese Republic, for their constant support and facilitation role in this peace process;

Hereby agree to the following:

I. INTRODUCTION

a. Purpose and scope

This Framework Agreement sets forth guiding principles, core commitments, and mechanisms aimed at strengthening the effective implementation of the said ceasefire, as well as the will to achieve a permanent cessation of hostilities, stabilization, the resolution of root causes of conflicts, the restoration of State authority, national participatory governance and national reconciliation and building confidence within the community.

The Comprehensive Peace Agreement will be composed of this Framework Agreement and eight (8) Protocols, two (2) of them having already been signed, and six (6) to be negotiated between the Parties beginning no later than two (2) weeks after signature of the present Framework Agreement.

The Comprehensive Peace Agreement will be composed of the signed Protocols and any other potential related documents which may be agreed up on by the parties.

Each of these Protocols will define detailed measures, timetables, and technical modalities, which will form an integral part of this Agreement, and together form the Comprehensive Peace Agreement.

The Protocols shall determine their implementation, timeline, and sequencing.

These Protocols are the following:

– The Mechanism for the Liberation of Detainees (signed 14 September 2025);

– The Ceasefire Oversight and Verification Mechanism (signed 14 October 2025);

– Humanitarian Access and Judicial Protection;

– The Restoration of State Authority, Reforms, and National Participatory Governance Arrangements;

– Interim Security Arrangements;

Disarmament, Demobilization, Reintegration (DDR) of Local Armed Groups and the Neutralization of Foreign Armed Groups;

– Identity and Citizenship;

Return and Reinstallation of Internally Displaced Persons and Refugees;

– Economic and Social Recovery;

– Justice, Truth, and Reconciliation.

b. Guiding Principles

The Parties commit to the following principles in the adoption and implementation of this Framework Agreement and Protocols:

Good faith implementation;

respect for the sovereignty and territorial integrity of the DRC;

non-discrimination;

protection of civilians and human rights;

accountability for crimes;

gender and youth participation;

respect for customary entities;

and cooperation with agreed regional and international partners;

as well as respect for international humanitarian law.

The Parties confirm their commitment to the permanent ceasefire and the release of prisoners under the Declaration of Principles and hereby agree to a permanent cessation of hostilities between the Parties.

They also reiterate their agreement to implement the Mechanism for the Liberation of Detainees signed on 14 September 2025 and the Ceasefire Oversight and Verification Mechanism, signed in Doha on 14 October 2025.

II. THE PROTOCOLS

1. Humanitarian Access and Judicial Protection

The Parties commit to unimpeded, safe, and sustained humanitarian access;

protection of humanitarian personnel;

and the facilitation of essential services within the territories impacted by the conflict.

The Parties affirm their respect for international law, including international humanitarian law and international human rights law, when applicable, including regarding the protection of civilians and other persons affected by armed conflict, the protection of missing persons and prisoners of war, the respect for deceased persons, and the protection of family links.

The Government commits to declaring a state of humanitarian emergency in the disaster zone in regions long impacted by armed conflict, accompanied by a special pacification and reconstruction program, whose operations will be defined in the Protocols.

2. Restoration of State Authority, Reforms, and National Participatory Governance Arrangements

a. Restoration of State Authority

In line with the Declaration of Principles signed in Doha on 19 July 2025, the Parties agree that the full restoration of State authority over the entire national territory, the institutions, and services, constitutes a fundamental pillar of this Peace Agreement.

The Protocols will define the actors, in accordance with the Constitution and the national law, modalities, stages, and timetable for the restoration process;

local and customary authorities will be associated on matters under their jurisdiction.

b. Reforms

In a country as vast and diverse as the Democratic Republic of Congo, achieving lasting stability and development requires the strengthening of national unity and efficient governance.

The Parties agree that the Government shall undertake the reforms agreed upon in the Protocols in order to ensure the country’s political, security, and institutional stability, in the interest of the population, and aimed at strengthening the performance of State institutions, as well as promoting transparent, accountable, and national participatory governance, in accordance with the Constitution and national legislation.

c. National Participatory Governance Arrangements

Establishing a governance mechanism in accordance with the Constitution and the national law, is an important step toward achieving lasting peace and stability in the Democratic Republic of Congo.

The Parties undertake to coordinate the reinstallation of the apolitical public administration, the freedom of movement of persons and goods, access to civil status and other documents needed by the population, and the reopening of essential services (banks, customs, infrastructure);

and organize, if conditions permit, free, fair and credible legislative and local elections in the concerned territories.

3. Interim Security Arrangements, DDR of Local Armed Groups, and Neutralization of Foreign Armed Groups

The Parties shall not harbor or support any armed group.

However, pathways for integration or demobilization are to be consistent with arrangements between the Parties, in line with the Constitution, DDR international standards.

The Protocol will define the criteria of DDR screening based on best practice in this field.

In the interest of reconciliation and peacebuilding, the Government undertakes to promote an environment of inclusivity and mutual confidence, in a manner consistent with the objectives of this Agreement.

The Parties agree to establish transitional security arrangements, in the areas affected by the conflict, in order to ensure public order and the protection of civilians, for a period of five (5) months, with the possibility of extension by the Parties, in consultation with the Facilitators, and in the context of progress in implementing the timeline for the restoration of State authority.

The composition, command, and mandate shall be defined in the Protocols.

DDR for eligible members of local armed groups and the neutralization of foreign armed groups will be coordinated in accordance with national and international standards and will be included in the Protocols.

4. Identity and Citizenship;

Return and Reinstallation of Internally Displaced Persons and Refugees

Addressing the issue of national identity is vital for the return and reinstallation of displaced persons and refugees.

For this to happen, the government shall safeguard against persecution, hate speech, denationalization, forced exile, etc.

The Parties commit to facilitating the safe, voluntary, and dignified return of refugees to their areas or countries of origin, in accordance with tripartite mechanisms related to the refugees, the DRC – Country of exile – UNHCR.

This process will be conducted in compliance with the international humanitarian law.

The issue of internally displaced persons will be dealt with in the Protocol.

The issue related to identity and citizenship shall be addressed in accordance with the Constitution and national legislation.

The implementation will be defined in the Protocols, in conformity with international standards.

5. Economic Recovery and Social Services

The Parties agree that the Government will take all the necessary measures to restore basic public services, with the support of international partners.

A recovery program for critical infrastructure, livelihoods, education, health, environmental protection, and support of local small and medium enterprises (SMEs) to revive the local economy, prioritizing reintegration of demobilized persons and support to vulnerable groups, will be put in place with international support.

The implementation will be defined under the Protocols.

6. Justice, Truth, and Reconciliation

The Parties agree on the establishment by the Government of an independent national commission to promote truth, reconciliation, and accountability for crimes, and to recommend appropriate reparations through a transitional justice process, whose organization and functioning will be consistent with the Constitution and the applicable international law.

The implementation will be defined under the Protocols.

III. IMPLEMENTATION, MONITORING AND DISPUTE RESOLUTION

The Parties shall adopt the Protocols specifying timelines, areas, sequencing, security parameters, legal measures, and resource arrangements necessary to implement this Framework Agreement.

The Parties undertake to implement this agreement and Protocols in good faith with the accompaniment and support of the international community.

The State of Qatar, the United States of America, and the AU, including the President of the Council of Ministers of the Togolese Republic as the designated Mediator for the AU in the context of protracted insecurity in the Eastern part of DRC, may serve as Observers in this implementation.

Disputes arising from this Framework Agreement, or its Protocols shall be addressed in the first instance amicably by the Parties.

Any unresolved matters will be referred to the facilitators.

IV. FINAL PROVISIONS

Amendments require the written consent of both Parties.

The Parties agree that the Protocols described in the Purpose and Scope section above and adopted pursuant to this Framework Agreement will constitute a Comprehensive Peace Agreement which shall be implemented in accordance with its spirit and objectives.

The Government commits to adopt the necessary regulatory and legislative measures, including working with the Parliament in accordance with the Constitution of the DRC, for the implementation of the provisions of this Agreement.

This Framework Agreement enters into force upon signature by duly authorized representatives and remains in effect until replaced by a comprehensive peace settlement or jointly terminated.

FOR THE GOVERNMENT OF THE DEMOCRATIC REPUBLIC OF THE CONGO

Mr. Sumbu Sita MAMBU

Date:

15 November 2025

FOR THE ALLIANCE FLEUVE CONGO/MARCH 23 MOVEMENT (AFC/M23)

Mr. Benjamin MBONIMPA