What You Need to Know
The Doha Framework Agreement for Peace was signed on November 15, 2025, between the Democratic Republic of the Congo and the M23 movement. It includes eight executive protocols aimed at protecting civilians, restoring state authority, and promoting national reconciliation and socio-economic development, with oversight from Qatar, the U.S., and the African Union.
Africa. The Doha Framework Agreement for Peace was signed on November 15, 2025, between the Government of the Democratic Republic of the Congo and the M23 movement. It includes eight executive protocols aimed at protecting civilians, restoring state authority, and promoting national reconciliation and socio-economic development, with oversight and monitoring from Qatar, the United States, and the African Union to ensure its implementation for lasting peace and stability.
Historical Context
The crisis in Eastern Democratic Republic of the Congo has deep roots in cross-border ethnic tensions, particularly between the Tutsi and Hutu groups. The influx of refugees from Rwanda and Burundi exacerbated internal tensions, especially after the 1994 Rwandan genocide. Colonial policies and the oppressive regime of Mobutu Sese Seko further deepened social divides, creating a fertile ground for rebellion.
The region has seen numerous conflicts, with various armed groups emerging over the decades. Following the assassination of Congolese leader Patrice Lumumba, Laurent Kabila led a rebellion supported by Tutsi groups. Despite initial failures, he returned in the 1990s, toppling Mobutu’s 32-year regime.
The Kabila alliance soon collapsed due to authoritarian practices and accusations of marginalizing the Tutsi. A new rebellion erupted in 1998, involving regional powers, nearly toppling Kabila’s regime before his assassination in 2001, leading to his son Joseph taking power amid a military and political settlement.
In 2003, the country entered a transitional phase with the participation of major armed movements, but pockets of rebellion persisted in the east. Notably, the National Congress for the Defence of the People, which later split and was led by Bosco Ntaganda, reached a peace agreement in 2009, integrating its fighters into the army.
On May 6, 2012, Tutsi military defectors protested the non-implementation of the March 23 agreement, forming the M23 movement. The group initially gained ground before facing setbacks but resurged in 2021, seizing large areas in North Kivu province and becoming the second most active armed group in Congo by 2022.
Escalating tensions in Eastern Congo continued amid stalled regional mediations and mutual accusations of interference between Kinshasa and Kigali, exacerbating the situation on the ground.
By late 2024 and early 2025, confrontations reached unprecedented levels, with the M23 capturing the strategic city of Goma, pushing parties to seek a new negotiated exit.
In this context, direct negotiations began in March 2025 between the Congolese government and the M23, mediated by Qatar and supported by international stakeholders.
The peace agreement signed by the Democratic Republic of the Congo and Rwanda in Washington at the end of June 2025 provided a relative calm, allowing for the signing of a declaration of principles for a ceasefire between Kinshasa and the M23 in Doha on July 19 of the same year.
This process culminated on November 15, 2025, with Qatar announcing the signing of the “Doha Framework Agreement for Peace” between the Government of the Democratic Republic of the Congo and the M23.
Executive Protocols
According to the Qatari Ministry of Foreign Affairs, the Doha Framework Agreement for Peace between the Democratic Republic of the Congo and the M23 serves as the reference document for the broader peace process.
The agreement includes eight executive protocols, two of which have already been signed, while the remaining six are still under negotiation. These protocols include:
– Protocol for humanitarian assistance and legal protection.
– Protocol for restoring state authority, reforms, governance arrangements, and national participation.
– Protocol for temporary security arrangements, disarmament of local armed groups, and reintegration, as well as dealing with foreign armed groups.
– Protocol for identity and citizenship, return of displaced persons and refugees, and their resettlement.
– Protocol for economic and social recovery.
– Protocol for justice and reconciliation.
The agreement emphasizes the commitment of both parties to address the root causes of the conflict through organized dialogue and confidence-building measures, along with a gradual approach to de-escalation and stability.
It also stresses the importance of protecting civilians, respecting human rights, ensuring the safe and dignified return of displaced persons, and supporting national reconciliation and unity.
Implementation and Monitoring
The signatory parties rely on the protocols that define timelines, areas, security arrangements, legal measures, and resources necessary for implementing this framework agreement.
According to the agreement, the parties commit to good faith implementation, supported by the international community. Qatar, the United States, and the African Union may act as monitors of the implementation process.
Any disputes arising from this agreement or its protocols should first be resolved amicably between the parties, and if that fails, they will be referred to the mediators.
International Reception
The Doha Framework Agreement for Peace between the Government of the Democratic Republic of the Congo and the M23 has received widespread international and regional acclaim as a significant step toward ending the long-standing conflict in the eastern part of the country.
Masad Boulous, advisor to former U.S. President Donald Trump on Arab and African affairs, described the signing of the agreement as a “significant beginning” toward ending the conflict, anticipating fruitful results on the ground.
Moussa Faki Mahamat, Chairperson of the African Union Commission, welcomed the signing of the agreement, affirming that it represents important progress toward restoring stability, rebuilding trust, and addressing the root causes of the conflict in Eastern Democratic Republic of the Congo.
The African Union urged all concerned parties to adhere to the spirit and text of the Doha framework and ensure its timely and secure implementation, including the completion of the six associated protocols.
The crisis in Eastern Democratic Republic of the Congo has deep roots in cross-border ethnic tensions, particularly between the Tutsi and Hutu groups. The influx of refugees from Rwanda and Burundi exacerbated internal tensions, especially after the 1994 Rwandan genocide. Colonial policies and the oppressive regime of Mobutu Sese Seko further deepened social divides, creating a fertile ground for rebellion.
The region has seen numerous conflicts, with various armed groups emerging over the decades. Following the assassination of Congolese leader Patrice Lumumba, Laurent Kabila led a rebellion supported by Tutsi groups. Despite initial failures, he returned in the 1990s, toppling Mobutu’s.