African Center for Consultancy
The convening of the second ministerial conference of the Russia–Africa Partnership Forum in Cairo on 19 and 20 December 2025 represented a significant political and diplomatic milestone in the trajectory of relations between Russia and the African continent. It was not merely a routine meeting to review cooperation, but rather a clear expression of deeper transformations in the structure of the international system and the evolving geopolitical balances taking shape in the Global South. The conference was held against a highly complex regional and international backdrop marked by escalating conflicts, declining confidence in traditional international institutions, and the growing role of non-Western actors—most notably Russia and China—in reshaping their relations with Africa on new foundations.
The Russia–Africa Partnership Forum constitutes one of the institutional frameworks adopted by Moscow to strengthen its presence on the continent since its launch following the Sochi Summit in 2019, its consolidation at the St. Petersburg Summit in 2023, and the subsequent ministerial conferences aimed at translating political commitments into actionable programs. Within this context, the second ministerial conference acquired particular importance, as it took place one year after the first such meeting and amid intensifying international competition over Africa, alongside an increasingly pronounced indirect confrontation between Russia and the West over political, economic, and security spheres of influence on the continent.
Egypt’s hosting of the conference reflected, on the one hand, its pivotal position in African–international interactions, and on the other, its role as a bridge between Russia and continental institutions, especially in light of its previous chairmanship of the African Union and the diplomatic weight it carries at the regional level. The conference was attended by ministerial-level representatives from more than fifty African states, in addition to delegations from the African Union and regional organizations, while the Russian side was led by Foreign Minister Sergey Lavrov. This level of participation conferred upon the conference a clear political weight that went beyond a purely ceremonial character.
The conference proceedings focused on assessing the implementation of the joint action plan for the 2023–2026 period and exploring the outlines of a new plan for 2026–2029, in an effort to ensure continuity in the partnership and to address longstanding criticisms directed at such forums regarding their limited practical impact. Discussions were dominated by Russia’s repeated emphasis on a partnership model based on mutual interests, respect for sovereignty, and non-interference in internal affairs—a discourse that resonates with a growing number of African states that have become increasingly sensitive to the political and economic conditionalities imposed by Western powers and international financial institutions.
Within this framework, the issue of peace and security in Africa occupied a central place in the conference deliberations. The Russian side stressed that achieving sustainable development on the continent remains contingent upon ensuring a minimum level of stability, a view that aligns with the perspectives of many African governments that regard deteriorating security conditions as the primary obstacle to growth. However, this narrative is inseparable from Russia’s efforts to enhance its role as an alternative or parallel security actor to the West, whether through formal military cooperation or the provision of technical support and training. Such efforts have generated increasing debate over the nature of this role and its long-term implications.
From an economic perspective, the conference sought to highlight opportunities for expanding trade and investment between Russia and African countries, particularly in the fields of energy, mining, infrastructure, and agriculture. These sectors were presented as fundamental pillars for building a long-term partnership, given Africa’s growing need for investment and technology transfer and Russia’s search for new markets in the face of Western sanctions imposed upon it. Nevertheless, the principal challenge that remains lies in the gap between declared ambitions and the actual volume of investments, in addition to logistical and financial constraints that continue to impede the flow of trade between the two sides.
The conference also devoted particular attention to issues of human development and capacity building, emphasizing cooperation in education, training, and knowledge transfer. These areas are employed by Russia as tools to strengthen its soft power in Africa, drawing on a historical legacy dating back to the Soviet era. This dimension is viewed as a complementary element to political and economic instruments, contributing to the consolidation of a long-term Russian presence within African elites and institutions.
The joint statement issued at the conclusion of the conference reflected a general consensus on the need to deepen the partnership and enhance political coordination in international forums, particularly with regard to issues of reforming the international system and increasing Africa’s representation in global governance institutions. However, this consensus remained largely at the level of broad principles, without elaborating detailed implementation mechanisms, reflecting the forum’s nature as a space for building political understandings rather than a platform for adopting binding decisions.
In sum, the second ministerial conference of the Russia–Africa Partnership Forum represented an additional step in a growing rapprochement between Russia and a large number of African states, a rapprochement driven more by considerations of mutual interests and global geopolitical shifts than by ideological factors. While this trajectory provides Africa with a wider margin of maneuver in its international relations, it simultaneously raises fundamental questions about the limits of this cooperation and its capacity to deliver tangible developmental gains, rather than becoming merely an extension of great-power rivalries played out on the continent.