PSC Secretary Dr. Kambudzi Addresses Barizi Forum on 12th AU Summit

Dr. Kambudzi provided an overview of the historical context of the Union Government debate. This focused on the time leading up to the transition from the Organisation of African Unity (OAU) to the African Union (AU), when African leaders discussed the future role of the organisation in achieving African integration. The presentation also presented a number of different views on the question of the Union Government: one perspective called for the rapid establishment of a Union Government, which would allow Africa to compete globally. A second perspective adopted a more gradualist approach, favouring integration through the regional economic communities (RECs) as a path to continental integration. Yet another perspective called for those states that are ready to establish the Union Government, and then allow other AU member states to join as they see the benefits.

At the 12th AU Summit in Addis Ababa, Ethiopia on 1-3 February 2009, the issue of the Union Government was hotly debated and a new method of decision-making by African elders was utilised to break the deadlock. The Assembly decided to establish an AU Authority, though the specific details of its structure, mandate and competencies were not discussed. However, the Authority will have a president, a vice president, and various secretaries of specific portfolios. The Executive Council was tasked with working out how the AU Authority would be put into practice.

During the debate, three potential portfolios of the Authority were emphasised. They were: a) defence and security, especially to deal with issues relating to the African Standby Force and the Common African Defence and Security Policy (CADSP); b) international trade and finance; and c) infrastructure, which was the theme of the Summit, because infrastructure (transport, communications, economic, etc) is important for integration. A fourth area that is likely to become a portfolio of the AU Authority is the environment, since the issue of climate change should be addressed at continental level. Most likely, the AU Commissioners would be transformed into Secretaries of the various portfolios.

In addition to discussing the question of the Union Government, the Summit received the regular report of the Peace and Security Council (PSC) on its activities and the state of peace and security in Africa. Some of the keys issues raised in the report included the following:

• Resurgence of coups. This has been a very dangerous trend, with recent coups in Mauritania and Guinea, as well as attempts in Guinea Bissau and Cape Verde. There is a need to review the provisions in the Lomé Declaration on Unconstitutional Changes in Government (2000) and the PSC Protocol in order to prevent future coups. The AU Charter on Democracy, Elections and Governance also includes the rule that those who stage a coup cannot design the post-coup transition and cannot participate in the transitional elections. Yet the tendency is to do just that. There is a need for an Assembly decision, which would be stronger than the Charter, that the authors of coups cannot design the transition programme and cannot stand in elections after the coup.
• Election related crises. This is another dangerous trend. The past year saw such crises in Kenya and Zimbabwe, while Côte d'Ivoire keeps postponing planned elections. In 2009, about fifteen African countries are scheduled to hold elections. The AU and the Panel of the Wise will help to supervise elections. The fact that Kenya submitted a well-received APRM (African Peer Review Mechanism) report, which was followed by the election crisis, indicates that there is a need for more independent views in the APRM assessments.
• Political mismanagement. This refers to the problem of elected leaders pursuing personal agendas, rather than meeting the basic needs of the whole population. This leads to increasing tensions amongst various groups in the country (labour, students, civil service) and to the breakdown of government services.
• PSC protocol. The PSC protocol was adopted in 2002. At this point, there is enough experience and practice in the PSC that the Protocol should be reviewed. By 2011-12, the Assembly should be able to approve amendments to the Protocol. One possible improvement would be to invite the Chair of the AU to PSC meetings, at least to the open sessions.

In addition to these general issues, the report of the PSC also addressed a number of specific peace and security challenges in member states. These included, inter alia:

• Somalia. There is a need to restore stability. The Somalia situation indicates the lack of an effective mechanism in the AU for dealing with breakaway movements for independence.
• Sudan. Darfur remains a challenge. UNAMID was created as an answer to the funding and other challenges of AMIS, but difficulties remain.
• Côte d'Ivoire. There have been frequent postponements of elections. There is a need to prevent another elections crisis.
• Madagascar. The PSC has decided that the situation needs to be properly managed, and a mediation team has been deployed. Madagascar is scheduled to host the next AU summit, so the situation needs to be stabilised quickly.

During the discussion at the Barizi forum, it was noted that it would be irresponsible for Africa to go into Union Government while the house is not in order. During 2009, the process of transforming the AU Commission into an AU Authority will commence. At the same time, region’s such as East Africa that wish to form political federations may begin to do so. The fast pace of African integration was questioned during the discussion, but the counter-argument was made that the AU is not reinventing the wheel, but rather building on its own successes as well as other models such as the European Union.

* Barizi is a Kiswahili word meaning ‘meeting,’ ‘reception’ or ‘council’. Pax Africa established the Barizi Policy Forum not to just create a platform to exchange information, but rather to create an environment in which to deepen understanding and partnership amongst the main players involved in implementing the human security agenda of the continent.