AU Under Scrutiny

Chrysantus Ayangafac (ISS Today) - The inception of the AU in 2002 was greeted with much fanfare and optimism. Though there was sceptism, even ardent Afro-pessimists conceded that the AU marked a significant paradigm shift with regards to conflict prevention and management, thus providing the continent with a plausible chance of solving its problems. As Heads of State and Government convene in Addis Ababa in 31st January - 2nd February 2008 for the 10th AU Summit, the organisation is at a critical juncture. Almost seven year down the road, the organisation has had mixed results. While the desirability of the organisation in not in dispute, its structure and operation have come under intense scrutiny over the years.

While there is consensus that the AU has made plausible steps in enhancing human security on the continent, the persistence of conflict in Chad, Cote d’Ivoire, Somalia and the recent political crisis in Kenya seems to suggest that the AU is still grappling with how to solve the continent’s crisis. This demands introspection from the AU in order to reposition itself if it wants to deal with the turbulence of 2008 and years to come. Within this context, one is tempted to ask the following question: Is there a need to re-organise and re-energise the AU given contemporary African and global political and economic realities?

Perusing the draft agenda of the up-coming 10th AU summit reveals that the Summit provides the venue and context in which to engage these critical questions. The theme of the summit is Industrial Development of Africa. As a point of departure to engage these questions and assess what impact the 10th AU summit will have on the continent’s peace and security agenda, it is imperative that an even more pressing question be addressed: Is the AU a panacea to conflict on the continent? Does its’ mandate provide it with the necessary leverage and operational mechanisms to make such a claim? The aim here is not to dampened expectation about the AU nor to downplay its achievements. The purpose of these searching questions is to throw light on the issues that the forthcoming summit seek to address, in order to make sense of how far they can impact on the continent’s peace and security agenda.

While the AU makes the claim that one of its principal objectives is to promote peace, security, and stability on the continent (article 3 (f) of the Constitutive Act), this should not be interpreted to mean that the AU is a panacea to conflict on the continent, despite groundbreaking innovations like article 4 (h) of the AU Constitutive which reserves the AU the right to intervene in a member State pursuant to a decision of the Assembly in respect of grave circumstances such as war crimes, genocide and crimes against humanity.

Instead, given the AU’s mandate and governing principle, it seems more appropriate to view the organisation as a secondary means of crafting solutions to crises on the continent. There is no doubt that the principal responsibility for peace and security rests within domestic political institutions and leadership. As a consequence, should the AU perhaps prioritise strengthening domestic political institutions, structural conflict prevention strategies, sustain economic integration and robust implementation of its conventions and decisions?

One of the most contentious issues that the AU Summit will be discussing is the Union Government of Africa. The summit will be responding to the report of the Ministerial Committee created by the Accra Declaration to elaborate further on the domains of competence that would be assigned to the AU, the implications of this for sovereignty of member states and Regional Economic Communities, the roadmap with times frames for the Union Government, and financing options for the Union.

So far seven domains of competence have been identified: peace and security, environment and pandemics, trans-national crime, communication/infrastructure, global trade and research/university. There remains disagreement on defence and foreign policy. No agreement has been reached on the institutional implications of these areas of competence. The Ministerial Committee also explored the nature of the relationship between a future Union Government and the Regional Economic Communities (RECs). The Committee did reach agreement on the closer involvement of RECs in AU affairs, with the AU Commission and RECs signing a Protocol governing their relations. The AU assuming responsibility for the external representation and participation of RECs in major global events. Five proposals were made on an appropriate time-frame for a road map without agreement. A similar situation emerged in discussions around alternative and sustainable financing for the Union.

The most critical issue to be tackled by the Summit will be the AU Audit Report. Mandated by the Heads of States during the July Summit, the Audit sought to review the performance of AU organs and RECs in accelerating continental integration. Between September and December, the 14 person High Level Panel held several hearings, studied AU documents and interviewed AU staff, African and non-African embassies. It is expected that the Audit will provide a comprehensive analysis of the performance to date. But the big question is how the AU will act on the Audit Report and how the report will impact on the future of the AU. Does the AU have the capacity and political will to implement the recommendation of the report?

The Summit is also expected to elect the Chairperson, the Deputy Chairperson and the Commissioners. Six candidates are vying for the Chairperson’s position, 2 candidates for the Deputy Chairperson’s position, and 58 candidatures for Commissioner’s positions. While these individuals operate within an institutional framework there is no doubt that the individual personalities of those elected will have a huge impact on the future of peace and security on the continent. The Summit will be appointing new members of the Peace and Security Council with a two year mandate.

There is no doubt the outcome of the10th Summit of the AU might prove a critical juncture in the future of the AU. But how much impact the Summit will have on the peace and security agenda of the continent will not only depend on the decisions taken but most importantly on their implementation.

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