Cooperation, coordination and collaboration of the AU PSC and RECs/RMs
Amani Africa
Date | 19 August, 2019
Tomorrow (20 August) the African Union (AU) Peace and Security Council (PSC) is expected to hold a session on cooperation, coordination and collaboration of the AU PSC and Regional Economic Communities/Regional Mechanisms on peace and security related matters on the continent.
It is to be recalled that in May 2019 the PSC held its inaugural meeting with RECs/RMs on the promotion of peace and security focusing on harmonization and coordination of decision-making processes and division of labor. Although the PSC protocol has no explicit language around the principle of subsidiarity when addressing the relationship between the PSC and RECs/RMs, its retreat with RECs/RMs in Abuja, Nigeria in 2015 addressed the principles of subsidiarity, complementarity and comparative advantages. Similarly the joint communiqué established that the synergy would be based on these principles. It is expected that the two mechanisms will identify a set of criteria in defining the scope and application of such principles.
Tomorrow’s meeting will not only be a follow up to the PSC and RECs/RMs inaugural meeting but also a forum to reflect on the decisions that came out from the first mid-year coordination meeting between the AU and RECs/RMs held in July in Niamey, Niger. The Niger Declaration, which welcomed the efforts of the PSC and policy organs of RECs/RMs, it also called for the rapid establishment of ‘practical modalities to facilitate timely and coordinated responses to continental crises’. Moreover the meeting tasked the Commission, Member States and RECs/RM to prepare a detailed framework of division of labour to be adopted by the Assembly in February 2020. The upcoming Summit also offers an opportunity for the PSC to work closely with RECs/RMs in preparing its annual report to the Assembly.
In this regard, the joint PSC and RECs/RMs communiqué outlines concrete steps that are expected to solidify the working relations between the two mechanisms, which may inform and contribute to the broader efforts of establishing clearer division of labour and coordination between AU and RECs/RMs. PSC and RECs/RMs have agreed to establish a team of focal points comprising representatives from both institutions to foster coordination on peace and security issues. An agreement was also reached to hold joint field missions and joint retreats/brainstorming sessions for coordinated and strategic response. Hence tomorrow’s session will be particularly essential to link the PSC level coordination to the broader Commission and AU level one. It may also reflect on the operationalization and the actual implementation of these initiatives by also agreeing on a timeframe and by developing a clear roadmap that governs its institutional working relations with RECs/RMs.
The other key instrument, which may also be of interest to the PSC, is the Report of the AUC Chairperson on the Status of Integration in Africa and the complementary regional perspectives presented by the Chairs of the RECs. The first Report was presented at the mid-year coordination meeting. It may be a key priority area for the Council to ensure that its joint and harmonized efforts with RECs/RMs feature in the comprehensive report that is expected to be regularly produced.
The enhanced coordination between PSC and the RECs/RMs policy organs is one of the key factors in realizing the full operationalization of the African Peace and Security Architecture. The various pillars of the architecture including the PSC itself will require the continued coordination and synergy with RECs in discharging their mandate. The joint communiqué makes particular reference to early warning and response mechanisms and deployment of the African Standby Force.
The coordination efforts have also practical implications, which will require the immediate action by the PSC and RECs. Both sides are expected to generate of strengthen their capacities in order to facilitate the regular exchange and communication and alignment of decision making process. In this context it is worth noting that level of capacity among RECs vary, hence the level of engagement in the decision making process may also be affected. The other issue that will require a clear direction is related to the overlapping membership of states in different RECs.
When examining the implications of the Niamey first coordination meeting on its working relations with RECs/RMs, the PSC may also take in consideration the on-going efforts towards revising the 2008 Protocol on Relations Between the AU and RECs. The revised protocol is expected to take in consideration the new coordination structures that were officially kicked off in Niamey. Prior to the Assembly’s adoption of the revised protocol in 2020, the PSC in close consultation with policy organs of RECs/RM may wish to engage in the revision of the protocol to ensure that it is in line with the agreed upon principles governing its working relations with RECs/RMs. The PSC may also work toward the formalization and recognition of its coordination mechanism with RECs/RMs by the revised Protocol. This effort may also look into further expanding article 30 of the Protocol that outlines the harmonization of mechanisms for promotion of peace, security and stability.
In the joint communiqué PSC and RECs/RMs agreed to hold ‘annual joint consultative meetings, between the PSC and the RECs/RMs policy organs on peace and security issues, alternately in Addis Ababa and in the headquarters of the RECs/RMs, in rotation’ and to be ‘convened ahead of the mid-year coordination summit between the AU and RECs/RMs’. Although the joint consultative meeting is a step forward in institutionalizing the partnership, it is also necessary to ensure that the coordination work takes place throughout the year in a systematic manner. It may also be essential to actively assess the implementation status of various decisions that emanate from the various consultative sessions.
During the production of this ‘Insight’ the form of the outcome was unknown. However the PSC may provide clear actions in implementing the decisions made during the inaugural meeting, particularly towards the development of a joint framework/roadmap with monitoring and follow up mechanisms. Following the Niamey declaration the PSC may request RECs/RMs to jointly kick-start the establishment of a mechanism for coordinated responses to crises. Moreover based on the decisions articulated in the Niamey declaration it may highlight for the need to ensure that its renewed working relation with RECs/RMs is informed by the Commission wide commitments and that they also contribute to the continental integration agenda.
Briefing on Elections in Africa
Amani Africa
Date | 19 August , 2019
Tomorrow (19 August) the African Union (AU) Peace and Security Council (PSC) will hold its 869th session focusing on elections in Africa. The PSC is expected to receive the Report of the AU Commission Chairperson on Elections in Africa for the period of January to December 2019. It is expected that the Department of Political Affairs will introduce the report to the PSC.
The practice of providing briefings on elections in Africa can be traced back to the Report of the Panel of the Wise entitled ‘Election-related disputes and political violence’ and the 392nd meeting of the PSC. But it was at its 424th meeting that the PSC decided to have a briefing from the Department of Political Affairs (DPA) on elections in Africa on a quarterly basis.
The last time the PSC held this session was at its 815th meeting held on 04 December 2018. From the 18 presidential and parliamentary elections on the AU calendar for 2019, tomorrow’s session is expected to offer a review of the nine presidential and parliamentary elections and one constitutional referendum held on the continent between January and June 2018. The elections expected to receive attention within this context include those held in Nigeria, Senegal, Guinea Bissau, Comoros, Benin, South Africa, Malawi, Madagascar and Mauritania as well as the constitutional referendum in Egypt.
Of particular interest would be the trend that the briefing is expected to highlight in terms of not only good practice and challenges observed in conducting elections but also in terms of the monitoring of elections. This may include reference to ‘any cases of election malpractices and shortcomings’ that the communiqué of the 747th meeting of the PSC required AU Electoral Observation Mission reports to highlight for future lessons.
Some of the issues observed in a number of the elections under review include election irregularity, incidents of violence, tense political environment, low voter turnout, change of electoral calendar, uneven playing field for candidates and restrictive environment. Low voter turnout seems to be a feature of most of the elections. While the AU notes that the 2019 general elections in Nigeria registered the lowest turnout of elections held on the continent during the reporting period, there is no statistics on percentage of voter turnout for the elections in Benin. Yet, given the impact of low turnout on quality of elections and voters’ confidence over elections, there is a need for addressing the various factors leading to low voter turnout. The exception to this trend of low voter turnout is that of Guinea Bissau where the turnout of registered voters was 84.69.
Beyond and above voter turnout, issues of participation of some segments of the public particularly women and youth are also highlighted as areas requiring attention. In this respect, it was observed that in South Africa ‘only 18.5% of youth in the 18-19 age bracket registered to vote.’ The AU accordingly observed that ‘t]hese call for serious attention as a significant proportion of first-time voters were apathetic.’
The elections that witnessed tense political environment and major contestations include those in Benin, Comoros and Senegal. In all of these cases, fierce disputes resulted from the introduction of electoral legal reforms on matters of political party registration, term limits, electoral system and increased cost of candidatures. Of these, the country that registered retrogression in its electoral processes is Benin, where the AU observed not only an environment that was exclusive of opposition candidates but also violative of individual liberties. These developments highlight that there is a need for the AU to closely monitor electoral legal reforms and develop standards that should be followed in undertaking such reforms as a means of preventing electoral disputes and violence.
Claims of vote rigging have been observed in the elections in Malawi. Of interest to the PSC in this respect would be the post-election protests that followed allegations of electoral fraud.
The impact of insecurity on the electoral processes also remains as has been the case, for example, in parts of Nigeria. This remains a major issue for the upcoming election in Mali.
In terms of positive developments, Mauritania witnessed the democratic transfer of power to a new elected president, the first in the post-independence history of the country is notable.
From a perspective of election observation practice of the AU, it was noted that the AU was not able to deploy election observation mission to Madagascar. In respect to the practice and methodology of election observation, it would be of interest for the PSC to get update on developments relating to the need that various PSC outcome documents including the communiqué of its 747th session indicated in terms of enhancing the African Union Election coordination mechanisms with other relevant international missions. This includes the coordination with electoral observation missions of regional bodies.
The upcoming elections expected to take place during the third and fourth quarter of 2019 that tomorrow’s session will cover are Algeria, Botswana, Mali, Mozambique, Namibia and Tunisia. The AU has envisaged to deploy election observation mission to all the six countries.
In respect of these elections, it would be of interest for PSC members to know about how the AUC plans to engage not only in terms of deployment of election assessment and observation missions but also in terms of identifying risks of electoral disputes and preventive measures that should be adopted. In respect of early warning on such electoral disputes, the upcoming elections that may in particular be of interest are the elections in Mali (on account of the security situation in the country) and Algeria (on account of the protest events in the country).
The expected outcome of the session is a communique. It is expected to address the various issues arising from the report. It would, among others, highlight the continuing importance of elections in the democratization process of the continent, the need for improving the quality of elections including through ensuring the independent functioning of electoral management bodies and the provision of even playing field, and the importance of resolving existing crisis and conflicts as necessary condition for inclusive and credible elections. Enhancing the role of this briefing to map electoral risks for providing early warning to the PSC highlighting the measures that the AU could take for mitigating the risks through joint work of DPA and PSD would be of particular importance for the work of the PSC. To this end, the outcome could highlight the importance of holding the quarterly briefing timeously. In terms of lessons from the elections in Senegal, Comoros and Benin, the PSC may highlight the need for ensuring that electoral legal reforms follow the requirements of inclusiveness, fairness, transparency and consensus of all political forces as a measure of democratic legitimacy and preventing electoral disputes.