Back to mandate basics a priority for Djibouti chair candidate
Crucial issues facing the African Union Commission demand creative solutions, says Djibouti’s foreign affairs minister.
Peace and Security Report posed some pertinent questions to AUC chair hopeful, Mahamoud Ali Youssouf
What inspired you to enter the race for AUC chairperson and what is your vision for the AU in this role?
Serving the continent has been a longstanding aspiration. Over 20 years, I have been foreign minister of my country and my career in multilateral diplomacy spans more than three decades. This extensive experience has given me the knowhow and skills to tackle the challenges and responsibilities Africa and the AU face.
To address these pressing issues, the AUC requires renewed leadership, which I am confident I can bring through my experience, determination and commitment. Furthermore, this ambition aligns with the AU’s rotation principle, which allows for a candidate from East Africa.
If elected, what would be your top three priorities and how would you implement them?
First, it is essential to acknowledge the significance of Agenda 2063, which the AU endorsed with its series of 10-year implementation plans. My appreciation goes to chairwoman Dr Nkosazana Dlamini-Zuma, who steered the agenda, which provides a robust framework and clear strategies for a prosperous, integrated and peaceful continent.
The AUC’s primary role currently is to advance the implementation of decisions made by heads of state and government. This requires innovative leadership and determination to enact decisions. We must develop more coherent and effective working methods among the AUC, regional economic communities (RECs) and member states. The incoming Commission must foster stronger coordination and collaboration among these mechanisms and institutions.
Secondly, implementation methodologies need attention. This includes refining coordination, strengthening collaboration and mobilising financial and human resources to ensure that efforts deliver tangible results. Financial sustainability is paramount.
Finally, human resource development is essential and I would address its shortcomings. Competent recruitment, career growth opportunities and staff development programmes must be prioritised. Our employees need clear career pathways and professional development to enhance their effectiveness and morale.
While we cannot expect to change everything overnight, focusing on methodology, coordination and resources will position the AUC to deliver more effectively on its mandate and drive meaningful progress towards Agenda 2063.
In your view, what are the most pressing issues facing Africa today and how should the AU address them?
When undertaking a long journey, the first step is to ensure transportation is in order. Similarly, Africa must strengthen its capacities, instruments and policy organs to address the continent's challenges effectively. The issues are well known: peace and security, hotspots of instability, unconstitutional changes of government, internal crises in countries such as Sudan and Libya, and tensions among nations.
Rather than having Africa’s youth head to other countries, we must create opportunities at home
The AU must rely on existing mechanisms such as the Peace and Security Council, the Panel of the Wise and regional standby forces. The not-yet-operational standby forces, for example, could play a vital role in preventing and resolving conflicts. Additionally, US$400 million has been secured through the AU Peace Fund to support African-led peace missions. Bolstering the African Peace and Security Architecture will be crucial, as peace and security are prerequisites for sustainable development.
Another urgent issue is migration. Rather than having Africa’s youth undertake dangerous journeys to other parts of the world, we must create opportunities for them to thrive at home. This includes transforming agriculture into a viable job provider through smart agriculture practices, water resource management and the development of agribusiness. A well-implemented plan for agricultural transformation can create jobs for youth and drive economic growth.
Industrial transformation is also essential. African countries must add value to their raw materials instead of exporting unprocessed. Local value addition can create employment and keep wealth. Every country has the potential to transform its resources locally and the AU can support member states in achieving this.
Climate change requires urgent attention. Africa, despite being the least responsible for global pollution, bears the brunt of its effects. Initiatives such as the Loss and Damages Fund, established during COP28, must be implemented to help African countries adapt to and mitigate climate change impacts. The AU should amplify Africa’s voice in global climate discussions to ensure the continent receives the support it needs.
Another imperative is boosting intra-African trade through the African Continental Free Trade Area (AfCFTA). While the framework has been in place since 2017 and many countries have ratified it, intra-African trade remains at a mere 18% compared to 80% of trade conducted with the rest of the world. Existing mechanisms such as the African Trade Observatory, payment systems and tariff monitoring tools need to be fully operational. For example, a functional African payment system that bypasses reliance on foreign currencies such as the dollar would significantly reduce transaction costs and enhance trade efficiency.
The first 10-year plan of Agenda 2063 has provided a clear roadmap. Now the focus must shift to raising performance and ensuring tangible results. The AU must build on its progress and work with member states to address issues. If elected, I will advance these priorities, ensuring that Africa’s youth, economies and peace efforts are at the forefront of the AUC agenda.
On its 20th anniversary, how would you evaluate the AU’s performance and address its shortcomings?
The AU has established mechanisms to improve peace, security and public health. Examples are the African Medical Agency and the Africa Centre for Disease Control to manage pandemics such as ebola and monkeypox. Education efforts have led to a substantial rise in school enrolment, laying the foundation for long-term development. Furthermore, the AU has initiated key reforms since 2017, including resource mobilisation strategies such as the collection of an 0.2% levy on eligible imports to fund AU programmes. However, only 17 member states have implemented this, underscoring the need for stronger commitment and enforcement.
To avoid inertia, the AU must involve the private sector and civil society in its decision-making
Despite these achievements, the continent continues to grapple with an unresolved security crises, unconstitutional changes in government, inadequate education systems and public health vulnerabilities. The next AUC must strengthen implementation of reforms and mechanisms. Enforcing decisions such as the 0.2% levy is crucial to adequately fund AU programmes. Member states must be held responsible for their commitments to AU initiatives. This can be achieved through building trust, fostering dialogue and providing technical support to countries that may struggle to comply. Additionally, tackling the AU’s challenges will demand creative solutions.
The AU’s transition from the Organisation for African Unity created a new dynamic that holds great promise. While we are far from achieving all our goals, the foundation is strong. We must now close the gap between policy and practice through innovative leadership and renewed commitment to getting things done.
Do you believe AU institutional reforms since 2017 have improved AUC efficiency and how would you ensure that the reforms deliver lasting results, particularly in addressing perceived inefficiencies and accountability issues?
Institutional reform is a process and we cannot say the reforms have failed. Some have been implemented successfully, while others require further effort. The reforms are essential because the world is continuously evolving. In a polarised global landscape, where groups align to influence decision-making at the highest levels, the AU must secure its place at every key table.
While Africa has achieved a seat at the G20, this is only the beginning. The AU must push for representation on the boards of, for instance, World Bank and the International Monetary Fund. Additionally, we must continue lobbying for two permanent seats with veto power on the United Nations Security Council.
To ensure lasting results, I would improve coordination among the AUC, RECs and states. Regular meetings between the Commission and the Permanent Representatives Committee (PRC) are essential to foster dialogue, deliberation and coherence in decision-making to achieve reform objectives.
The AUC still exhibits a civil servant mentality that often mirrors the inefficiencies of traditional public administrations. Bureaucratic stagnation must be eliminated to drive innovation and transformation. I would promote a results-oriented culture at the Commission that prioritises agility, accountability and impact.
To move beyond bureaucratic inertia, the AU must actively involve the private sector and civil society in its decision-making. Their perspectives and innovations are pivotal to achieving transformative change. I envision an AU where these stakeholders have a seat at the table in all major discussions, ensuring diverse input and dynamic solutions.
Africa must not approach G21 discussions as dependent or passive, but as dignified and capable
These steps are not just campaign promises but deeply held beliefs. By fostering better coordination, addressing bureaucratic inefficiencies and broadening engagement, we can ensure the AU reforms lead to a more effective, innovative and accountable institution to meet Africa’s needs in an evolving global landscape.
How do you evaluate the current relationship between the AUC and the PRC or member states and how would you strengthen this?
The AUC serves its member states and the PRC, as it ensures that the Commission's work aligns with the interests and priorities of stakeholders. Thus, the two must have a strong relationship based on consistent engagement, regular meetings and open discussions. Relegating engagement to lower-level officials risks alienating the PRC and creating dissatisfaction among its members. To address PRC concerns about insufficient engagement, I would institute regular and structured meetings as a consistent platform for discussing issues and ensuring that member states' perspectives are fully integrated into the Commission's work. Engagement methodology would also be enhanced by ensuring clear agendas, thorough documentation of discussion, and actionable follow-ups, fostering accountability and collaboration.
With the AU now a member of the G21, how do you see Africa’s role there and how would you its elevate influence and leverage in the group?
When global decision-makers convene, they shape the trajectory of the world, and their decisions directly affect Africa's concerns and expectations. If the continent is absent from such discussions, it becomes nearly impossible to influence outcomes. The AU’s inclusion in the G21 ensures that Africa’s voice is present at the table, where its concerns about economic transformation, climate change and industrial development can be effectively articulated.
It allows Africa to present and explain its strategies directly to decision-makers. Whether agricultural strategy, industrial transformation or climate change, having a representative present ensures that Africa’s unique challenges and opportunities are recognised and addressed within global frameworks.
It is also essential to emphasise Africa’s dignity and capacity to contribute meaningfully to global solutions and not to approach discussions from a position of dependency or passivity. The AU already has numerous partnerships, including with Japan. However, it is imperative that Africa is seen as an equal partner rather than as a recipient of aid or favours.
A unified African voice is key to amplifying the continent’s influence, ensuring that its concerns are taken seriously and its contributions valued. If, say, South Africa or Nigeria represents itself independently, it risks being perceived as just another country rather than as part of a powerful, cohesive continent.
How will you address the tense relationship between the AU and the RECs that often hampers effective collaboration?
The principle of subsidiarity is crucial in defining the relationship between the AUC and the eight RECs founded to foster regional integration as the pillar for continental unity. This principle emphasises that the AUC’s role is not to compete with or dictate to the RECs but to support and complement their efforts. AU charters make it clear that the Commission exists to serve the broader goals of integration by assisting the RECs through expertise, capacity building and technical support.
I would foster stronger complementarity and partnership. The Commission must act as a facilitator, ensuring that regional integration by RECs aligns with and contributes to continental objectives. This requires consistent dialogue, mutual respect and a shared commitment to integration goals.
Improving understanding and synergy between the AUC and the RECs would be another priority. This would involve clearly delineating roles and responsibilities, reducing overlap and creating a framework for regular, structured engagement. By addressing misunderstandings and potential competition, we could ensure that the AUC and the RECs operate in harmony toward the shared vision of African integration.
How can AfCFTA be enhanced?
The free movement of people, capital and goods must be addressed urgently. While tariff barriers are relatively straightforward to manage through concessions and exceptions, non-tariff barriers are complex. Building trust and confidence among African nations and their citizens is essential to allow free movement for trade. To facilitate this, the AU passport must be fully recognised, implemented and accepted at all borders.
The second need is an efficient payment system. For example, when Djibouti trades with South Africa, each should be able to use its own currency. If Djibouti buys goods from South Africa, the rand should be accepted and vice versa. This can compensate for potential losses from exchange rate fluctuations or other currency issues.
The third pillar is infrastructure. Without robust cross-border infrastructure — roads, railways and transport corridors — it becomes nearly impossible to move goods efficiently between countries. The AU Development Agency-New Partnership for Africa's Development has a crucial role to play in supporting the development of infrastructure projects.
The new Commission will need to focus on the areas mentioned in collaboration with member states and regional bodies. We are not seeking a miracle nor reinventing the wheel, but hard work, synergy and complementarity will be essential to making AfCFTA a transformative success.
