Enhancing PSC-CSO relations to promote peace and security
Overcoming persistent implementation challenges could pave the way for more vibrant citizen participation in managing continental challenges.
At the transformation of the Organisation of African Unity (OAU) into the African Union (AU), African leaders were ‘guided by (…) the need to build a partnership between governments and all segments of civil society, in particular women, youth and the private sector, to strengthen solidarity and cohesion’ among their citizenry. This vision, enshrined in the AU Constitutive Act, shifted significantly from the state-centric approach of the OAU to a new paradigm in which citizen engagement is instrumental in the realisation of continental goals. The AU's will to move to a citizen-driven approach instilled optimism about its evolving commitment to change and readiness to harness the collective strength of citizens and citizen formations.
The AU pursued this by establishing several structures, including the African Citizens and Diaspora Directorate and the Economic, Social and Cultural Council (ECOSOCC), to bridge the divide between citizens and AU institutions. It also provided for administrative arrangements including bilateral memoranda of understanding and the granting of observer status to civil society organisations (CSOs) as ways of involving citizens in its activities. From these, engagement platforms emerged for citizen representation into AU invited spaces, and those created by CSOs to provide for AU-citizen interactions.
Also important was the move by African leaders, while mandating the Peace and Security Council (PSC), to apply Article 20 of the PSC Protocol. This article provides for engagement with ‘non-governmental organisations, community-based and other civil society organisations, particularly women’s organisations, to participate actively in efforts aimed at promoting peace, security and stability in Africa’. Discussions at the first PSC annual retreat in Dakar, Senegal in 2007 agreed that the Council may invite civil society actors to address sessions and, over time, devise formulae to guide interactions with CSOs. This culminated in the PSC’s adoption of the annual meeting with ECOSOCC at its 2008 Livingstone, Zambia retreat, known as the Livingstone Formula.
The AU Constitutive Act vision shifted from the state-centric OAU approach to enhanced citizen engagement
In 2014, due to its limited interaction with CSOs despite the formula, its sixth annual retreat in Maseru, Lesotho explored challenges to the Livingstone Formula and its interactions with CSOs. Despite PSC strides in engaging citizens after Maseru, numerous hurdles continue to hinder the process.
Approaches and achievements
Following Maseru, the PSC sought to enhance citizens’ participation in addressing Africa’s peace and security challenges. It did so by implementing institutional spaces such as the annual PSC-CSO meetings and inviting CSOs to participate in PSC monthly open sessions as briefers and/or observers. The Council has also collaborated with civil society actors to enact crucial decisions in its conflict prevention/management projects. In addition, it tasked ECOSOCC and the African Citizens and Diaspora Directorate with developing a comprehensive database to improve reach and information dissemination among key civil society actors.
This has spawned significant results in establishing the mechanism to advance PSC-CSO interactions in promoting peace, security and stability in Africa, as provided for by the Livingstone Formula and Maseru conclusions. CSO participation in PSC open sessions has increased considerably since Maseru, compared to limited civil society liaison between 2008 and 2014. Although only two annual consultations between ECOSOCC and CSO representatives have happened in line with the Livingstone Formula, civil society participation in PSC meetings and retreats has increased.
Persisting challenges
Despite noticeable improvements in some aspects of PSC-citizens relations, several issues continue to hinder the effective implementation of the interaction mechanism. Chief among them are institutional challenges and longstanding CSO-state mistrust in continental decision-making spheres, including the PSC.
Despite PSC strides in engaging citizens after Maseru, numerous hurdles continue to hinder the process
Various CSOs perceive ECOSOCC as a state-captured institution, which has thwarted progress. Perceptions surrounding Article 6 which states that CSOs registering for ECOSOCC must have at least 50% of resources be derived from members of the organisation have markedly affected ECOSOCC membership. This is particularly true of the ability of members to take up electoral positions, despite the significant progress the organ has made so far.
Little attention has been given to the perennial antagonism between civil society and governments over sensitive governance- and security issues in most AU member states. Given that CSOs demand more state accountability in those areas, they are perceived as ‘too activist’. Consequently, their relationship is strained with their host state and sometimes they are denied the capacity to maintain registration in member states as a basis for inclusion in ECOSOCC and eventually the PSC. ECOSOCC has also been criticised for being urban-centric, excluding grassroots organisations that often meet selection criteria. Such accusations are not necessarily accurate considering ECOSOCC’s holistic approach to mobilising CSOs, covering various themes across the continent under its national chapter concept.
ECOSOCC has yet to finalise the database, which Maseru recommended 10 years ago
Despite more flexibility in CSOs’ engagement criteria, ECOSOCC has yet to finalise the database, which Maseru recommended 10 years ago to map actors in essential areas such as prevention and mediation. According to sources, this indicates the organisation’s persisting difficulties in encouraging CSOs to subscribe to the PSC-CSO interaction mechanism. Also important is how some member states transpose national-level antagonism against CSOs to the continent by restricting access to strategic meetings, including peace and security engagements.
Addressing the issues
ECOSOCC’s efforts to mobilise CSOs under its national chapter are highly commendable. As more vibrant PSC-CSO interaction is paramount to achieving a conflict-free continent, CSO engagement and widening the pool of such organisations will enhance the PSC’s understanding of and response to peace and security challenges. In addition, addressing the abovementioned barriers will help leverage CSOs’ capacities and knowledge to elevate preventive diplomacy and the upholding of democratic and peaceful gains made in the PSC’s quest for continental stability.
Even though not specific to PSC-CSO interactions, the national chapter concept and associated comprehensive composition of sectoral clusters are solid foundations for extended grassroots citizen engagements. ECOSOCC should use digital platforms to connect levels of engagement so as to widen its reach and minimise CSOs’ reluctance to engage with it.
The PSC Secretariat should step up advocacy efforts for increased CSO input by assuaging member states reluctance to accommodate civil society inclusion in managing continental peace and security challenges.
