IISD/ENB | Matthew TenBruggencate

Great Red Island’s chance to help shape Africa’s future

Madagascar is highly motivated to transform the African Union into a dynamic, forward-thinking organisation, says former foreign affairs minister.

Richard Randriamandrato shared with Peace and Security Report his priorities for his AU Commission (AUC) chairship should he prevail.

What inspired you to enter the race for AUC chairperson and what is your vision for the AU in the role?

First, Madagascar endorses my application and I have the full backing of President Andry Rajoelina. His unwavering support reflects how Madagascar’s foreign policy is evolving under his leadership, with a more global and progressive stance. This transformation aligns with rapidly advancing geopolitical, economic and technological dynamics across the world. Madagascar is determined to keep pace with developments, leveraging innovation across all sectors to secure a brighter future.

I believe that my candidacy represents this new vision. We are highly motivated to advance the transformation of the AU into a dynamic and forward-thinking organisation, making it a place of meaningful progress, with tangible results visible across the continent.

As the AU prepares for a new team in 2025, the time is ripe for Madagascar to bring its unique perspective, ideas and vision to the table. We can help to mould the continent’s future in a way that reflects not only our aspirations but Africa’s collective goals. As an island nation, we believe that we can add value. 

If elected, what would be your top three priorities and how would you implement them?

First, a major concern that has emerged over the years is the cumbersome bureaucracy of AU management structures. This includes not only the AUC but the organs that make up our ‘common house’. I use this term because AU successes and shortcomings are a shared responsibility.

Over the past eight years, concerns have been raised about inefficiencies and delays in administrative processes. Addressing these will be my first priority. We need to bring order and efficiency to administrative procedures, ensuring that decisions are executed swiftly and transparently. My plans include a comprehensive review of the organisational structure, eliminating redundant processes and empowering staff with clear guidelines and tools to work effectively.

Secondly, clarity is needed on the roles and responsibilities of each AU organ. Questions such as ‘Who does what?’ and ‘Why and how do they do it?’ must be answered definitively. Significant institutional reforms have been undertaken over the past eight to nine years and we are now at the end of this cycle. It is time for introspection and assessment. We need to critically evaluate the reforms and their outcomes, learning lessons from the past to improve future efforts.

I believe that the change of leadership, with President Paul Kagame set to deliver a reflective address in February 2025, will be a perfect time for all AU entities to undertake introspection. Each entity must look in the mirror and then at each other, addressing gaps and shortcomings while building stronger collaboration.

The third issue is finding a balance between the immediate need to restore peace and security in conflict-ridden regions and fostering sustainable development. Political and military instability in many parts of the continent continues to inflict suffering, especially on women and youth. At the same time, we must also prioritise human development for long-term peacebuilding. I recently attended the Common Market for Eastern and Southern Africa (COMESA) summit in Bujumbura, where the 21 heads of state expressed deep concern about these issues. Resolving them will require a dual focus — addressing urgent conflicts through effective peacebuilding mechanisms while advancing human and economic development initiatives.

The time is ripe for Madagascar to bring its unique perspective, ideas and vision to the table

Beyond these matters, we need to revisit the progress made under the Programme for Infrastructure Development in Africa and align it with the earlier frameworks of the New Partnership for Africa’s Development. Additionally, innovation and technology must take centre stage. I am particularly encouraged by the establishment of the African Space Agency, a significant step forward that unfortunately receives little attention. While we often focus on conflicts, it is equally important to celebrate and build on Africa’s successes, moving toward a future where progress and innovation are highlighted alongside challenges.

On its 20th anniversary, how would you evaluate the AU’s performance and address its shortcomings?

The peace support missions in Sudan, Somalia, the Central African Republic and Mali are notable successes. These missions, while fraught with difficulties, demonstrate the AU's commitment to maintaining stability and security in the region. The Peace and Security Council has played its part, although restoring order in these areas remains an arduous task. Sudan, in particular, reflects the immense struggles the continent faces in resolving political and military instability. However, the AU has taken important steps, despite limited resources, especially financial.

The African Continental Free Trade Area (AfCFTA) is a major move toward economic integration, with nearly all African countries having signed the agreement. Madagascar recently ratified AfCFTA ― a significant moment as we adapt to the vast economic opportunities this free trade area presents. With time and support, I believe African investors and entrepreneurs will seize AfCFTA’s opportunities, further driving the continent’s growth.

Diplomatically, the AU’s membership in the G20 is pivotal as it allows Africa to assert its voice on the global stage. The membership, alongside partnerships with nations such as China through the Forum on China-Africa Cooperation and with the European Union (EU), demonstrates the growing strategic importance of Africa in world affairs. Initiatives such as the Belt and Road Project and increased financial commitments from the EU are steps in the right direction. While these partnerships are promising, they also highlight gaps in the AU's capacity to absorb and manage the investments effectively. Enhancing procedural efficiency and operational capabilities will be key to ensuring seamless collaboration with international partners.

An objective of the institutional reforms initiated in 2017 under President Kagame was to address bureaucratic inefficiency. Bureaucracy, however, is not unique to the AU — it affects all large organisations. Over the years, the AU has grown significantly, leading to redundancies in roles and responsibilities that now require a thorough review. The Skills Audit and Competencies Assessment, which seeks to address these factors, is a positive development. However, it would be oversimplistic to attribute all shortcomings solely to the AUC, as the heads of state, executive council and Permanent Representatives Committee (PRC) share responsibility.

The outgoing team, led by Chairperson Moussa Faki Mahamat, deserves recognition. Reforming an institution as complex as the AU is no small task. We must now ensure that the reforms gain the buy-in of all stakeholders, from heads of state to staff at AU headquarters. This will involve retreats, conferences and structured dialogues to align everyone’s understanding of the challenges and the way forward.

If elected, I would concentrate on consensus building and strategic planning. Reforms cannot succeed without broad approval from heads of state, as they hold primary decision-making authority at the AU. This process requires preparation, clarity and a shared vision.

How do you evaluate the current relationship between the AUC and the PRC or member states and how would you strengthen this?

The relationship is undeniably complex. Historically, there have been tensions and role overlaps often stemming from divergent approaches and perceptions of micro-management. As mentioned, these challenges are not unusual in an institution as vast and multifaceted as the AU.

Reforming the AU is no small task and we must now ensure the reforms gain broad buy-in

As with any other entity, the AU is made up of people — men and women who rely on their intellect, experience and intuition to carry out their roles. In an age of rapid technological advancements and artificial intelligence, the human element remains central to AU operations. Managing relationships and changes in the institution requires balancing procedural efficiency with human empathy. 

Roles and responsibilities must be clarified. At times, overlaps and ambiguities involving the AUC, the commissioners and the PRC have led to conflict. Open dialogue is needed, as is an institutional framework that fosters mutual respect and collaboration.

If elected, I would prioritise regular and structured engagement with the PRC to strengthen our working relationship. This would involve periodic consultations to ensure alignment of priorities and to address grievances promptly. By establishing clear communication channels and fostering trust, we can partner better.

The regional dimension of the AU must not be overlooked. The relationship between the AUC and the regional economic communities (RECs) also requires recalibration. Established under the Treaty of Abuja, the RECs were tasked with spearheading regional integration en route to continental integration. However, AU headquarters and the RECs have often butted heads, particularly on peace and security. Questions of ‘who does what, when and how?’ persist, and they demand urgent attention.

I believe the Treaty of Abuja must be revisited to better reflect today’s realities and challenges. While the RECs predate the establishment of the AU in 2004, two decades later, it is time to harmonise regional and continental priorities to ensure they align with Agenda 2063. For instance, summits such as the recent Southern African Development Community meeting in Harare and the COMESA summit demonstrate the political will to advance integration and cooperation. These gatherings underline the potential for synergy when regions work together effectively.

Facilitating the free movement of goods, services and eventually people remain central. I am optimistic that the upcoming reforms will bring clarity, allowing for stronger coordination among the AUC, PRC and RECs. Finally, enhanced African representation in global institutions, particularly the United Nations Security Council, is essential.

With the AU now a member of the G21, how do you see Africa’s role there and how would you elevate its influence and leverage in the group?

Admission positions the AU as a significant player in international politics. As chair of the AUC, I would serve as a spokesperson for the continent, representing the collective voice of Africa’s heads of state and governments. This will require strong coordination and a clear mandate to ensure that Africa’s perspectives and priorities are effectively communicated and negotiated within the G21.

Our candidacy brings a fresh perspective on global affairs rooted in diplomacy and mutual respect

The G21 is an unprecedented opportunity to influence global decision-making processes. The EU has been a member of for some time and its experience provides a valuable example of how a supranational entity can effectively navigate such a forum. The AU must use its seat to advocate policies and initiatives that benefit the continent.

The chair must work closely with member states to build consensus on G21 summit issues. This will involve regular consultations and strategic planning to ensure that Africa speaks with one voice, even when the perspectives of individual states may differ.

Moreover, we must recognise the diversity of views in the G21. Not all member countries share priorities or approaches on every issue, making it even more important for the AU to be well-prepared and to build alliances. By aligning with like-minded partners on specific topics, Africa can amplify its influence and achieve tangible results.

How can AfCFTA be enhanced?

AfCFTA is one of the most transformative opportunities for Africa. Its potential to propel the continent toward sustained economic growth cannot be overstated. However, realising this ideal will need patience, persistence and a strong commitment to teamwork among member states. My roles here would be facilitator and advocate. The AfCFTA secretariat relies on consistent and harmonious collaboration with the AUC to achieve substantial impact.

Currently, Africa's gross domestic product stands at about US$3 trillion, with five countries contributing 50%. This highlights the need for a framework that ensures inclusivity and equitable benefits for all states, regardless of economic size.

African entrepreneurs, who have shown remarkable dynamism across the continent, are well-placed to capitalise on the benefits of AfCFTA. For instance, countries such as Niger, despite facing international sanctions, have demonstrated impressive growth rates of up to 9%. This underscores the potential for all nations to thrive under AfCFTA given the right conditions.

Current implementation faces obstacles such as harmonisation of tariffs, resolving non-tariff barriers, improving cross-border infrastructure and applying payment systems that facilitate intra-African trade. Resolution requires coordinated efforts among the secretariat, member states and RECs.

Is there anything you wish to add to motivate voters, including heads of state, to support your candidacy?

Madagascar presents a pragmatic and open-minded candidate. Our nation has embraced openness and is free from conflicts or dramatic border disputes. We aim to foster unity and collaboration, not to impose our will on others. Our candidacy brings a fresh perspective on global affairs rooted in diplomacy and mutual respect.

To the younger generation, I stress the importance of confidence and trust in our ability to shape a brighter future for Africa. While scepticism persists about the AU and its operations in Addis Ababa, we must look beyond doubt and recognise our potential to overcome challenges.

Our journey is not without difficulties, but we have immense talent and resources. I firmly believe in the capability of our youth to drive innovation and transformation, making Africa as dynamic and impactful as regions such as Asia and South America.

It is the vision of a prosperous, peaceful and united Africa that drives me and my candidacy.

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