North Africa’s divisions undermine its role in the African Union
Divisions are weakening North Africa’s representation and effectiveness in African Union organs, particularly the Peace and Security Council.
The 46th Ordinary Session of the AU Executive Council elected Cameroon, Eswatini, Ethiopia and Nigeria as its new PSC members for three years ending in 2028. The election of a North African member state was, however, postponed because none of the three contesting countries – Libya, Morocco and Algeria – secured the required two-thirds majority during voting.
Traditionally, member states in a region consult internally to agree on PSC candidates. However, the lack of consensus among North African countries delayed the selection. Rather, the region’s representation was filled at the executive council’s 24th extraordinary session in a vote that favoured Algeria.
Against the backdrop of calls by the region for an additional PSC seat, the delay has led to questions about how the lack of intraregional consensus and collaboration in North Africa is damaging the efficacy and functionality of AU organs in which their involvement is needed.
North Africa divisions
Since Morocco’s re-entry into the AU in 2017, interstate tensions among North African countries have resurfaced and become more apparent. Longstanding issues between Algeria and Morocco over the status of the Sahrawi Republic have left the region struggling to demonstrate a united front and position in managing its peace, security, and development challenges. This, in turn, has affected the AU, where the region’s representation has been imperative.
Libya, Morocco and Algeria failed to secure a two-thirds majority during voting
Apart from the recent PSC vote delay, this was the case most recently with Mauritania’s AU chairship for the 2024/25 term. Algeria and Morocco were interested in the position, but a lack of consensus and the inability of either country to yield ground to the other saw Mauritania become a last-minute compromise to maintain the region’s chairship.
Similarly, North Africa’s position on the AU bureau was vacant throughout 2023 due to internal disagreements until close to the February 2024 summit, when Mauritania stepped in. Other members of the bureau had to fill the gap.
PSC selection procedure
As per the PSC Protocol, North Africa is to be represented by two member states. While regional consensus on a candidate usually facilitates and eases selection, this does not prohibit multiple interests from countries in any region from PSC membership. It is, however, the first time in the Council’s history that such a situation has resulted in no candidate for a region coming onto the PSC.
It is the first time in PSC history that a region emerged with no candidate in an election
Lack of consensus may not be entirely negative – some experts argue that it facilitates intraregional competition based on merit and shows the readiness of states to serve continentally. However, the North African situation does not necessarily justify the reasons for fragmentation and how it can be salvaged, particularly in light of the region’s push for a third seat.
Impact on the region
Proportional regional representation was first raised by Algeria during the PSC retreat on working methods in May 2021. Since then, several North African countries have reiterated the region’s interest in a third seat. Despite disagreements, this is one aspect on which all countries have concurred. In response to the region’s push, the 37th AU summit created a taskforce to further investigate the issue and make concrete recommendations.
While the claim based solely on equal representation has merit, questions are emerging about its utility given the lack of regional agreement in even crucial matters such as filling the PSC seat. Some experts hold that a desire for a third seat is founded exclusively on PSC Protocol principles and the spirit of equal representation enshrined in the AU Constitutive Act.
They maintain that equal representation in the PSC should not be premised on regional consensus nor its absence. Others believe that an additional seat could break the deadlocks caused by the jostling for representation witnessed this year with Algeria, Libya and Morocco.
While it is clear that AU member states demonstrate renewed interest in securing PSC membership, leading to increased competition among regional states, this does not undermine the role of state capacity to contribute to fulfilling Council responsibilities.
Persistent regional fragmentation may erode institutional and regional credibility
The debate around North Africa’s PSC membership should, therefore, focus on the ability of regional representatives to carry out the mandate and responsibilities and work within the PSC Protocol.
Way forward
Electoral competition can be healthy for the AU’s internal representational processes, but persistent regional fragmentation, as in North Africa, may erode institutional and regional credibility. The region ought to balance its call for equitable representation with the imperative of internal cooperation and cohesion, both to maintain its standing in AU structures and to shape peace and security discourse.
The immediate outcome is that some newly elected PSC members have been inducted while others have not. Thus, Algeria, which was later elected, missed the PSC mandate, operations and working methods training covered during Council induction in Arusha from 22 to 28 March 2025.
This could be rectified by providing the country with targeted training and technical assistance. Extensive consultations are needed to address emerging regional rifts and their implications for the structure and effectiveness of AU organs in which the region plays a role.
This will go a long way towards enhancing the effectiveness of North Africa’s representation in continental matters.
