Summit standouts and shortfalls
The 38th African Union Summit addressed key challenges but struggled with recurring low senior leadership attendance.
In February 2025, African leaders convened in Addis Ababa, Ethiopia, for the 38th Ordinary Session of the AU Assembly of Heads of State and Government. The gathering brought together representatives of all 55 AU member states to search for solutions to the continent's critical challenges. It took place against the backdrop of a noticeable deterioration in the continental peace and security landscape, a wave of democratic backsliding and a global context increasingly shaped by multipolarisation.
Several urgent dynamics emerged, including the election of new senior leadership for the AU Commission (AUC) and expectations for renewed continental response to the crises in Sudan and the eastern Democratic Republic of Congo. Numerous meetings of heads of state and members of the executive and permanent representatives committee produced 38 draft decisions in six domains. But what were the main takeaways?
Perennial non-attendance
As shown in the table below, 30 heads of state, three vice-presidents and four prime ministers attended the summit, a marginal increase of three heads of state over attendance in 2024. Despite this, overall high-level attendance declined slightly, from 39 in 2024 to 37 in 2025, due to fewer vice-presidents and prime ministers present.
High-level attendance declined slightly, from 39 in 2024 to 37 in 2025
The concurrent rise at heads of state level suggests a higher level of preoccupation with continental files. However, the absence of an almost equal number of heads of state raises crucial questions about the strength of member state commitment to Africa’s search for solutions.
While the presence of more heads of state at the summit is positive, it still falls short of the level of commitment required to address Africa’s pressing governance, security and development issues.
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High-level attendance at 37th and 38th AU summits
Source: Peace and Security Council (PSC) Report compilation |
Were the right leaders chosen?
The summit coincided with leadership transitions at the AU. Angola took over from Mauritania as chair of the AU Assembly in line with article 6(4) of the AU Constitutive Act. Alongside Angola, Burundi, Ghana and Tanzania were also elected to complete the AU Assembly bureau’s membership. Unlike in 2023 and 2024, regional struggles did not influence the composition of the bureau. Beyond ensuring procedural continuity, this stability helps preserve AU institutional memory, strengthening governance and decision-making at the highest level.
Mahamoud Ali Youssouf emerged the new AUC chair after a highly competitive contest against Raila Odinga and Richard Randriamandrato. The election, which extended to seven rounds of voting, underscored a dynamic contest marked by shifting alliances that ultimately favoured Djibouti’s candidate. Following the elimination of Randriamandrato after the third round, Youssouf's vote count increased, while Odinga's remained unchanged. This pattern suggested that a significant number of Randriamandrato’s supporters shifted their backing to Youssouf.
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Outcomes of the 2025 AUC leadership elections
Source: PSC Report compilation |
PSC Report sources explained that Youssouf’s ability to articulate himself and to demonstrate a profound understanding of AU challenges during the campaign and debate were deciding factors. His linguistic profile and age also worked in his favour. Being a younger candidate, many member states view him as having the capacity to withstand the enormous pressure of the AUC chair role. By contrast, Odinga failed to advance from his vote base, oscillating between 20 and 22 votes from rounds one to six despite his extensive political experience, which was viewed by many as an advantage. The idea that Youssouf won for his ability to deliver as expected raises questions about the long-held perception that member states do not want a capable AUC leadership.
Mahamoud Ali Youssouf’s articulation and deep understanding of AU challenges worked in his favour
The deputy chairperson election followed a similar trend, leading to the victory of Selma Malika Haddadi from Algeria. A PSC Report source, however, opined that the presence of the Algerian president in Addis Ababa brought both weight and urgency to the country’s bid. He engaged in bilateral lobbying with peers that proved effective.
For many, the poor quality of commissioner candidates was concerning, as only 11 of the initial 35 applicants made it through to the executive council for consideration. Consequently, two portfolios couldn’t be filled. The two positions remain open for elections during the mid-year coordination summit. This presents a second opportunity for the under-represented Central Africa region to increase its profile. However, whether the crop of leaders chosen is the right fit for the posts is a question that can be answered only if they are able to address the numerous challenges in their portfolios.
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Outcome of commissioner-level elections
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Business as usual for crisis situations
In the search for solutions to the crises in the Democratic Republic of Congo and Sudan, separate meetings were held. However, beyond reiterating the recommendations of previous PSC meetings on the subjects, nothing groundbreaking was noted. Beyond the additional communique, what is expected at the moment is concrete actions that could contribute significantly to transforming the two situations in the short- to mid-term.
The summit could be known for elections and declarations rather than as a turning point for Africa
On the agenda was the establishment of an oversight committee comprising Kenya and the five members of the AU Assembly bureau on AU reform. So, too, was Africa’s positioning in the shifting global order and the need to correct imbalances in global finances. To that end, the AU Assembly established the African Credit Rating Agency, which is tasked with rating African economies based on local realities and countering the ratings of Moody’s, Fitch and S&P Global, narrative that portrays the continent as risky for engagement.
Making the summit count
The 38th AU Summit will be remembered not only for its high-profile elections but for the urgent policy challenges it sought to address. Unlike the previous year’s summit, which was marked more by speeches and low heads-of-state attendance, this year’s gathering took place amid escalating African conflicts and was characterised by intense leadership contests. While new leadership has been appointed and several key decisions made, the real test is translating these outcomes into tangible action. The incoming AUC leadership must reform AU bureaucracy while navigating a deteriorating continental security context and a rapidly shifting global order.
In addition, the fractured electoral process has left lingering tensions between francophone and anglophone blocs, particularly given the former's perceived dominance in the AUC leadership. Addressing these divisions and delivering on Africa’s security, governance and economic priorities will require strategic leadership and decisive action. If the new leadership fails to advance decisions made and satisfy its remit, this summit risks being remembered as another elections and declarations cycle rather than as a turning point for Africa.
