Why Zimbabwe Should Accede To The African Peer Review Mechanism


By Joburg Post


This article discusses some factors that may benefit
Zimbabwe if it pays more attention to Pan- African multilateral institutions
such as the African Peer Review Mechanism (APRM).

Zimbabwe’s domestic and foreign policy in the period
following the watershed July 2018 Presidential elections, will be imperative in
generating a positive perception for Zimbabwe, and ease the country out of the
turbulence of the previous regime’s legacy that had crippled the economy and
subsequently its people. Since the departure of Former President Robert Mugabe,
the world is optimistic about Zimbabwe’s economic recovery and possible
increased international relations participation. The landmark land
redistribution of the 2000s, the political violence, the attacks on the fundamental
political, democratic and human rights of ordinary citizens and the steady
erosion of the public service was used by the European Union as well as the USA
to impose sanctions on Zimbabwe. This had a catastrophic impact on the
Zimbabwean economy and the working and living conditions of its people.

Despite post-election violence which claimed the lives of 6 Zimbabweans,
all election observers including the AU Election Observer Mission (AUEOM) led
by Hailemariam Desalegn Boshe, former Prime Minister of Ethiopia, assisted by
Minata Samate Cessouma, the AU Commissioner for Political Affairs, declared the
election relatively peaceful and welladministered.

The endorsement by the AU and other international election
observers thus enabled Zimbabwe to reclaim its space as an important player in the
African and the international arena. The country can join the APRM as a
powerful turnaround from governance regression. In fact, the act of signing of
the African Charter on Democracy, Elections and Governance (ACDEG) by
Zimbabwean President Emmerson Mnangagwa on 21 March 2018 on the sidelines of
the recent African Union (AU) Extraordinary Summit held in Kigali, Rwanda, is a
sign of the new government’s commitment to upholding the values of good
governance. Consequently, Zimbabwe’s accession to the APRM will indeed serve as
a paradigm shift from prior isolation to reintegration with the global
community vis-a-via the quest for good governance on the African Continent. From
an optimistic and enthusiastic young African’s vantage point, Zimbabwe’s
agreement to accede to the objectives of the APRM will be a major step in its
evolution into reintegration and globalised social development. It will also
set Zimbabwe on the right path towards sound governance and regulation, a
prerequisite for rapid socioeconomic development.

Prerequisites for Social and Economic Development Statistics
from the AU Peace and Security Council and research institutions such as the
African Centre for the Constructive Resolution and Disputes, the Centre for
Systemic Peace, the Uppsala Conflict Data Project and the Institute of Security
Studies all allude to the 1980s as Africa’s lost decade. However, the Mo Ibrahim
Governance Index on good governance supports Africa’s positive outlook by
explaining that in the past 10 years (2007-2017), 40 African countries have
improved in overall governance. Without a doubt, the positive trend is fuelled
by accelerated progress in inclusive participation with free and fair elections
as a major indicator, the transparent exercise of democracy and the valuing of
strong democratic institutions and structures.

It is widely accepted that peace and security form a vital
foundation for good governance which can be a platform for economic growth and development.
In addition, developing countries in Africa and the world at large have clearly
illustrated that good governance is critically important for transformational
and sustainable economic development. The APRM as an institution has promoted
good governance on the continent for 15 years and has demonstrated the exponential
benefits that come with acceding to the APRM. Member States use the country
review reports from the peer reviews to leverage further bi- and multi-lateral
agreements and assess their own progress in all areas of governance.

President Adama Barrow of the Gambia, in acceding to the
APRM mandate, provided a view of Gambia’s governance following the forced removal
of the previous leader, Yahya Jammeh. In so doing the government of President
Barrow is poised to build from a clean slate and a position of knowledge of
their strengths and challenges.

The number of African countries voluntarily joining the APRM
has exponentially increased. In 2017, President Hage Geingob of Namibia acceded
to APRM. Botswana, Africa’s shining example and beacon of hope in good
governance has indicated its imminent accession to the APRM. These are
Zimbabwe’s neighbours who have identified the APRM as a process that can add
value to their quest for improved governance.

The increase in African sovereign leaders identifying the
peer review process as a governmental priority is indicative of governments’
and leaders’ political will to focus on the improvement of their people’s
lives, and transparency, which richly affects confidence and investment. Good governance
for Zimbabwe will usher in rapid economic development as it has done for most
of its peers. If the APRM’s recommendations are adequately implemented in
Zimbabwe it will most likely join countries like Ghana, Ethiopia, Djibouti,
Senegal and Tanzania as Africa’s fast-growing economies.

The current government led by President Mnangagwa has
already launched the, “Zimbabwe is open for business” campaign and this mantra should
not be relegated to lip-service. Harare should be more active in multilateral
governance platforms such as the APRM to effectively transform rhetoric into
practical steps that will boost investors’ confidence and international
communities’ trust in the country’s intentions to become a more inclusive
society.

About the APRM

The Africa Peer Review Mechanism is a Specialised Agency of
the African Union (AU), and was initiated in 2002 and established in 2003 by
the AU in the framework of the implementation of the New Partnership for
Africa’s Development (NEPAD). It is widely heralded as the jewel in Africa’s
crown for its pioneering initiative of being the only governance
self-assessment and peer review system in the world.

The Mechanism is founded on 4 thematic areas, namely:
Democracy and Political Governance; Economic Governance and Management; Corporate
Governance; and Sustainable Socio-economic Development. Reviews conducted by
the APRM vary depending on the circumstances of the country to be reviewed.
They are as follows:

• Base Review – carried out immediately after a country becomes
a member of the APRM;

• Periodic Review every four years;

• Requested Review – requested by the member country itself
outside the framework of mandated reviews;

• A Review commissioned by the APR Forum (highest
decision-making body of the APRM) when there are early signs of pending
political and economic unrest.

The APR Forum of Heads of State and Government adopted the 2016-2020
Strategic Plan and the APRM Statute at the 25th Summit of the APR Forum held in
Nairobi, Kenya. This policy framework currently guides the operational
trajectory of the mechanism. In addition, in 2017, the 28th AU Assembly of
Heads of States and Government further extended the APRM’s mandate to include
tracking of the implementation and overseeing the continent’s key governance initiatives.
Moreover, the AU Assembly extended the mandate of the APRM to include
monitoring of the implementation of the African Union (AU) Agenda 2063 and United
Nations Sustainable Development Goals (SDGs), Agenda 2030. The APRM is a tool
for sharing experiences, reinforcing best practices, identifying deficiencies,
and assessing capacitybuilding needs to foster policies, standards and
practices that lead to political stability, high economic growth, sustainable
development and accelerated sub-regional and continental economic integration.

APRM Member States participate in the self-assessment of all
branches of government – executive, legislative and judicial – as well as the
private sector, civil society and the media. The APRM Review Process gives
member states a space for national dialogue on governance and socio-economic indicators
and an opportunity to build consensus on the way forward.

Participation in the APRM remains voluntary; an interested
country must volunteer to be reviewed by acceding to the APRM Mandate and
signing a Memorandum of Understanding with the Continental Secretariat based in
Midrand, South Africa. The preamble of the APRM Statute highlights this “voluntary
accession”, as a founding principal which makes the APRM unique.

The Benefits of Joining the APRM The important benefit of
joining the APRM is the Country Self-Assessment Process. A Country
Self-Assessment Report is drafted by a board church of stakeholders such as
trade unions, civil society, political parties, youth and women represented in
the APRM National Governing Council (NGC).

The NGC is the national statutory arm of the APRM which
leads and supports domestic interests of all citizens. Its mandate is to
project the voice of the people. In addition, the consultative nature required
in drafting the selfassessment report means that citizens are afforded the
opportunity to paint a true picture of the country. This then becomes a mirror
for ordinary people to reflect, comment and add value to national governance.

Those who form part of the APRM have procedural and
reflective governance self-assessment exercises that are outlined below: 1.
Self-Reflection When an AU Member State joins the APRM, it is expected to independently
complete the APR Self-Assessment Questionnaire which gathers inputs from all
stakeholders. A draft paper outlining the nation’s issues and a National
Programme of Action (NPoA) with clear steps and guidelines on how it plans to
conform to APRM’s codes and standards emanating from international legal
instruments. The Country Review Team is then set up to write a report outlining
issues to be focused on during the review mission, which usually lasts for
approximately three weeks. Self-reflection is of utmost importance to any
nation but produces even richer results when paired with the aims of the APRM. Post-2018,
Zimbabwe will have to have an honest view and reflection of the past, and then
plot a route towards a prosperous future. The APRM process can potentially
expedite this purpose.

A key benefit of the APRM is that it allows participating
countries to not only take account of their own policies and practices, and
monitor progress towards improvements, but also to learn from other African
countries that have successfully implemented policies that have driven their
growth.

2. Inclusive Participation For the APRM to be effective, it
requires the participation of all stakeholders in the country, including government,
political parties, parliament, NGOs, private sector, academia, women’s groups, youth
groups, trade unions and the community at large. This is because the APRM’s
philosophy is grounded in inclusive participation. For Zimbabwe’s new
government, national reconciliation must be a priority for ensuring social
cohesion. Again, the APRM can serve as a vehicle to usher in dialogue on
difficult issues. For example, the Liberia review mission gave opportunities to
communities affected by civil war to talk about their experiences and most
importantly to communicate with the government on their wishes.

3. Peer- Learning Peer reviewed countries usually take
lessons from the APRM Report and develop NPOAS which become part of their
National Development Plans. Zimbabwe’s new leadership will be focused on
mapping out a new path for the country. In this case, APRM can be a valued
addition to this process. Zimbabweans are spread all over the world in
positions of power and influence. If Zimbabwe were able to harness the power of
their human capital in the diaspora, they could expand their potential output
including attracting foreign investments. Countries like Ghana, Nigeria,
Uganda, Kenya and South Africa have a large diaspora community; their review reports
can shed light into how Harare can better manage her relations with citizens
abroad. The challenge for Zimbabwe is the efficient and profitable use of its resources
and businesses to uplift generations who have been locked into poverty.
Economic growth and development is essential for the country to successfully
get its population out of poverty. APRM’s Corporate Governance standards and codes
can be harnessed with increased Foreign Direct Investments (FDI) on the continent.
Zimbabwe can be rebuilt, and her industries and businesses will thrive as the
country is home to vast mineral resources with untapped platinum and gold
reserves. In fact, Zimbabwe according to the latest audit has 92 recorded
State-Owned Enterprises (SOEs) and 70% of them are technically insolvent.

4. Peer Review The Peer Review takes place at the level of
the APR Forum, using the APR panel’s report on the team’s findings as a basis.
The APR Forum made up of APRM Heads of States meets annually to discuss
governance issues in APRM reviewed countries. The last APR Forum witnessed
President Museveni of Uganda accounting for the governance developments in his country.
This means that APRM’s participating heads of states and Governments not only
account to their citizens, they also receive guidance from fellow Heads of
States and governments in the spirit of Pan- Africanism.

5. Early Warning Conflict Prevention APRM Country Review
Reports have previously served as early warning conflict prevention tools for
reviewed countries. The APRM is currently working on a joint project with the African
Governance Architecture (AGA) and African Peace and Security Architecture
(APSA) with the aim of Silencing the Guns by 2020 (based on the Agenda 2063
roadmap). Countries that have undergone APRM review processes can be assisted
in implementing their NPoAs to quell the underlying causes of looming crises. Zimbabwe
is not immune to violent conflict given the levels of polarisation which have
developed from electoral disputes and ethnic tensions. The early warning system
can assist Zimbabwe to identify possible future conflict areas and with the
assistance of the APRM take steps to prevent such conflicts from arising.

6. African Union Agenda 2063, United Nations Agenda 2030
(SDGs) (APRM Expanded Mandate)

The Proposed transformation of the AU led by President of
Rwanda and current AU Chairperson, Paul Kagame, is outlined in the AU January 2017
report entitled, “The Imperative to Strengthen our Union: Report on the
Proposed Recommendations for the Institutional Reform of the African Union”
(commonly known as the “Kagame Report”). In an AU Assembly Decision
/AU/Dec.631(XXVIII) on the Revitalisation of the APRM during the 28th Ordinary
Session of the Assembly of the Union, held on 30 - 31 January 2017, it was recommended
that the APRM be strengthened to monitor and evaluate the implementation of AU
Agenda 2063 and UN SDGs 2030 as well as track and monitor the implementation of
key governance areas on the continent.

Conclusion

Since the launch of the APRM in 2003, many positive
developments have emerged from this African good governance institution. Moving
from 6 founding member States in 2003 to 37 in September 2018 on a voluntary
basis demonstrates the willingness of African Heads of States and Governments
to improve their governance. As the Mechanism celebrates its 15th anniversary
in 2018 with a goal of universal accession of all AU Member States, Zimbabwe has
an ideal opportunity to realign its governance standards with global accepted
governance standards by joining the APRM. Many States have come from even worse
conditions only to turn their societies around by facing their sometimes very
painful realities in order to start with a solid and stable foundation based on
truth. From this base, infrastructure, economic and social development is
easier because of the constant collaboration and objectivity of important
institutions such as the APRM.

The majority of APRM founding members such as Nigeria, South
Africa, Kenya, Uganda and Algeria have started presenting themselves for second
generation reviews. Kenya and Uganda are pioneers, having undertaken second
generation reviews. Egypt, Lesotho, Mozambique and Cote d’Ivoire have also
indicated their willingness to undergo reviews, a key indication of the trust
that member States have in the mechanism. The timing seems perfect for Zimbabwe
to join the APRM family. ■

By

Lennon Monyae

This article has previously appeared on The Thinker Journal,
its has been republished with permission


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