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Governance Cluster of the RCM

October 2012

2012 Annual Progress Report

2012 Annual Progress Report

Governance Cluster of the RCM

October 2012

13th Session of the Regional Coordination Mechanism of UN

Agencies and Organizations Working in Africa in Support of the

African Union and its NEPAD Programme (RCM-Africa)

Addis Ababa, Ethiopia

14-15 November 2012

2012 Annual Progress ReportGovernance Cluster of the RCM

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Table of Contents

I. Introduction ............................................................................................... 1

II. Key Activities and Results Within The Cluster ............................................ 2

III. Key Activities and Results in Mainstreaming Cross-Cutting Issues ........... 23

IV. Key Projects, Actions Taken, and Results of Implementation of Capacity Building Work Programme for AU & RECs ................................................. 26

V. Challenges, Lessons Learned, and Way Forward ...................................... 28


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I. Introduction

The Governance Cluster is convened and co-chaired by United Nations Development Programme (UNDP) and the Department of Political Af-fairs of the African Union Commission (DPA/AUC). Its current member-ship includes: DPA/AUC, the United Nations Development Programme (UNDP), the NEPAD Planning and Coordinating Agency (NEPAD Agency), the African Peer Review Mechanism (APRM), the Pan African Parlia-ment (PAP), the African Development Bank (AfDB), the United Nations Economic Commission for Africa (UNECA), International Institute for Democracy and Electoral Assistance (IDEA), the African Commission on Human and Peoples’ Rights (ACHPR), the African Court on Human and Peoples’ Rights (AfCHPR), the International Labor Organization (ILO), the United Nations Office for the Coordination of Humanitarian Affairs (OCHA), United Nations Office of the Special Advisor for Africa (OSAA), the Regional Economic Communities (RECs), the United Nations Depart-ment for Economic and Social Affairs (UNDESA), the United Nations High Committee for Refugees (UNHCR), the United Nations Children’s Fund (UNICEF), the United Nations Office to the African Union (UNOAU), the United Nations Office of the High Commissioner for Human Rights (UNOHCHR), The United Nations Entity for Gender Equality and the Empowerment of Women (UN WOMEN), African Governance Institute (AGI), African Institute for Economic Development and Planning (IDEP) and the United Nations University of Peace (UPEACE).

The primary mandate of the Governance Cluster, as conceived by its members, is to coordinate support of cluster members to governance programmes of the AUC, the NEPAD Planning and Coordinating Agency (NEPAD Agency), and the RECs with a view to ensure coherence, synergy and complimentarity. In achieving this mandate, the cluster undertakes specific tasks including:

i. ensuring intra-cluster communication/information flow;

ii. experience sharing/lessons learning for promotion of best practices;

13th Session of the Regional Coordination Mechanism of UN Agencies and Organizations Working in Africa in Support of the African Union and its NEPAD Programme (RCM-Africa)

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iii. promoting joint planning, programming implementation, mon-itoring and evaluation;

iv. encouraging joint resource mobilization; and

v. facilitating interaction with other clusters (inter-cluster com-munication).

II. Key Activities and Results Within The Cluster

1. Accountability, structural and systematic aspects: Meetings held, dates, objectives, outcomes and follow up actions

First Meeting of the Governance Cluster, 29 March 2012, Addis Aba-ba, Ethiopia

The United Nations Development Programme (UNDP) and the African Union Commission (AUC) organized the first meeting of the Governance Cluster of the Regional Coordination Mechanism (RCM) for 2012 at the United Nations Conference Centre (UNCC), in Addis Ababa, Ethiopia on 29th March 2012. This technical meeting considered a number of issues regarding how best to support the African Union Commission, the Re-gional Economic Communities (RECs), and other AU organs in the area of governance. The Proceedings Report is attached to this report for ease of reference.

The ‘Key Outputs’ of the meeting:

• To take stock of the major governance developments in Africa in 2012;

• To review the recommendations resulting from the 12th Ses-sion of the RCM-Africa;


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• To assess progress in the development of the new compre-hensive Ten-Year Capacity Building Programme of the African Union;

• To make concrete commitment of member’s support to the AU Shared Values Agenda and plan a resource mobilization strat-egy;

• To ensure that gender is mainstreamed within the work plan of the Governance Cluster for 2012;

• To deliberate on and plan for the upcoming Eighth African Gov-ernance Forum on the theme” Democracy, Elections, and the Management of Diversity in Africa”

The ‘Key Outcomes’ of the meeting:

• Key governance developments in Africa in 2012 shared and les-sons learnt;

• Update on the implementation of the decisions of the 12th RCM Session made and deliberated upon;

• Update on progress regarding new comprehensive Ten-Year Ca-pacity Building Programme of the AU shared;

• Plans and strategies for the effective implementation of the AU Shared Values Agenda shared and clear commitment on re-source mobilization agreed;

• Gender mainstreamed in the Business Plan of the Governance (2012-13);

• Information on AGF VIII shared with cluster members with a view to facilitate their effective participation.

Key issues from the First Meeting were:


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The meeting noted two major areas of progress on the implementation of AU Shared Values during the first quarter of 2012 are worth highlight-ing., 1) the ratification of the African Charter on Democracy, Elections and Governance. Adopted in 2007, this charter has been signed by 38 AU Member States. By January 2012, the required 15 ratifications were received by AU thus ensuring that the Charter came into force on 15 Feb-ruary 2012 2) the deepening culture of democratic, credible and trans-parent elections;.

The meeting agreed that the Governance Cluster has a responsibility to support the AU in realizing the objectives in its Shared Values Agenda. The support rendered by governance cluster members will take two main forms: (a) Technical assistance and advisory services (program-matic support; and (b) Institutional capacity building (operational sup-port).

During the meeting, members reviewed the recommendations resulting from the 12th Session of the RCM-Africa. After reviewing and deliber-ating on the key priorities of the AUC’s Department of Political Affairs, members adopted the 2012 Governance Cluster’s work plan. In so doing members of the cluster agreed that the strategic objective of the cluster is to provide a platform for joint planning, programming and resource mobilisation by cluster members with a view to developing a common strategy for closer coordination and cooperation in support of the gov-ernance agenda of the African Union (AU), NEPAD Planning and Coordi-nating Agency (NPCA) and the Regional Economic Communities (RECs). Members also agreed that the guiding principles for the Cluster’s annual work plan includes: Relevance, synergy and coherence with AU/NPCA and RECs priorities; Effective ownership and leadership by AUC; Com-plimentarity of efforts to avoid duplication; Constant consultations and dialogue among members; and the acknowledgement that knowledge management and communication strategies are key to Cluster activities.

The main priorities for the Governance Cluster for 2012 included the fol-lowing:

• Support to the monitoring and advocacy missions of the AU Ad-visory Board on Corruption;


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• Support to the effective implementation of the African Human Rights Strategy for Africa;

• Support to the implementation of the African Charter on the principles and values of Public Service and Administration;

• Support to the AU Shared Values Agenda;

• Support to Electoral Management Bodies(EMBs) and Electoral processes;

• Support to the effective implementation of the African Peer Re-view Mechanism (APRM).

2. Implementation of Joint activities

The key results achieved in 2012 under each thematic area are discussed under the Key Results section of this report organized through the clus-ter 4 sub- clusters.

Economic and Corporate Governance Sub-Cluster

• Interventions under this sub-cluster were more bilateral than cluster-based in both form and substance. For instance, sup-port provided to the Advisory Board on Corruption was under-taken more on bilateral arrangement between UN agencies and the AU Advisory Board on Corruption and not on multilateral basis premised on a cluster approach.

Human Rights Sub-Cluster

a) African Human Rights Strategy for Africa

• A dialogue between the Chairpersons of the UN treaty bodies and representatives of the treaty bodies of the African human rights system was organized in June 2012 in Addis Ababa, Ethi-opia.


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The objectives of the dialogue were to:

a. Identify mutual challenges, opportunities, priorities and sup-port needs of the UN treaty bodies and the African human rights treaty bodies, including the efficient ways of implement-ing their respective recommendations.

b. Establish a joint information sharing procedure;

c. Establish a joint methodology for systematic follow up to rec-ommendations formulated by both human rights systems.

The outcomes/results of the dialogue were:

• Synergies and cooperation between the UN and AU mecha-nisms are enhanced;

• Modalities for regular dialogue, exchange of information and experience and good practices agreed upon between the UN and AU mechanisms;

• Good practices on working with NHRIs and CSOs are discussed and recommendations are made for further improvement

• A road map is adopted at the end of the meeting for enhanced future cooperation between the United Nations human rights treaty bodies and the human rights mechanisms of the African system dealing with the examination of State parties reports and individual communications

The meeting highlighted the need to recognize the complementarity be-tween the UN human rights treaty body system and the African human rights mechanisms in the promotion and protection of human rights standards, especially with regard to implementation at the national level. The meeting agreed on a number of recommendations to enhance the collaboration between the UN treaty bodies and the African mechanisms in respect of exchange of information and awareness-raising, consider-ation of States parties’ reports and individual communications, as well as the promotion of the implementation of treaties.


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• On 9-10 August 2012, a consultative meeting to Enhance Co-ordination amongst AU organs and institutions as part of the Implementation of the Human Rights Strategy for Africa was held in Lome, Togo. AUC, ACHPR, the AfCHPR, RECs, UNDP, OHCHR, CSOs and independent human rights experts were in attendance during this meeting.

The meeting proposed the following as a way forward to enhance coordi-nation among AU organs as part of the implementation of the Action Plan of the Human Rights Strategy for Africa:

• Noting that the HRSA has been adopted, participants affirmed that Plan of Action which has been developed, and urged the AUC to recognize the need to go beyond the minimum thresh-old indicators identified and further urged the operationalisa-tion of the PAIHR and the Award.

• It was recommended that a working paper be developed on the operationalisation of the African Governance Platform and the proposed thematic clusters. This paper would be presented and considered by the First Meeting of the Platform scheduled for October 2012 in Cote D’Ivoire.

• It was recommended that it would be important to disseminate information to all stakeholders on AGA, AGP, HRSA in order to deepen ownership. As such, it was recommended that AGP’s Rules of Procedure include a Rule on engaging and interacting with stakeholders.

• Members of the Department of the Political Affairs and the Af-rican Commission, in opreationalising the PAIHR, were encour-aged to conduct a learning exchange with the Human Rights Institute of Strasburg as well as the key African institutions which provide human rights expertise, research and capacity building.

• The participants urged the ACERWC to speed up the process of formal collaboration with the ACHPR and the AfCHPR.


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Public Service and Administration Sub-Cluster

b) African Charter on the principles and values of Public Service and Administration

• The African Ministerial Workshop under the theme of “Lead-ership Capacity-Development for Improved Delivery of Public Services in Africa using ICT” was held in Addis Ababa on 23-25 July. The workshop was co-organized by the United Nations De-partment of Economic and Social Affairs (UNDESA), the Confer-ence of African Ministers of Public Service, African Union, Unit-ed Nations Development Programme (UNDP) and the United Nations Economic Commission for Africa (UNECA).

The overall objective of the workshop was to contribute to the development of leadership capacity of African governments to improve effectiveness, transparency, efficiency, openness and accessibility in the delivery of public services using the oppor-tunities currently offered by ICTs.

• On 11-12 October 2012, a workshop on “Harnessing Diversity in the African Public Service: Exploring Policies and Strate-gies to Enhance Inclusion and Performance” was held in Ga-borone, Botswana. The workshop was organized jointly by the United Nations Development Programme (UNDP) and the Divi-sion of Public Administration and Development Management (DPADM) of the United Nations Department of Economic and Social Affairs (UNDESA), the United Nations Economic Com-mission for Africa (ECA) and the Africa Public Sector Human Resource Managers’ Network (APS-HRMnet). The overall ob-jective of the workshop was to contribute to the development of capacities to enhance performance of the public service in African countries by discussing the challenges, opportunities and benefits related to managing diversity in the Public Service of African countries.


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Democracy and Governance Sub-Cluster

c) AU Shared Values Agenda

• the Executive Council of the African Union (AU) declared 2012 ‘The Year of Shared Values’ at the conclusion of its 18th ordi-nary session in Addis Ababa (Ethiopia),. The decision of the Ex-ecutive Council is part of the political will of the African Union leadership to continue the debate and the reflection on how ‘Shared Values’ in Africa can act as catalysts for accelerating continental integration and as provisors of a solid foundation in the construction of developmental states and accountable democracies, for the well being of their citizens, in an environ-ment of extreme complexity.

Under this theme, the year offers the African Union and other stakeholders of developmental governance in Africa a unique opportunity to develop and strengthen understanding of these common and shared values, and to pursue their promotion, their extension and their effective implementation for the ben-efit of African peoples.

This year also presented a great opportunity for a proactive self-reflection on how to shape a common future for Africa and mobilize African peoples towards realizing the shared vision of continental integration.

• In February 2012, the African Charter on Democracy, Elections and Governance which was adopted by African Heads of State and Government in January 2007 at the AU Summit in Addis Ababa, Ethiopia, entered into force on 15 February 2012. This was thirty (30) days after the deposit of the fifteenth instru-ment of ratification on 16 January 2012 by the Republic of Cam-eroon in conformity with Article 48 of the Charter.

The Charter is premised on universal values of democracy, re-spect for human rights, the rule of law, supremacy of the Consti-tution and constitutional order in the political arrangements of States. The Charter emphasizes the importance of pre-election


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observation, electoral observation missions and special adviso-ry missions. It also emphasizes the need to create a conducive environment for independent and impartial national monitor-ing or observation mechanisms.

The Charter addresses among other things, the issues around unconstitutional changes of government which are the major cause of violent conflict in Africa by setting out measures to strengthen electoral institutions and processes to ensure dem-ocratic, free and fair elections and by rejecting and condemning unconstitutional changes of government.

• In June 2012, the African Governance Platform was officially launched in Lusaka, Republic of Zambia by the Department of Political Affairs of the African Union Commission (AUC). The African Governance Platform is the coordinating arm of the African Governance Architecture (AGA). It was launched in re-sponse to the decision of the 16th AU Summit on the “Shared Values in Africa” theme. The role of the Platform is to facilitate information flow, exchanges, dialogue, synergies and joint ac-tion between the various African governance actors. The Plat-form will function as an interactive and non-decision-making mechanism. Given that the African Governance Architecture is an evolving process, there is a need to take cognizance of the es-tablished instruments and institutions with a formal mandate on democracy, governance, elections and human rights norms. Also important to recognize is enhanced coordination, consoli-dation and implementation of the compliance with respect to the above norms.

• On 7-8 August 2012, a Consultative Meeting on the Action Plan of the African Governance Platform on the Strategy to Ratify the African Charter on Democracy, Election and Governance was held in Lomé, Togo. In attendance were representatives from the AUC, ACHPR and the AfCHPR, RECs, UNDP, CSOs and inde-pendent human rights experts.

The meeting had two main outcomes: the Action plan for the Af-rican Governance Platform and the thematic clusters. The nine


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thematic clusters are Democracy and Governance; Elections; human and Peoples’ Rights; Transitional Justice; Public service and Administration; Anti-corruption; Decentralization and Lo-cal Governance; and Humanitarian Issues and Free Movement.

The meeting participants recommended the following:

• The need to develop ToR for the platform and its thematic clusters

• The thematic clusters need to be reviewed and reduced from nine (9) to four (4).

• The nature of the African Union Governance Reports needs to be clarified.

• The documents need to be translated in French and all other AU official languages.

• The implementation of the Platform should proceed in earnest bearing in mind the need to ensure inclusiveness and participation of all stakeholders.

• In the framework of the Year of Shared Values, the African Union (AU) Peace and Security Council (PSC) and the Depart-ment of Political Affairs (DPA) of the AU Commission, held a consultation on ensuring greater synergy between the African Governance Architecture (AGA) and the African Peace and Se-curity Architecture (APSA) of the AU. ,. The Consultations were organized with the support of the Centre for the Study of Vio-lence and Reconciliation (CSVR) in Banjul, The Gambia, from 8 to 10 September 2012


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d) Support to Electoral Management Bodies

• The Department of Political Affairs of the African Union Com-mission (AUC) organized the 2nd Continental Electoral Man-agement Bodies (EMB) Meeting on 11 – 13 June 2012, in Lu-saka, Zambia. The EMB Meeting was the second meeting of all Chairpersons of Electoral Commissions from the 54 member states of the African Union and deliberated on issues of election management in the continent, and AUC’s programme of capac-ity building for EMBs in Africa.

The Democracy and Electoral Assistance Unit DEAU of the De-partment of Political Affairs of the African Union Commission held the 3 – day Intercontinental EMB Meeting on the theme: “Strengthening the Relationship between the African Union Commission and EMBs for Capacity Development”. This meet-ing brought together all EMBs in the continent for delibera-tions, sharing of experiences as well as gaining an insight into AUC programmes of electoral assistance. It also provided the EMBs the opportunity to contribute their own inputs in terms of actual needs. The meeting also aimed at establishing a formal structure for interactions and exchanges between the AUC and EMBs in the continent towards the process of ensuring com-pliance with the electoral norms in the Charter on Democracy, Elections and Governance.

The following recommendations emerged from the discus-sions:

• Expertise and guidelines for voter registration issues and the facilitation of exchange of best practices should be made available to and exchanged among EMBs. Centralized service for sharing of registration kits, software or servers for cleaning of voters registers could be considered.

• Electoral related violence is often connected more with perceptions than with realities in the electoral process. In order to avoid political intolerance political parties and


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political stakeholders should be involved in all stages of the electoral process to increase transparency. .

• Structural causes of electoral violence, including economic constraints, youth unemployment, poverty, high rates of il-literacy has to be taken into consideration and have to be addressed on national, regional and continental level.

• General recommendations directed to EMBs include 1) the need to enhance stakeholders engagement on electoral processes, 2) rules and regulations to ensure transparency of the process, 3) the need to ensure that conflict preven-tion, management or resolution stays within the respon-sibility of national EMBs, 4) the implementation of the regional instruments on democracy, elections and good governance should be actively promoted by EMBs and 5) EMBs should build up skills and extend cooperation to the youth as important stakeholders in electoral process.

• EMBs should develop risk analysis and management plans in order to be able to operate and actively engage in a high-ly politicized and polarized environment. They also needto engage in risk mitigation and security management. Orga-nizational performance management of EMB staff should be conducted in the spirit of excellence including evalua-tion of full time and part time electoral staff.Self evaluation would serve as a basis for a needs assessment for technical assistance and exchange and support programmes. Per-formance agreements should be based on strategic plans which are continuously evaluated.

• Recommendations specifically addressed to the African Union Commission include 1) support to provide guid-ance to EMBs to include the management of diversity in the electoral cycle, 2) reinforce gender equality, 3) the AU shall provide more information for EMBs in written form, or electronically via web pages or platforms.


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• Participants urged African governments and political lead-ership to ensure continued and sufficient commitment and support through national budgets. . Governments should further provide an environment which is condu-cive for free and fair elections and should be involved in the providing regulations concerning a code of conduct for national media.

• According the AU Elections, Calendar 31 Elections in African countries were planned to take place during the reporting pe-riod. To date 14 elections have taken place. Of these AU had its election observation mission in the following countries: Sen-egal, Guinea-Bissau, The Gambia, Algeria, Lesotho, Seychelles, Libya, Congo Brazzaville, Somalia, Angola and Togo.

e) The Eighth African Governance Forum (AGF-VIII)

The Government of the Republic of Botswana, the United Nations Devel-opment Programme’s Regional Bureau for Africa (UNDP/RBA), the Unit-ed Nations Economic Commission for Africa (UNECA) and the African Union (AU) jointly held the Eighth African Governance Forum (AGF-VIII) in Gaborone, Botswana on 16-18 October 2012. The theme of AGF-VIII was “Democracy, Elections and the Management of Diversity in Africa”. The forum brought together about 300 participants, including govern-ment officials, African leaders, policy makers, civil society, Regional Eco-nomic Communities, leading African and international think-tanks on governance and development partners. Participants to the Forum were drawn from 30 countries covering all the five sub-regions of the African continent (Central, East, North, Southern and West).

The Forum provided a platform for various stakeholders to deliberate on the current state of democracy in Africa in relation to elections and the management of diversity. It highlighted progress being made by Af-rican countries in nurturing and consolidating participatory democracy. The Forum show-cased best practices in democracy, elections and man-agement of diversity in several African countries. It outlined challenges with particular reference to gender imbalances and marginalization and disempowerment of the youth. The forum also advanced policy recom-mendations aimed at addressing key issues that are pertinent to consoli-


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dation of participatory democracy, credible elections and institutional-ization of constructive management of diversity in Africa.

The following policy recommendations were proffered at the AGF-VIII in Gaborone, Botswana.

i. African Governments

• Given the centrality of the Public Service in governance, Afri-can governments should enhance the capacities required in the public service to effectively manage diversity and inclusion in a progressive manner.

• Governments must develop mechanisms for monitoring and evaluating implementation of programs for managing diversity and inclusion in the public service.

• In order to ensure constructive management of diversity, Af-rican governments should adopt appropriate policies in five main domains:

• The promotion of political participation of diverse cultural groups

• Inculcation of a culture of tolerance for diverse religions and religious practices

• Encouragement of complimentary co-existence of custom-ary and statutory law with a view to achieve legal plural-ism

• Promotion of the existence and legal acceptance of mul-tiple languages

• Conscious effort towards redressing socio-economic ex-clusion and structural inequalities

• Young people are urged to make good use of already existing constitutional and institutional frameworks to enhance their


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development by being informed and taking proactive actions in order to occupy their rightful place in society.

ii. The African Union and Regional Economic Communi-ties (RECs)

• The African Union and Regional Economic Communities must 1) harmonize the normative frameworks on gover-nance, 2) ensure that their Member States ratify, domesti-cate and effectively implement these agreed shared values on democracy, elections and diversity management.

iii. The International Community including the United Na-tions

• The International Community, including the United Na-tions system, must play a more proactive role in enhancing institutional capacity for Africa towards democracy pro-motion, electoral integrity and constructive management of diversity.

iv. African Civil Society

• CSOs should provide the necessary platforms aimed at fa-cilitating dialogue and information exchange among stake-holders on the issues of democracy, elections and diversity management.

• CSOs should design and implement lobby and advocacy programmes aimed at promoting inclusive democracy, electoral integrity and constructive management of diver-sity taking into account imperatives for gender equality and youth empowerment.

• Relevant think-tanks and research institutions should contribute to knowledge-creation, documentation of good practice and the provision of technical support in the ar-


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eas of democracy, elections and diversity management through research, analysis, documentation and compila-tion of databases.

v. Electoral Management Bodies (EMBs)

• The appointment of the EMB members must guarantee their independence and command public confidence and trust.

• Membership of the EMBs must reflect the diversities in the country (e.g. region, gender, age etc).

• EMBs must enjoy financial independence by being suffi-ciently funded and in a timely manner.

• Staff of the EMBs must be impartial, and uphold integrity and high levels of professionalism and ethical conduct.

• Security of tenure for EMB Commissioners must be en-sured in order to facilitate institutional memory and con-tinuity.

• EMBs should be empowered to facilitate necessary legal reform aimed at facilitating broad inclusion of diverse social groups to participate meaningfully in the electoral process such as the persons with disability and other mar-ginalized groups.

• There should be a mechanism to bring on board all stake-holders (especially youth and women’s organisations) at all stages of the electoral processes through continuous sustained multi- stake holder dialogue, voter information, civic and voter education.


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Cross-cutting issues: Gender Equality and Youth Empowerment

Gender Equality

i. Reform of electoral systems

• Advocate for the adoption of electoral systems (e.g. pro-portional representation) and/or reform of existing sys-tems with a view to facilitate inclusiveness and equal par-ticipation of women and men across their diversities.

• Promote the mainstreaming of gender equality standards and principles in national electoral management bodies and all electoral processes before, during and after the elections.

ii. The role of political parties

• Engage with political parties to promote internal demo-cratic, inclusive, and gender sensitive policies and prac-tices, including through their party election manifestos, legislative agendas, and agreed monitoring mechanisms.

• Support efforts by women politicians to develop and im-plement a common women’s agenda, including a legisla-tive agenda, across party lines.

iii. Addressing violence against women in politics

• Propose and promote mechanisms for prevention, moni-toring and reporting of political violence, and protection of women and girls from gender-based political violence throughout the electoral cycle.

• Promote stronger mandates for election management bodies to address this form of violence, better equipped and gender sensitive security sector actors, as well as a more comprehensive legal and policy environment to re-spond to this challenge.


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iii. Support women for effective participation in politics, including elections

• Implement programmes intended to support women’s engagement in public decision-making, increase women’s leverage as voters, including through tools such as wom-en’s manifestos or nationally agreed agendas, and support policy watch groups that build women’s capacity to track the performance of politicians in order to hold them to ac-count for meeting campaign promises.

• Promote and support women to undertake electoral law analysis and to build public awareness of and commit-ment to defend women’s rights in the electoral process; and work with EMBs, government and political parties to counter sexual and gender-based violence.

• Build partnerships with the media to profile positive imag-es of women’s leaders, and their achievements in order to counter negative stereotypes of women’s leadership and positive role modeling.

• Expedite accession to the African Peer Review Mecha-nism (APRM) as well as the ratification and implementa-tion of the African Charter on Democracy, Elections and Governance particularly those aspects of APRM National Plans of Action (NPoAs) and the Charter relating to gender equality and women’s empowerment.

• Increase the resource base for and access by women in po-litical spheres.

Youth Empowerment

i. Constitutional and institutional frameworks

• Expedite ratification, domestication and effective imple-mentation of the African Youth Charter (AYC) and the Plan of Action (PoA) as well as the adoption and implementa-


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tion of complementary sub-regional and national youth empowerment policies.

• AU Member States should support the establishment and operations of youth formations, structures and networks at national, sub-regional and continental levels with a view to promote youth participation in governance, devel-opment and peace-building.

• Expedite accession to the African Peer Review Mechanism (APRM) as well as the ratification and implementation of the African Charter on Democracy, Elections and Gover-nance particularly those aspects of APRM National Plans of Action (NPoAs) and the Charter relating to youth em-powerment and development.

• The African Union needs to clarify and popularize the sta-tus, roles and functions of the Pan-African Youth Union based in Khartoum, Sudan so that national and regional youth formations play their rightful roles in its efforts to-wards the implementation of the AYC and the AYC Plan of Action.

ii. Youth and socio-economic development

• Prioritize education as the primary gateway to gainful youth employment and empowerment and equality must be ensured in both education and employment between youth men and women as well as between rural and urban youth.

• Build youth leadership and other competencies that assist young people become valuable citizens and community members.

• Facilitate youth engagement in Agri-business and enhance their skills in order to ensure maximum productivity in this area.


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• Provide subsidies and tax cuts to young farmers to encour-age their involvement in farming so as to create secure livelihoods and promote food security.

• Capacity of young women must be enhanced for them to engage effectively in the socio-economic and political spheres of society.

iii. Youthandelection-relatedconflicts

• Embark on political party system and electoral system reforms to ensure increased participation of the youth in democratic processes.

• Political parties should adopt norms and standards for conducting internal and national elections which promote youth empowerment and explicitly prohibit political ma-nipulation of diversity, especially the youth.

• Ensure that there are stiff sanctions for political parties and candidates who manipulate vulnerable youth to en-gage in electoral violence particularly when this inflames hostilities among diverse communities for narrow politi-cal gains.

The outcomes of AGF-VIII can best be divided into immediate, mid-term andlong-term. The mid-term and long-term outcomes are yet to mani-fest as time goes by. For now we are able to report on the immediate outcomes. Three of these are evident. Firstly, the Forum generated a rich policy-relevant and development-oriented debate on the current state of governance in Africa with special focus on elections and diversity man-agement. Secondly, by mainstreaming cross-cutting issues namely gen-der equality and youth empowerment, AGF-VIII contributed to on-going efforts aimed at bringing marginalized social groups into the governance and development processes. Thirdly, through the various background papers and the website, AGF-VIII has contributed to the existing stock of knowledge on democracy, elections and diversity management in Africa. It is anticipated that this knowledge combined with the AGRIII will go a


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long way in helping African countries advance participatory and demo-cratic governance in the long run.

f) African Peer Review Mechanism(APRM)

The African Peer Review Mechanism (APRM) - a key component of NE-PAD - is undoubtedly the most visible achievement of NEPAD in promot-ing good governance in Africa. It is a mutually agreed instrument vol-untarily acceded by the Member States of the African Union (AU) as an African self-monitoring mechanism. Niger acceded to the APRM during the July 2012 Summit, bringing the total number of countries to 31 coun-tries.

In support of the APRM process, UNDP, ECA and AfDB remain strategic partners since 2004 when they were designated as such by the APRM Panel of Eminent Persons. During the year under review cluster mem-bers assisted the APRM Secretariat as follows:

• Support to the Country Review Mission (CRM) of Tanzania form 2-23 March 2012;

• Governance and Public Administration Division (GPAD) of the United Nations Economic Commission for Africa (UNECA) and the United Nations Development Program (UNDP) Regional Centre for Eastern and Southern Africa jointly organized a Workshop on “Harmonizing the Mauritius National Plan of Ac-tion (NPoA) with the existing development strategies and Me-dium Term Expenditure Framework (MTEF)” in Domaine Les Pailles, Mauritius from 23 to 24 April 2012;

• Support to the self assessment processes at the country level have been provided for Gabon on May 2012.

• Governance and Public Administration Division (GPAD) of the United Nations Economic Commission for Africa (UNECA) and the United Nations Development Program (UNDP) Regional Centre for Eastern and Southern Africa in close collaboration with the Tanzanian APRM authorities (NGC and National Focal Point) organized a Workshop on “Harmonizing the Tanzanian


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APRM National Plan of Action (NPoA) with the existing devel-opment strategies and Medium Term Expenditure Framework (MTEF)” in Dar es Salaam, Tanzania from 25 to 26 September 2012;

• Technical Support to the APRM Country Support Mission to Su-dan on 3 October 2012;

• As the APRM marks its 10th anniversary in 2013, it becomes imperative to pause and reflect on its achievements and chal-lenges with a view to improve its tools and processes and enhance its effectiveness over the next decade. In commemo-rating a decade of APRM existence, a series of events will be organized across the continent to celebrate APRM successes, reflect on its challenges and future prospects. The Governance Cluster is working closely with the committee established to design appropriate programs to mark the 10th Anniversary. The objective of the commemoration of the APRM 10th An-niversary is to critically review the Mechanism, its processes, its operations as well as its value addition through impact as-sessments in the APRM reviewed countries. with the view to bringing in new dimensions, remain relevant to emerging con-tinental governance issues and further enhance its credibility and sustainability. The commemoration is an opportunity for deeper reflection, at all levels, on the success and challenges in actualizing Africa’s governance agenda for the continent sus-tainable development plan.

III. Key Activities and Results in Mainstreaming Cross-Cutting Issues

1. Gender

• During the reporting year, the Governance cluster worked closely with the Gender sub cluster in the following activities:


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• Mainstreaming Gender in cluster activities by actively par-ticipating and supporting the participatory gender audit (PGA).

• Ensuring that Gender issues are integrated in both the Third African Governance Report (AGRIII) and the Eighth African Governance Forum (AGF-VIII).

• Organizing the pre-AGF-VIII Expert Group Meeting focus-ing on gender equality in Gaborone, Botswana on 14-15 October 2012 ahead of the main AGF-VIII held on 16-18 October. The Gender Sub-Cluster also played an active role during the pre-AGF-VIII consultative forum of the Regional Economic Communities (RECs) which took place on 30-31 May 2012 in Arusha, Tanzania and the main AGF-VIII which took place on 16-18 October 2012, in Gaborone, Bo-tswana.

• As a follow-up to the 10th Session of the RCM recommendation that Gender issues should be mainstreamed in RCM Clusters and sub-clusters activities, the Governance Cluster took part in a participatory gender audit (PGA) which was commissioned by the Gender sub-cluster with the financial support of UN Women, UNDP, and WHO to facilitate a self assessment ex-ercise on how the RCM and its clusters has managed to imple-ment the gender equality mandates as provided for in vari-ous sub regional, regional and international gender equality instruments. The Gender Audit for the Cluster aimed at facili-tating the Governance Cluster to reflect on the extent to which the cluster, processes, plans and activities have adopted gender mainstreaming approaches as per gender equality commit-ments at regional and international levels for promoting gen-der equality and women’s empowerment. The Gender Audit was conducted in two phases. The first was the training of se-lected cluster members to be better equipped with theoretical and practical skills in conducting PGA by a Gender Consultant. The second was the actual audit process whereby the trained cluster members undertook documents review; interviews of cluster and sub-cluster members; and a focus group discussion.


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The report of the gender audit was then prepared by the Gen-der Consultant which includes a gender analysis of cluster plans, activities and process to determine the extent at which gender is mainstreamed in plans and reports of the clusters. It also assesses the level of existing gender expertise and strat-egies for building gender competence within the Governance cluster and the perceptions of various actors on what has been achieved, opportunities, and challenges. Finally it provides the recommendation offered by various actors within the cluster as a way forward.

• Gender equality is a major consideration in both the Third Edi-tion of the African Governance Report (AGRIII) and the Eighth African Governance Forum (AGF-VIII) both of which focus on issues of democracy, elections and the management of diversity in Africa. Specifically in relation to the latter, an Issues Paper has been commissioned on Gender Equality, Elections and Di-versity Management in Africa as background material for AGF-VIII. UN Women, UNDP Regional Gender Programme, UNECA and AUC held a pre-AGF-VIII Expert Group Meeting focusing on gender equality in Gaborone, Botswana on 14-15 October 2012 ahead of the main AGF-VIII held on 16-18 October. Gen-der equality also featured prominently during the pre-AGF-VIII consultative forum of the Regional Economic Communities (RECs) scheduled for 30-31 May 2012 in Arusha, Tanzania and the main AGF-VIII which took place on 16-18 October 2012. Gender is being deliberately mainstreamed in all aspects of AGF-VIII, including the composition of the AGF-VIII Steering Committee and the AGF-VIII Reference Group. During the main AGF-VIII, a roundtable on gender equality, elections and diver-sity management was organized. Gender equality issues are also canvassed in the outcome statement of the main AGF-VIII.

2. Youth and employment:

• Given the focus of AGRIII and AGF-VIII, namely diversity man-agement, issues of marginalized and vulnerable groups loom larger in both projects. In particular, youth empowerment is a major consideration in both projects. Specifically in relation


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to the latter, an Issues Paper has been commissioned on Youth Empowerment, Elections and Diversity Management in Africa. Youth empowerment featured prominently during the AGF-VIII consultative forum of the Regional Economic Communi-ties (RECs) held on 30-31 May 2012 in Arusha, Tanzania which was organized by UNDP in partnership with UNECA and AU. Youth issues are being deliberately mainstreamed in all aspects of AGF-VIII including the composition of the AGF-VIII Refer-ence Group. During the main AGF-VIII, a roundtable on youth empowerment, elections and diversity management was or-ganized. Youth empowerment issues are also canvassed in the outcome statement of the main AGF-VIII.

IV. Key Projects, Actions Taken, and Results of Implementation of Capacity Building Work Programme for AU & RECs

1. The AU Commission:

Technical and Advisory Services:

• The Cluster provided technical and advisory services in sup-port of African Charter on Democracy, Elections and Gover-nance which entered into force on 15 February 2012.

• Technical and Advisory services were also provided in support of the launch of the African Governance Platform in Lusaka, Zambia.

• The cluster also provided support towards the Consultative Meeting on the Action Plan of the African Governance Platform on the Strategy to Ratify the African Charter on Democracy, Election and Governance which was held in Lomé, Togo.


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• The Governance Cluster provided technical and advisory ser-vices in support to the consultation on ensuring greater syn-ergy between the African Governance Architecture (AGA) and the African Peace and Security Architecture (APSA) of the AU, in Banjul, The Gambia, from 8 to 10 September 2012.

Financial support:

• The cluster provided financial support towards the African Ministerial Workshop under the theme of “Leadership Capaci-ty-Development for Improved Delivery of Public Services in Af-rica using ICT” which was held in Addis Ababa on 23-25 July.

• Financial support was also provided in support of the work-shop on “Harnessing Diversity in the African Public Service: Exploring Policies and Strategies to Enhance Inclusion and Performance” was held in Gaborone, Botswana on1-12 October 2012.

2. The APRM

Technical and Advisory Services and Financial support:

• Support to the Country Review Mission (CRM) of Tanzania form 2-23 March 2012;

• Workshop on “Harmonizing the Mauritius National Plan of Ac-tion (NPoA) with the existing development strategies and Me-dium Term Expenditure Framework (MTEF)” in Domaine Les Pailles, Mauritius from 23 to 24 April 2012;

• Support to the self assessment processes at the country level has been provided for Gabon on May 2012.

• Workshop on “Harmonizing the Tanzanian APRM National Plan of Action (NPoA) with the existing development strategies and Medium Term Expenditure Framework (MTEF)” in Dar es Sa-laam, Tanzania from 25 to 26 September 2012;


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• Technical Support to the APRM Country Support Mission to Su-dan on 3 October 2012;

• Support towards the preparation for the 10th anniversary the APRM;

• Institutional and capacity building for the APRM Secretariat and the Panel of Eminent Persons.

V. Challenges, Lessons Learned, and Way Forward

1. Challenges and Lessons Learned

• Weak internal coherence, synergy and coordination within the cluster (only two of four sub-clusters are functional);

• Poor inter-cluster collaboration and partnerships (clusters tend to work in silos);

• Weak linkages of support to the AU organs as a whole over and above the AUC (AUC as entry point for AU-wide support);

• Weak partnerships with the Regional Economic Communities (supporting AU’s building blocks);

• Conflict between bilateral and multilateral interventions of the UN system in support of the AU, NEPAD Agency and RECs

2. Way Forward

• The Cluster will revamp the sub-clusters in 2013 ensuring clear focus of their interventions;

• All clusters should prioritize inter-cluster collaboration and partnerships as per previous decisions of RCM;


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• A more comprehensive partnership is needed with AU organs and institutions beyond the AUC;

• A more coherent partnership with RECs is required through the SRCM.

• The RCM-Africa Secretariat needs to double its efforts to im-plore cluster members to balance bilateral support to the AU, NEPAD Agency and RECs with multilateral approaches based on the cluster approach.

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