AFRICAN UNION UNION AFRICAINE
UNIÃO AFRICANA
Addis Ababa, ETHIOPIA P. O. Box 3243 Telephone 251 115 51 38 22 E-mail: [email protected]
The African Union Diaspora Initiative
Presentation by
Dr. Jinmi Adisa, Director, Citizens and Diaspora Directorate (CIDO)
African Union Commission, to the Annual Diaspora Consultation with Formations
and Communities in North America, New York, USA, 21-22 October 2010
The African Union Diaspora Initiative, Presentation by Dr. Jinmi Adisa, Director,
Citizens and Diaspora Directorate, CIDO, African Union Commission, to the
Annual Diaspora Consultation with Formations and Communities in North
America, New York, USA, 21-22 October 2010
Protocol and Greetings,
It gives me great pleasure to address this august assembly of Africa and its Diaspora on
the AU’s Diaspora Initiative. To begin with, I would like to express our sincere gratitude
to Ambassador Antonio Tete, our host and Permanent Representative in New York and
his staff, for working with us to make this happen. This is a precedent setting event
which we hope will set the pace for an annual consultation process with the African
Diaspora in US, the Caribbean and South America, Europe and the Middle-East,
amongst others. In organizational terms, this is also an exercise in intercollegiality that
serves as an inspiration for the Commission and various organs of the Union to work
together as one in the spirit of cooperation and solidarity that underpins the purpose of
the African Union. The presence of Ambassadors of AU Member States and our family
in the Diaspora completes this process.
OBJECTIVES OF THIS DIALOGUE
A key component of the African Union Diaspora initiative is regular dialogue with
members of the Diaspora. This process of global consultative dialogue began as part of
the process of building up the momentum for a global African Diaspora Summit which is
scheduled to be held in South Africa within the next year or after. The Eight Ordinary
Session of the Executive Council of the African Union held in Khartoum, Sudan from 16-
21 January 2006 had authorized this process and directed the Commission of the
African Union and the Government of South Africa to cooperate actively to
operationalize this process. Active engagement between the two parties fostered the
convening of Regional Consultative Conferences (RCCs) in the various regions of the
world with significant Diaspora population to formulate a roadmap for ensuring effective
Diaspora participation in the integration and development agenda of Africa.
The purpose of the RCCs was to promote effective stakeholder community within the
African Union that embraces its Diaspora community. The RCCs created forums for
consultation with the African Diaspora Community on programmes of the Union and
1
efforts to integrate the Diaspora within it. It enabled continental Africans to join hands
with their counterparts in the Diaspora to set an agenda for renaissance and
development. It provided platforms through which African leaders can learn at first hand
the difficulties encountered by their brothers and sisters in the Diaspora with a view to
mapping out strategies through which the African family can work together with them as
well as governments of the countries in which they are domiciled to overcome the
problems. Through these RCCs, Africa began to create a mechanism that will enable it
to leverage the dispersal of its people around the world into a framework of solidarity
and action to develop Africa and influence global affairs in a positive direction that will
serve Africans in particular and mankind in general. This consultative process served
the African Union well in the build-up to the African Diaspora Ministerial Conference
which was held in South Africa in November 2007.
The revitalization of this consultative process is intended to continue to galvanize
African Diaspora constituencies around the world, particularly in the lead up to the
African Global Diaspora Summit that will consolidate the Draft Programme and Plan of
Action for the AU’s Diaspora Initiative, set enhanced criteria for effective and
wholesome participation of the Diaspora in the affairs of the AU and unite and mobilize
Africans within and outside the continent and harness their collective efforts towards the
building of the African Union and African development.
THE INITIATIVE WITHIN THE CONTEXT OF THE DEVELOPMENT OF THE
AFRICAN UNION
This initiative derives its justification in the transformational agenda that gave birth to the
African Union. The OAU which preceded the African Union was focused on the agenda
of political independence and decolonization. However, the distortion of the state
system in the aftermath of political independence gave rise to the military dictatorships
and one party state. As the state disconnected from society which had the inherent
capacity to promote auto-centred development, the continent was engulfed in a variety
of social crises and conflicts. Thus the OAU moved from fixation on independence
towards the resolution of conflicts. In the period of the cold war, this was buttressed by
ideological conflicts among the superpowers which paved way for client-patron
relationship that often encouraged political repression. The end of the cold war paved
2
the way for a transformational orientation as African leaders and societies alike began
to focus on the requirement of development.
That focus underscored the symbiotic relationship between peace, security and
development. It fostered the realization that the wave of the conflict engulfing the
continent had its roots in the crisis of development. Africa therefore, had to engage with
the crisis of development to ensure peace, security and stability.
This development imperative stimulated a different approach from the OAU in the
building of the African Union. The OAU was focused largely on political leaders.
However, the Constitutive Act as the new fundamental law of the Union recognized that
the requirement of development must be premised on active and total mobilization of all
relevant forces in society. Hence, the Act is specific that the Union will be people-
centred, people-driven and people-oriented, based on a partnership between
governments and all segments of civil society, particularly youth, women and children.
This vision of a developmental Commonwealth in the African Union has two logical
corollaries. First, it implied a need to go beyond governments and representatives of
states to incorporate the energies of African people in their different professional and
other works of life. The Citizens and Diaspora Directorate of the AU Commission
(CIDO) and the Economic, Social and Cultural Council were created and given specific
responsibilities to seek and harness the contributions of all these non-state actors to the
efforts of the Commonwealth. Second and significantly, the people-centred aspiration
highlighted the fact that a significant part of the African population that reside outside
the shores of the continent either through slave trade or successive waves of migration
including the ancient and modern, would be part of the new African Union system.
There was a clear recognition and acceptance among policy actors that these Africans
are part of the broader African population and Africa cannot be whole again or achieve
its development and political objective except through a process that enables the
integration of its Diaspora and permits their wholesome and active participation in the
process of African reconstruction and development.
Soon after the launching of the African Union in Durban, South Africa in 2002 therefore,
the Assembly of Heads of States met in Addis Ababa, Ethiopia to establish, among
other things, a legal framework that would create the necessary and sufficient
conditions for putting this decision into effect. Hence, it adopted the Protocol on the
Amendment to the Constitutive Act of the Union which in Article 3 (q) invited the African
3
Diaspora to participate fully as an important component in the building of the African
Union. In adopting the decision, the Protocol symbolically recognized the Diaspora as
an important and separate but related constituency outside the five established regions
of Africa – East, West, Central North and South. Thus although there is no specific
legal or political text that states this categorically, it, in effect, created a symbolic sixth
region of Africa.
REBUILDING THE GLOBAL AFRICAN FAMILY
The transformation agenda of the continental organization underlined the need for
African renaissance to be built on a platform of self-rehabilitation through which Africa
connects with its hitherto missing or amputated parts to become dynamic and whole
again. The rebuilding of the global African family as an essential actor in economic
development and a prime actor in global affairs became a primary element of the
agenda of the Union.
Certain inherent challenges confronted the continental organization in this regard. The
first was to define precisely who or what constitutes the African Diaspora: the first step
in this process was to consult the Diaspora. Thus in accordance with Decision EX/CL
Dec. 6 (III) of the Executive Council of the Union held in Sun City, South Africa from 31-
25 May 2003, the Commission of the Union convened a technical workshop of the
Experts from the continent and the Diaspora in Trinidad and Tobago with a view to
defining the Diaspora. That definition was presented to the Permanent Representative
Committee of the Ambassadors in preparation for the 6th Ordinary Session of the
Executive Council from 27-28 January 2010. The Member States then decided that a
Committee of States Experts be convened to review and finalize the definition.
DEFINITION OF THE AFRICAN DIASPORA
The meeting of Experts from Member States met in Addis Ababa, from 11-12 April 2005
and adopted the definition as follows:
“The African Diaspora consists of peoples of African origin living outside the
continent, irrespective of their citizenship and nationality and who are willing to
contribute to the development of the continent and building of the African Union.”
4
This definition was adopted at the next Ordinary Session of Council and Assembly in
July 2005.
The definition has attracted some criticisms. Though it was adopted by consensus, two
delegations at the meeting felt strongly on the need for a two-part definition, one of
which would capture the academic or intellectual aspects and the other that would be
related to the political needs of the Union. Another delegation insisted on the need to
add “permanently” to “ living outside the continent.” Thereafter, others have argued that
the phrase “willingness to contribute to the development of the continent and the
building of the African Union” should be left out. Nothing should be demanded or
expected from the Diaspora. They should simply be recognized ipso facto as is the
case with the Jewish and Israeli Diaspora.
The criticisms are useful but they do not sufficiently address the complexity of the
subject. The definition was arrived at after serious and deep reflection. The Experts
agreed that any working definition must combine the following key characteristics as
necessary and sufficient conditions.
A. Bloodline and/ or heritage: the Diaspora should consist of people living outside
the continent whose ancestral roots or heritage are in Africa
B. Migration: The Diaspora should be composed of people of African heritage, who
migrated from or are living outside the continent. In this context, three trends of
migration were identified- pre-slave trade, slave trade, and post-slave trade or
modern migration:
C. The principle of inclusiveness. The definition must embrace both ancient and
modern Diaspora; and
D. The commitment to the African cause: The Diaspora should be people who are
willing to be part of the continent (or the African family)
The AU definition comprises all these elements. A two-part definition would not be a
working definition. Also, the distinction between the academic and political in this
instance will be artificial. The AU is intrinsically a political and economic organization.
Adding “permanently” before those “leaving outside” will imply that economic migrants
or the modern African Diaspora would not be part of the working definition. This would
be discriminatory and would also ignore an important and dynamic element of the
5
Diaspora community. The final criticism regarding implied commitment of the Diaspora
to rebuilding the African Union ignores the debate and decision of the Assembly of
African Heads of States at the 1st Extra-Ordinary Summit of the Union in January 2003
which allied the Diaspora project to the building of the Union.
This is not to imply that the AU definition of the African Diaspora is written in stone. It is
a working definition and working definitions can be revised or improved upon if there are
ample justifications for it. The Diaspora Initiative would always be work in progress and
any work in progress would involve refinements of working models.
ENGAGEMENT STRATEGIES
Even prior to the agreement on a working definition, the AU Commission and Member
States began the process of active engagement with the Diaspora with significant
results. The Commission in particular embarked on outreach and sensitization
programmes to popularize the AU’s Diaspora Agenda among Diaspora communities in
the different regions of the world beginning with Washington Forum in December 2002.
This facilitated greater understanding of AU purpose, objectives and requirements
within the Diaspora. Agreement on the definition of the Diaspora increased the
momentum for this process.
Secondly, the Commission and the Union at large began the process of incorporation of
the Diaspora in the agenda plans and programmes of the AU. Thus the two
consecutive vision, mission and strategic plans of the AU articulated under Chairperson
Konare and Mr. Ping successively have an integrated Diaspora component. Elements
of the Diaspora from the US, Canada, Europe, the Caribbean and South America were
involved in various brainstorming, working groups and networks discussions on all
aspects of AU agenda, including participation in AU-CSO activities. The Diaspora have
observer groups at various AU Summits. Moreover, an associate status was conferred
informally on countries with significant African populations at Summit such that every
AU Summit has representative of Caribbean countries at the highest level as
participants at Summits and even at Council meetings. Prime Minister Gonsalves of St
Vincent and Grenadier led the Caribbean leader to the recent Summit in Kampala and
his proposals led to a resolution or declarations as one of the substantive outcomes of
the Summit.
6
As part of this process, a close working relationship has been developed with Diaspora
formations all over the world through mutual exchanges of information and AU
Commission liaison and participation in Diaspora activities. AU regional offices have
also intensified the process of facilitating close interaction in coordination with CIDO as
the responsible directorate at Headquarters level. One evidence of this is the
Consultation we are holding today.
The AU Diaspora programme has also facilitated working arrangements with pertinent
regional organizations such as CARICOM and OAI. The former was represented at
various AU meetings and arrangements are underway to define more explicit
organizational structures arrangements, and agenda for collaboration that will support
this arrangement. Indeed the Chairperson of the Commission, H.E. Mr. Jean Ping met
recently with the outgoing CARICOM Chief Executive, Mr. Edward Carrington on the
margins of the General Assembly Session in New York in September 2010 to discuss
precise ways to formalize and advance this process.
In addition, the Union has begun the process of facilitating effective Diaspora
representation in the affairs of the AU. This began with the allocation of 20 seats for the
African Diaspora in the Economic, Social and Cultural Council of the African
(ECOSOCC). As the process of representation must go through appropriate AU
channels including the Executive organs, the Commission and the Union took the
unprecedented steps of appointing 2 leaders of Diaspora representative networks in the
Caribbean and Central America among the 5 nominated members of the General
Assembly of ECSOSOCC. One of these members, Mr. Khafra Kambon, was also
elected to the Standing Committee by the General Assembly giving the African
Diaspora the first formal representation in an AU structure.
The Diaspora was also closely associated with recruitment patterns and procedures of
the AU. A conscious decision was taken to ensure that they were effectively
represented on selection and interview panels. Indeed the Chairperson of the Panel on
recruitment boards in 2003 and 2004 were mostly chosen from the Diaspora. Thus the
Diaspora may wish to accept collective responsibility for the recruitment of over 60
percent of the present staff of the AU Commission. I myself attended two selection
boards headed by Diaspora personnel to attain my current position.
7
ORGANIZATIONAL PROCESSES
One important challenge associated with the issue of engagement was that of agreeing
on appropriate organizational processes and structures. The African Union accepts a
responsibility to support and animate this process but not to impose upon or to organize
the Diaspora. Its efforts are to support the Diaspora to organize itself but within a
framework that has specific reference as well as universal form but can also be adapted
to the organizational processes of the African Union.
Within this context, there is emphasis on regional specificity. We recognize that the
regions of the world are different and forms of engagement must recognize the
specificities within them. For instance, in North America which includes the US and the
Caribbean relationships would not be the same as that of Europe. In the Caribbean
relationships are invariably at 6 levels. One is with governments with significant or
majority African populations, the other is with Pan-African Institutions such as the Pan
African Commission in Barbados, the other is with civil society networks such as the
Pan Caribbean AU-CSO regional network. Fourth is with regional organizations such
as CARICOM and fifth is the association of Member States of the Union with the
national Diaspora communities or countries of region. The sixth level is where the
Commission and Organs of the Union work appropriately with these formations, get
them to support and reinforce each other and feed their outcomes individually and
collectively to the AU framework. Caribbean exceptionalism is due to its peculiarities. In
the US the boundaries are not exactly the same but four levels of relationships are
clearly discernable – the Afro-descendant community, modern Diaspora element
associated with national Diaspora movements, civil society Diaspora elements and the
US government. We are exploring relations with the OAS as a complementary aspect
of the pattern of interrelationships. The European nexus will have a similar pattern.
As part of this process, the AU is supporting the establishment of regional networks in
the various regions that can act as interlocutors, channels of communication and flow of
information and active partners in enabling the process of mutual intercourse between
Africa and its Diaspora. It is our expectation that such regional networks may also assist
with the process of representation in AU structures and processes.
8
Our organizational approach is to enable the Diaspora to organize itself with AU support
within the framework provided by executive organs of the Union, the Council and
Assembly and with guidance of Member States of the Union within these organs.
The approach has not been without its difficulties. The Diaspora programme has
created a phenomenon of rising expectations among the family abroad. This is
laudable because it proves commitment. Yet, there are obvious signs of impatience.
Moreover, civil society formations have not fully appreciated the organizational
demands and imperatives of the AU. More often than not, the AU Commission is the
whipping board for associated anger and frustrations. This is a burden that we are
happy to bear.
More disturbing still is that there is some competition for power and influence within the
Diaspora communities. This is a normal human disposition except that we see
tendencies that can prove disruptive and which we must all try to rise above. There are
some elements of the Diaspora within the US that wish to assume the natural
leadership of the Diaspora agenda and to organize and centralize the Diaspora effort.
Discussions at the Expert Workshop in Trinidad and Tobago provided clear evidence
that such apparent paternalism would undermine the general effort. The challenge of
organizing the Diaspora movement must embrace the need for autonomous regional
coalitions to evolve and federate, if willing, but only by consent, at hemispheric levels,
as may be deemed appropriate. The success of the Diaspora initiative, (to be assured)
must dissuade focus on power blocs and stress an organizing principle based on
democracy, within and among regions.
At the continent – Diaspora level, the focus must be on building bridges across the
Atlantic with an organizational emphasis on commitment, common cause and reciprocal
advantages. The Commission and the Union must encourage the formation and
consolidation of cooperative structures for mutual collaboration as inputs for the next
wider Pan-African Congress. Emphasis will also be given to the need to consolidate
associations and structures that are already developed and to enrich their influence and
base of support and harness them to AU processes. At a horizontal level, cooperative
relations are being closely developed with regional organizations and relevant
institutions such as the International Organization for Migration (IOM). Building on the
first set of relationships in the US, Caribbean and Europe, increasing emphasis is being
placed on global coverage with extension of focus to Central and South America, the
9
Middle-East, Asia and Oceania. Within this context, there will be some specific
emphasis on Brazil which has the largest concentration of African population outside
Nigeria.
Two other areas of focus are being pursued. One is to interconnect and integrate
national, continental and sub-regional efforts to promotesynergy, avoid duplication and
ensure effective outcomes. Beyond this there is a new emphasis on developing and
consolidating structures for effective legitimate and credible Diaspora representation
and participation in various AU organs, structures and processes. Alongside this are
developmental efforts to engage the Diaspora effectively in the development of the
continent through the project for an African Volunteer Corps as announced by Chairman
Ping during his visit to the US in April 2010. The issue of reciprocal rights and privileges
are essential elements of this consideration embracing questions regarding dual
nationality, the right of return, access to land, property and issues surrounding the right
to an African Passport.
THE GLOBAL AFRICAN DIASPORA SUMMIT
Recognition of the importance and complexity of these issues prompted the decision to
organize the global African Diaspora Summit which will establish a comprehensive
program and plan of Action, for the Diaspora Initiative. I will not dwell on this since there
is a complementary presentation by the a representative of the Republic of South Africa,
our active partner and one of the lead engagement partners in this process.
CONCLUSION
In conclusion, I will like to stress that the Diaspora initiative is a resource laden project
and so far, the African Union has not matched its vision and commitment with
appropriate resources. The Diaspora budget of the AU over the last three years has
been about 200,000 US dollars which is insufficient for an effective mobilization much
less the commitment of programs and policies. The result is that issues which we need
urgently to address such as procedures and modalities for representation of the
Diaspora in the AU, support for organization of regional networks and the inception of
the Diaspora volunteer program has not moved at the pace required which is as
frustrating for the Diaspora as it is for the Commission. In organizing the RCCs we
have been fortunate to have the intense support of South Africa as a partner and lead
10
state but now we have to diversify the base of support. To this end, we have
approached donors and international financial institutions with some measure of
success that provides impetus for us to move decisively ahead in 2011. There are also
increasing evidence that the AU itself may increase support, albeit in a minor way. The
challenge therefore is for the Diaspora communities to organize themselves effectively
to address this challenge. Whatever level of support others might be willing to give us,
we need to recognize that as a matter of integrity and self respect, the rebuilding of a
family must ultimately depend on the commitment and sense of responsibility of its
members and the devotion that they are willing to give to the enterprise. All charity must
begin at home.
I thank you.
11
