African Peer Review Mechanism
Encyclopedia
The African Peer Review Mechanism (APRM) is a mutually agreed instrument voluntarily acceded to by the member states of the African Union
(AU) as a self-monitoring mechanism. It was founded in 2003.
The mandate of the APRM is to encourage conformity in regard to political, economic and corporate governance values, codes and standards, among African countries and the objectives in socio-economic development within the New Partnership for Africa's Development
.
, Zambia
, adopted a document setting out a new vision for the revival and development of Africa—which was to become known as the New Partnership for Africa's Development
(NEPAD).
In July 2002, the Durban AU summit supplemented NEPAD with a Declaration on Democracy, Political, Economic and Corporate Governance. According to the Declaration, states participating in NEPAD ‘believe in just, honest, transparent, accountable and participatory government and probity in public life’. Accordingly, they ‘undertake to work with renewed determination to enforce’, among other things, the rule of law; the equality of all citizens before the law; individual and collective freedoms; the right to participate in free, credible and democratic political processes; and adherence to the separation of powers, including protection for the independence of the judiciary and the effectiveness of parliaments.
The Declaration on Democracy, Political, Economic and Corporate Governance also committed participating states to establish an African Peer Review Mechanism (APRM) to promote adherence to and fulfilment of its commitments. The Durban summit adopted a document setting out the stages of peer review and the principles by which the APRM should operate.
In March 2003, the NEPAD Heads of State and Government Implementation Committee, meeting in Abuja, Nigeria, adopted a memorandum of understanding (MOU) on the APRM. This MOU effectively operates as a treaty; it came into effect immediately with the agreement of six countries to be subject to its terms. Those countries that do not accede to the document are not subject to review. The March 2003 meeting also adopted a set of ‘objectives, standards, criteria and indicators’ for the APRM. The meeting agreed to the establishment of a secretariat for the APRM and the appointment of a seven-person ‘panel of eminent persons’ to oversee the conduct of the APRM process and ensure its integrity.
As of mid-2011, 31 countries had formally joined the APRM by signing the MOU on the APRM. Algeria
, Republic of Congo, Ethiopia
, Ghana
, Kenya
, Mozambique
, Nigeria
, Rwanda
, South Africa
and Uganda
signed the MOU in March 2003; Burkina Faso
, Cameroon
, Gabon
, Mali
and Senegal
in April and May 2003; Mauritius
in July 2003; Egypt
and Benin
in March 2004; Angola
, Lesotho
, Malawi
, Sierra Leone
and Tanzania
, in July 2004; Sudan
and Zambia
in January 2006; São Tomé and Príncipe
in January 2007; Djibouti
in July 2007, Mauritania
in January 2008, Togo
in July 2008; Cape Verde
in 2009; Liberia
in January 2011; and Equatorial Guinea
in July 2011.
Before the questionnaire was adopted and after the initial plans for the APRM were laid down by South Africa
and others, some press reports stated that, after pressure from other African countries like Nigeria
and Libya
, Thabo Mbeki
changed his mind and did not want political governance to be included within the APRM reviews. According to the reports, Mbeki
believed that review of political governance was something for the African Union
. Jean Chrétien
, then president of the G8
, sent a letter to Mbeki
demanding clarifications and expressing his concern that these AU organs are ‘politicized’ and will therefore not produce credible reviews. In a public letter Mbeki denied the charges and stated that countries would voluntarily subject themselves to review of all aspects of good governance
, including political, under the APRM, but that other AU institutions might be more appropriate to deal with some issues.
1- Base review: This is carried out within eighteen months of a country becoming member of the APRM;
2- Periodic review: Every two to four years;
3- Requested review: Any country can request an additional review for its own reasons;
4- ‘Crisis’ review: Early signs of impending political or economic crisis would also be sufficient cause to institute a review.
However, in practice, it seems likely that only base reviews will be conducted for the foreseeable future: the review process for the first four countries—Ghana, Kenya, Mauritius and Rwanda—has taken at least eighteen months (Ghana) and perhaps up to three years or more (Mauritius), since they were first announced in Kigali in February 2004.
which has the final say over the whole process. They appoint the APR Panel, look after the funding, discuss the country reports, apply the peer pressure and transmit the reports to the relevant AU structures.
The panel consists of 7 eminent persons of ‘high moral stature and demonstrated commitment to the ideals of Pan Africanism’ who, moreover, have ‘expertise in the areas of political governance, macro-economic management, public financial management and corporate governance
’ . Its composition should also reflect a regional, gender and cultural balance . The panel members are nominated by the participating countries, short listed by a Committee of Ministers, appointed by the APR Forum and serve for up to four years (five for the chairman) .
Each country to be reviewed is assigned to one of the seven eminent persons, who consider and review reports, and make recommendations to the APR Forum. As of July 2006, the seven ‘eminent persons’ were: Marie Angelique Savane (Senegal), Chairperson; Adebayo Adedeji (Nigeria); Bethuel Kiplagat (Kenya); Graça Machel (Mozambique); Mohammed Babes (Algeria, replacing the original Algerian appointee, Mourad Medelci); Dorothy Njeuma (Cameroon); and Chris Stals (South Africa).
and development
. After this has been shared with the country concerned and other partner institutions and after the self-assessment has been made, the country in question will issue a draft Programme of Action . In the development of this Programme that participation of all stakeholders must be ensured, ‘including trade unions, women, youth, civil society
, private sector, rural communities and professional associations’ . In the Programme it will suggest a time-bound framework for implementing the Declaration on Democracy, Political, Economic and Corporate Governance
. After the Programme of Action and questionnaire have been submitted to the APR Secretariat, the Secretariat will draw up an Issues Paper. It is possible that on the basis of this paper the Secretariat will decide that certain issues need a more in-depth assessment (‘Technical assessments’) before that stage two is initiated. If there are Technical Assessments, these can lead to the update of the Issues Paper and possibly the Programme of Action . The APRM Secretariat also makes a suggestion to the APR Panel regarding the composition of the Country Review team.
, officials, political parties, parliamentarians and representatives of civil society
organizations (including the media
, academia
, trade unions, business
, professional bodies)’.
, is sent to the APR Secretariat and the APR Panel. Then the report is submitted to the APR Forum of participating heads of state and government for consideration and formulation of actions deemed necessary .
It is at this stage that the actual ‘peer pressure’ is applied if necessary. Here the full quotation of the APRM base document (par. 24) is in its place: "If the Government of the country in question shows a demonstrable will to rectify the identified shortcomings, then it will be incumbent upon participating Governments to provide what assistance they can, as well as to urge donor governments and agencies also to come to the assistance of the country reviewed. However, if the necessary political will is not forthcoming from the Government, the participating states should first do everything practicable to engage it in constructive dialogue, offering in the process technical and other appropriate assistance. If dialogue proves unavailing, the participating Heads of State and Government may wish to put the Government on notice of their collective intention to proceed with appropriate measures by a given date. The interval should concentrate the mind of the Government and provide a further opportunity for addressing the identified shortcomings under a process of constructive dialogue. All considered, such measures should always be utilized as a last resort."
. After this base review is concluded, a periodic review should follow every two to four years.
, the United Kingdom
and the UNDP. The APRM reported contributions of some US$17.3 million in 2007, with US$10.5 million coming from development partners. Unsurprisingly, many member states failed to meet the minimum contribution of $100,000.
African Union
The African Union is a union consisting of 54 African states. The only all-African state not in the AU is Morocco. Established on 9 July 2002, the AU was formed as a successor to the Organisation of African Unity...
(AU) as a self-monitoring mechanism. It was founded in 2003.
The mandate of the APRM is to encourage conformity in regard to political, economic and corporate governance values, codes and standards, among African countries and the objectives in socio-economic development within the New Partnership for Africa's Development
New Partnership for Africa's Development
The New Partnership for Africa's Development is an economic development program of the African Union. NEPAD was adopted at the 37th session of the Assembly of Heads of State and Government in July 2001 in Lusaka, Zambia...
.
Origins of APRM
The 37th Summit of the Organisation of African Unity held in July 2001 in LusakaLusaka
Lusaka is the capital and largest city of Zambia. It is located in the southern part of the central plateau, at an elevation of about 1,300 metres . It has a population of about 1.7 million . It is a commercial centre as well as the centre of government, and the four main highways of Zambia head...
, Zambia
Zambia
Zambia , officially the Republic of Zambia, is a landlocked country in Southern Africa. The neighbouring countries are the Democratic Republic of the Congo to the north, Tanzania to the north-east, Malawi to the east, Mozambique, Zimbabwe, Botswana and Namibia to the south, and Angola to the west....
, adopted a document setting out a new vision for the revival and development of Africa—which was to become known as the New Partnership for Africa's Development
New Partnership for Africa's Development
The New Partnership for Africa's Development is an economic development program of the African Union. NEPAD was adopted at the 37th session of the Assembly of Heads of State and Government in July 2001 in Lusaka, Zambia...
(NEPAD).
In July 2002, the Durban AU summit supplemented NEPAD with a Declaration on Democracy, Political, Economic and Corporate Governance. According to the Declaration, states participating in NEPAD ‘believe in just, honest, transparent, accountable and participatory government and probity in public life’. Accordingly, they ‘undertake to work with renewed determination to enforce’, among other things, the rule of law; the equality of all citizens before the law; individual and collective freedoms; the right to participate in free, credible and democratic political processes; and adherence to the separation of powers, including protection for the independence of the judiciary and the effectiveness of parliaments.
The Declaration on Democracy, Political, Economic and Corporate Governance also committed participating states to establish an African Peer Review Mechanism (APRM) to promote adherence to and fulfilment of its commitments. The Durban summit adopted a document setting out the stages of peer review and the principles by which the APRM should operate.
In March 2003, the NEPAD Heads of State and Government Implementation Committee, meeting in Abuja, Nigeria, adopted a memorandum of understanding (MOU) on the APRM. This MOU effectively operates as a treaty; it came into effect immediately with the agreement of six countries to be subject to its terms. Those countries that do not accede to the document are not subject to review. The March 2003 meeting also adopted a set of ‘objectives, standards, criteria and indicators’ for the APRM. The meeting agreed to the establishment of a secretariat for the APRM and the appointment of a seven-person ‘panel of eminent persons’ to oversee the conduct of the APRM process and ensure its integrity.
Participation
The APRM is a voluntary mechanism open to any AU country . A country formally joins the APRM upon depositing the signed Memorandum of Understanding (MOU) of March 9, 2003 at the NEPAD Secretariat.As of mid-2011, 31 countries had formally joined the APRM by signing the MOU on the APRM. Algeria
Algeria
Algeria , officially the People's Democratic Republic of Algeria , also formally referred to as the Democratic and Popular Republic of Algeria, is a country in the Maghreb region of Northwest Africa with Algiers as its capital.In terms of land area, it is the largest country in Africa and the Arab...
, Republic of Congo, Ethiopia
Ethiopia
Ethiopia , officially known as the Federal Democratic Republic of Ethiopia, is a country located in the Horn of Africa. It is the second-most populous nation in Africa, with over 82 million inhabitants, and the tenth-largest by area, occupying 1,100,000 km2...
, Ghana
Ghana
Ghana , officially the Republic of Ghana, is a country located in West Africa. It is bordered by Côte d'Ivoire to the west, Burkina Faso to the north, Togo to the east, and the Gulf of Guinea to the south...
, Kenya
Kenya
Kenya , officially known as the Republic of Kenya, is a country in East Africa that lies on the equator, with the Indian Ocean to its south-east...
, Mozambique
Mozambique
Mozambique, officially the Republic of Mozambique , is a country in southeastern Africa bordered by the Indian Ocean to the east, Tanzania to the north, Malawi and Zambia to the northwest, Zimbabwe to the west and Swaziland and South Africa to the southwest...
, Nigeria
Nigeria
Nigeria , officially the Federal Republic of Nigeria, is a federal constitutional republic comprising 36 states and its Federal Capital Territory, Abuja. The country is located in West Africa and shares land borders with the Republic of Benin in the west, Chad and Cameroon in the east, and Niger in...
, Rwanda
Rwanda
Rwanda or , officially the Republic of Rwanda , is a country in central and eastern Africa with a population of approximately 11.4 million . Rwanda is located a few degrees south of the Equator, and is bordered by Uganda, Tanzania, Burundi and the Democratic Republic of the Congo...
, South Africa
South Africa
The Republic of South Africa is a country in southern Africa. Located at the southern tip of Africa, it is divided into nine provinces, with of coastline on the Atlantic and Indian oceans...
and Uganda
Uganda
Uganda , officially the Republic of Uganda, is a landlocked country in East Africa. Uganda is also known as the "Pearl of Africa". It is bordered on the east by Kenya, on the north by South Sudan, on the west by the Democratic Republic of the Congo, on the southwest by Rwanda, and on the south by...
signed the MOU in March 2003; Burkina Faso
Burkina Faso
Burkina Faso – also known by its short-form name Burkina – is a landlocked country in west Africa. It is surrounded by six countries: Mali to the north, Niger to the east, Benin to the southeast, Togo and Ghana to the south, and Côte d'Ivoire to the southwest.Its size is with an estimated...
, Cameroon
Cameroon
Cameroon, officially the Republic of Cameroon , is a country in west Central Africa. It is bordered by Nigeria to the west; Chad to the northeast; the Central African Republic to the east; and Equatorial Guinea, Gabon, and the Republic of the Congo to the south. Cameroon's coastline lies on the...
, Gabon
Gabon
Gabon , officially the Gabonese Republic is a state in west central Africa sharing borders with Equatorial Guinea to the northwest, Cameroon to the north, and with the Republic of the Congo curving around the east and south. The Gulf of Guinea, an arm of the Atlantic Ocean is to the west...
, Mali
Mali
Mali , officially the Republic of Mali , is a landlocked country in Western Africa. Mali borders Algeria on the north, Niger on the east, Burkina Faso and the Côte d'Ivoire on the south, Guinea on the south-west, and Senegal and Mauritania on the west. Its size is just over 1,240,000 km² with...
and Senegal
Senegal
Senegal , officially the Republic of Senegal , is a country in western Africa. It owes its name to the Sénégal River that borders it to the east and north...
in April and May 2003; Mauritius
Mauritius
Mauritius , officially the Republic of Mauritius is an island nation off the southeast coast of the African continent in the southwest Indian Ocean, about east of Madagascar...
in July 2003; Egypt
Egypt
Egypt , officially the Arab Republic of Egypt, Arabic: , is a country mainly in North Africa, with the Sinai Peninsula forming a land bridge in Southwest Asia. Egypt is thus a transcontinental country, and a major power in Africa, the Mediterranean Basin, the Middle East and the Muslim world...
and Benin
Benin
Benin , officially the Republic of Benin, is a country in West Africa. It borders Togo to the west, Nigeria to the east and Burkina Faso and Niger to the north. Its small southern coastline on the Bight of Benin is where a majority of the population is located...
in March 2004; Angola
Angola
Angola, officially the Republic of Angola , is a country in south-central Africa bordered by Namibia on the south, the Democratic Republic of the Congo on the north, and Zambia on the east; its west coast is on the Atlantic Ocean with Luanda as its capital city...
, Lesotho
Lesotho
Lesotho , officially the Kingdom of Lesotho, is a landlocked country and enclave, surrounded by the Republic of South Africa. It is just over in size with a population of approximately 2,067,000. Its capital and largest city is Maseru. Lesotho is a member of the Commonwealth of Nations. The name...
, Malawi
Malawi
The Republic of Malawi is a landlocked country in southeast Africa that was formerly known as Nyasaland. It is bordered by Zambia to the northwest, Tanzania to the northeast, and Mozambique on the east, south and west. The country is separated from Tanzania and Mozambique by Lake Malawi. Its size...
, Sierra Leone
Sierra Leone
Sierra Leone , officially the Republic of Sierra Leone, is a country in West Africa. It is bordered by Guinea to the north and east, Liberia to the southeast, and the Atlantic Ocean to the west and southwest. Sierra Leone covers a total area of and has an estimated population between 5.4 and 6.4...
and Tanzania
Tanzania
The United Republic of Tanzania is a country in East Africa bordered by Kenya and Uganda to the north, Rwanda, Burundi, and the Democratic Republic of the Congo to the west, and Zambia, Malawi, and Mozambique to the south. The country's eastern borders lie on the Indian Ocean.Tanzania is a state...
, in July 2004; Sudan
Sudan
Sudan , officially the Republic of the Sudan , is a country in North Africa, sometimes considered part of the Middle East politically. It is bordered by Egypt to the north, the Red Sea to the northeast, Eritrea and Ethiopia to the east, South Sudan to the south, the Central African Republic to the...
and Zambia
Zambia
Zambia , officially the Republic of Zambia, is a landlocked country in Southern Africa. The neighbouring countries are the Democratic Republic of the Congo to the north, Tanzania to the north-east, Malawi to the east, Mozambique, Zimbabwe, Botswana and Namibia to the south, and Angola to the west....
in January 2006; São Tomé and Príncipe
São Tomé and Príncipe
São Tomé and Príncipe, officially the Democratic Republic of São Tomé and Príncipe, is a Portuguese-speaking island nation in the Gulf of Guinea, off the western equatorial coast of Central Africa. It consists of two islands: São Tomé and Príncipe, located about apart and about , respectively, off...
in January 2007; Djibouti
Djibouti
Djibouti , officially the Republic of Djibouti , is a country in the Horn of Africa. It is bordered by Eritrea in the north, Ethiopia in the west and south, and Somalia in the southeast. The remainder of the border is formed by the Red Sea and the Gulf of Aden at the east...
in July 2007, Mauritania
Mauritania
Mauritania is a country in the Maghreb and West Africa. It is bordered by the Atlantic Ocean in the west, by Western Sahara in the north, by Algeria in the northeast, by Mali in the east and southeast, and by Senegal in the southwest...
in January 2008, Togo
Togo
Togo, officially the Togolese Republic , is a country in West Africa bordered by Ghana to the west, Benin to the east and Burkina Faso to the north. It extends south to the Gulf of Guinea, on which the capital Lomé is located. Togo covers an area of approximately with a population of approximately...
in July 2008; Cape Verde
Cape Verde
The Republic of Cape Verde is an island country, spanning an archipelago of 10 islands located in the central Atlantic Ocean, 570 kilometres off the coast of Western Africa...
in 2009; Liberia
Liberia
Liberia , officially the Republic of Liberia, is a country in West Africa. It is bordered by Sierra Leone on the west, Guinea on the north and Côte d'Ivoire on the east. Liberia's coastline is composed of mostly mangrove forests while the more sparsely populated inland consists of forests that open...
in January 2011; and Equatorial Guinea
Equatorial Guinea
Equatorial Guinea, officially the Republic of Equatorial Guinea where the capital Malabo is situated.Annobón is the southernmost island of Equatorial Guinea and is situated just south of the equator. Bioko island is the northernmost point of Equatorial Guinea. Between the two islands and to the...
in July 2011.
Review
The APRM process is based on a "self-assessment" questionnaire developed by the APR Secretariat. It is divided into four sections: democracy and political governance, economic governance and management, corporate governance, and socio-economic development. Its questions are designed to assess states' compliance with a wide range of African and international human rights treaties and standards. The questionnaire was formally adopted in February 2004, in Kigali, Rwanda, by the first meeting of the APR Forum, made up of representatives of the heads of state or government of all states participating in the APRM.Before the questionnaire was adopted and after the initial plans for the APRM were laid down by South Africa
South Africa
The Republic of South Africa is a country in southern Africa. Located at the southern tip of Africa, it is divided into nine provinces, with of coastline on the Atlantic and Indian oceans...
and others, some press reports stated that, after pressure from other African countries like Nigeria
Nigeria
Nigeria , officially the Federal Republic of Nigeria, is a federal constitutional republic comprising 36 states and its Federal Capital Territory, Abuja. The country is located in West Africa and shares land borders with the Republic of Benin in the west, Chad and Cameroon in the east, and Niger in...
and Libya
Libya
Libya is an African country in the Maghreb region of North Africa bordered by the Mediterranean Sea to the north, Egypt to the east, Sudan to the southeast, Chad and Niger to the south, and Algeria and Tunisia to the west....
, Thabo Mbeki
Thabo Mbeki
Thabo Mvuyelwa Mbeki is a South African politician who served two terms as the second post-apartheid President of South Africa from 14 June 1999 to 24 September 2008. He is also the brother of Moeletsi Mbeki...
changed his mind and did not want political governance to be included within the APRM reviews. According to the reports, Mbeki
Mbeki
Mbeki is a surname and may refer to following individuals:* Thabo Mbeki, former President of South Africa* Govan Mbeki, the father of Thabo Mbeki* Epainette Mbeki, the mother of Thabo Mbeki, President of South Africa...
believed that review of political governance was something for the African Union
African Union
The African Union is a union consisting of 54 African states. The only all-African state not in the AU is Morocco. Established on 9 July 2002, the AU was formed as a successor to the Organisation of African Unity...
. Jean Chrétien
Jean Chrétien
Joseph Jacques Jean Chrétien , known commonly as Jean Chrétien is a former Canadian politician who was the 20th Prime Minister of Canada. He served in the position for over ten years, from November 4, 1993 to December 12, 2003....
, then president of the G8
G8
The Group of Eight is a forum, created by France in 1975, for the governments of seven major economies: Canada, France, Germany, Italy, Japan, the United Kingdom, and the United States. In 1997, the group added Russia, thus becoming the G8...
, sent a letter to Mbeki
Mbeki
Mbeki is a surname and may refer to following individuals:* Thabo Mbeki, former President of South Africa* Govan Mbeki, the father of Thabo Mbeki* Epainette Mbeki, the mother of Thabo Mbeki, President of South Africa...
demanding clarifications and expressing his concern that these AU organs are ‘politicized’ and will therefore not produce credible reviews. In a public letter Mbeki denied the charges and stated that countries would voluntarily subject themselves to review of all aspects of good governance
Good governance
Good governance is an indeterminate term used in development literature to describe how public institutions conduct public affairs and manage public resources in order to guarantee the realization of human rights. Governance describes "the process of decision-making and the process by which...
, including political, under the APRM, but that other AU institutions might be more appropriate to deal with some issues.
Types of review
As originally envisaged in the APRM Base Document adopted at the AU Durban summit in 2002, there are four types of review:1- Base review: This is carried out within eighteen months of a country becoming member of the APRM;
2- Periodic review: Every two to four years;
3- Requested review: Any country can request an additional review for its own reasons;
4- ‘Crisis’ review: Early signs of impending political or economic crisis would also be sufficient cause to institute a review.
However, in practice, it seems likely that only base reviews will be conducted for the foreseeable future: the review process for the first four countries—Ghana, Kenya, Mauritius and Rwanda—has taken at least eighteen months (Ghana) and perhaps up to three years or more (Mauritius), since they were first announced in Kigali in February 2004.
APR Forum
This is the Committee of the Heads of State and Government of the countries voluntarily participating in the APRM. It is the highest decision-making body and could be considered like the board of directorsBoard of directors
A board of directors is a body of elected or appointed members who jointly oversee the activities of a company or organization. Other names include board of governors, board of managers, board of regents, board of trustees, and board of visitors...
which has the final say over the whole process. They appoint the APR Panel, look after the funding, discuss the country reports, apply the peer pressure and transmit the reports to the relevant AU structures.
APR Panel
This can be considered as the management or the executive of the APRM that directs and manages its operations . They are ‘appointed to oversee the review process to ensure the integrity of the process, to consider review reports and to make recommendations to the APR Forum’ . According to the base document, and repeated in the Organisation and Processes document, its precise mission and duties however are supposed to be outlined in a Charter, which will also spell out reporting arrangements to the APR Forum . However, more than three years after the installation of the Panel, this Charter has still not been written.The panel consists of 7 eminent persons of ‘high moral stature and demonstrated commitment to the ideals of Pan Africanism’ who, moreover, have ‘expertise in the areas of political governance, macro-economic management, public financial management and corporate governance
Corporate governance
Corporate governance is a number of processes, customs, policies, laws, and institutions which have impact on the way a company is controlled...
’ . Its composition should also reflect a regional, gender and cultural balance . The panel members are nominated by the participating countries, short listed by a Committee of Ministers, appointed by the APR Forum and serve for up to four years (five for the chairman) .
Each country to be reviewed is assigned to one of the seven eminent persons, who consider and review reports, and make recommendations to the APR Forum. As of July 2006, the seven ‘eminent persons’ were: Marie Angelique Savane (Senegal), Chairperson; Adebayo Adedeji (Nigeria); Bethuel Kiplagat (Kenya); Graça Machel (Mozambique); Mohammed Babes (Algeria, replacing the original Algerian appointee, Mourad Medelci); Dorothy Njeuma (Cameroon); and Chris Stals (South Africa).
APR Secretariat
The Secretariat provides ‘the secretarial, technical, coordinating and administrative support services for the APRM’. It is ‘supervised directly by the Chairperson of the APR Panel at the policy level and in the day-to-day management and administration by an Executive Officer’. The Secretariat is based in Midrand, South Africa, not far from the NEPAD secretariat.APR Country Review Team
They are appointed by the APR Panel, one of whose members heads the team, and are ‘constituted only for the period of the country review visit’. Their composition is ‘carefully designed to enable an integrated, balanced, technically competent and parofessional assessment of the reviewed country’.APR focal point
This is a national mechanism set up by a participating country in order to play a communication and co-ordination role. It should serve, as Ayesha Kajee puts it, ‘as the liaison between national structures and continental ones such as the APR Secretariat and the APR Panel’. It should also, in conjunction with the National Co-ordinating mechanism, ‘develop, co-ordinate and implement the in-country mechanisms of preparing for peer review and hosting the country review team during the review visit’. The precise form of the Focal point is left to the country's discretion, but according to the APR Forum, it ‘should be at Ministerial level or a High-Level Official reporting directly to the Head of State or Government and with access to all national stakeholders’.National co-ordinating structure
Here the actual implementation of the APRM at the national level happens. The country's self-assessment happens here by conducting, as the MOU mandates, ‘broad-based and all-inclusive’ consultation of key stakeholders in the public and private sectors. In addition, together with the Focal point it should ‘develop, co-ordinate and implement the in-country mechanisms of preparing for peer review and hosting the country review team during the review visit’. As with the Focal point, countries have a discretion as to how this is implemented.Preliminary phase or ‘Support Mission’
The country support mission primary purpose is to ‘ensure a common understanding of the philosophy, rules and processes of the APRM’ and to help countries who need support with ‘aspects of the national processes’. The Guidelines further specify what the latter might mean, namely help with ‘institutional and organizational arrangements for involving major stakeholders’ in the review process, with the development of a realistic Programme of Action and with expertise not readily available in the country . In order to do this they will meet with the authorities in the country responsible for the APR process (the APR Focal Point) and with representatives of all the major stakeholders.Stage one
The first stage is preparatory for both the APR Secretariat and the national authorities. The country in question has to answer a detailed questionnaire, on the basis of which a self-assessment is completed. The APRM Secretariat for its part will make a background study of the country's governanceGovernance
Governance is the act of governing. It relates to decisions that define expectations, grant power, or verify performance. It consists of either a separate process or part of management or leadership processes...
and development
Economic development
Economic development generally refers to the sustained, concerted actions of policymakers and communities that promote the standard of living and economic health of a specific area...
. After this has been shared with the country concerned and other partner institutions and after the self-assessment has been made, the country in question will issue a draft Programme of Action . In the development of this Programme that participation of all stakeholders must be ensured, ‘including trade unions, women, youth, civil society
Civil society
Civil society is composed of the totality of many voluntary social relationships, civic and social organizations, and institutions that form the basis of a functioning society, as distinct from the force-backed structures of a state , the commercial institutions of the market, and private criminal...
, private sector, rural communities and professional associations’ . In the Programme it will suggest a time-bound framework for implementing the Declaration on Democracy, Political, Economic and Corporate Governance
Governance
Governance is the act of governing. It relates to decisions that define expectations, grant power, or verify performance. It consists of either a separate process or part of management or leadership processes...
. After the Programme of Action and questionnaire have been submitted to the APR Secretariat, the Secretariat will draw up an Issues Paper. It is possible that on the basis of this paper the Secretariat will decide that certain issues need a more in-depth assessment (‘Technical assessments’) before that stage two is initiated. If there are Technical Assessments, these can lead to the update of the Issues Paper and possibly the Programme of Action . The APRM Secretariat also makes a suggestion to the APR Panel regarding the composition of the Country Review team.
Stage two
In the second stage the review team will visit the country and ‘carry out the widest possible range of consultations with the governmentGovernment
Government refers to the legislators, administrators, and arbitrators in the administrative bureaucracy who control a state at a given time, and to the system of government by which they are organized...
, officials, political parties, parliamentarians and representatives of civil society
Civil society
Civil society is composed of the totality of many voluntary social relationships, civic and social organizations, and institutions that form the basis of a functioning society, as distinct from the force-backed structures of a state , the commercial institutions of the market, and private criminal...
organizations (including the media
Mass media
Mass media refers collectively to all media technologies which are intended to reach a large audience via mass communication. Broadcast media transmit their information electronically and comprise of television, film and radio, movies, CDs, DVDs and some other gadgets like cameras or video consoles...
, academia
Academia
Academia is the community of students and scholars engaged in higher education and research.-Etymology:The word comes from the akademeia in ancient Greece. Outside the city walls of Athens, the gymnasium was made famous by Plato as a center of learning...
, trade unions, business
Business
A business is an organization engaged in the trade of goods, services, or both to consumers. Businesses are predominant in capitalist economies, where most of them are privately owned and administered to earn profit to increase the wealth of their owners. Businesses may also be not-for-profit...
, professional bodies)’.
Stage three
In the third stage the draft report is compiled. This report is based on the findings of the review team during their visit, the background research the APR Secretariat has made and on the Issues paper compiled by the APR Secretariat. The draft is then discussed with the government concerned. These discussions are meant ‘to ensure the accuracy of the report and to provide the Government with an opportunity both to react to the APR Team's findings and to put forward its own views on how the identified shortcomings may be addressed’. The report is supposed to evaluate a country's performance by taking into account the commitments made in the draft Programme of Action. It will also state what the remaining weaknesses are and recommend further action for the final Programme of Action.Stage four
The review team's report and the final Programme of Action compiled by the GovernmentGovernment
Government refers to the legislators, administrators, and arbitrators in the administrative bureaucracy who control a state at a given time, and to the system of government by which they are organized...
, is sent to the APR Secretariat and the APR Panel. Then the report is submitted to the APR Forum of participating heads of state and government for consideration and formulation of actions deemed necessary .
It is at this stage that the actual ‘peer pressure’ is applied if necessary. Here the full quotation of the APRM base document (par. 24) is in its place: "If the Government of the country in question shows a demonstrable will to rectify the identified shortcomings, then it will be incumbent upon participating Governments to provide what assistance they can, as well as to urge donor governments and agencies also to come to the assistance of the country reviewed. However, if the necessary political will is not forthcoming from the Government, the participating states should first do everything practicable to engage it in constructive dialogue, offering in the process technical and other appropriate assistance. If dialogue proves unavailing, the participating Heads of State and Government may wish to put the Government on notice of their collective intention to proceed with appropriate measures by a given date. The interval should concentrate the mind of the Government and provide a further opportunity for addressing the identified shortcomings under a process of constructive dialogue. All considered, such measures should always be utilized as a last resort."
Stage five
According the paragraph 25 of the base document the report ‘should be formally and publicly tabled in key regional and sub-regional structures such as the Pan-African Parliament, the African Commission on Human and Peoples’ Rights, the […] Peace and Security Council (PSC) [inaugurated in May 2004], and the Economic, Social and Cultural Council (ECOSOCC) of the African Union.’. This is when the report will be publicly available.After the review
A country is then supposed to implement its Programme of Action. Implicit in the whole APRM formula is that foreign donors would kick in here and bear some, if not a large part, of the cost connected to the implementation of this plan of action that is supposed to improve the identified shortcomings in governanceGovernance
Governance is the act of governing. It relates to decisions that define expectations, grant power, or verify performance. It consists of either a separate process or part of management or leadership processes...
. After this base review is concluded, a periodic review should follow every two to four years.
Funding
The APRM is primarily funded by contributions from participating countries, and funds from "development partners" such as CanadaCanada
Canada is a North American country consisting of ten provinces and three territories. Located in the northern part of the continent, it extends from the Atlantic Ocean in the east to the Pacific Ocean in the west, and northward into the Arctic Ocean...
, the United Kingdom
United Kingdom
The United Kingdom of Great Britain and Northern IrelandIn the United Kingdom and Dependencies, other languages have been officially recognised as legitimate autochthonous languages under the European Charter for Regional or Minority Languages...
and the UNDP. The APRM reported contributions of some US$17.3 million in 2007, with US$10.5 million coming from development partners. Unsurprisingly, many member states failed to meet the minimum contribution of $100,000.
APRM documents
- APRM Base document The APRM base document
- Memorandum of Understanding on the APRM The Memorandum of Understanding (MOU)
- Guidelines Guidelines for Countries to prepare for and participate in the APRM
- Organisation and Processes Organisation and Processes
- The objectives, standards, criteria and indicators for the APRM Accessed on May 27, 2006.
Critiques and studies of the APRM process
- An Analysis of the Implementation of the African Peer Review Mechanism in Ghana, Kenya and Mauritius Grant Masterson, EISA, February 2005
- NEPAD’s APRM: A Progress Report, Practical Limitations and Challenges Paper by Ayesha Kajee on the APRM, 2004, accessed on May 27, 2006.
- Becoming my brother's keeper eAfrica October 2003 by Ross Herbert, accessed on May 27, 2006.
- The APRM process in Kenya: A pathway to a new state? Report by OSIEA/AfriMAP, April 2007
- Critical review of the African Peer Review Mechanism Process in Rwanda Report by Ligue des Droits de la Personne dans la Région des Grands Lacs (LDGL), January 2007
- Between Hope and Scepticism: Civil Society and the African Peer Review Mechanism Partnership Africa Canada, October 2005
- Strategies for promoting effective stakeholder participation in the African Peer Review Mechanism, UNECA, 2005
- Inadequately Self-Critical: Rwanda’s Self-Assessment for the African Peer Review Mechanism Eduard Jordaan, African Affairs, April 2006
- Effective Stakeholder Participation. in the APRM Process for the Promotion. of Democratic Governance:. A Case Study of Ghana, Eric Opoku, UNDP, December 2006
- Ghana and the APRM: A Critical Assessment, Adotey Bing-Pappoe, AfriMAP & OSIWA, June 2007
- The African Peer Review Mechanism in Mauritius: Lessons from Phase I Sheila Bunwaree, AfriMAP & OSISA, August 2007
- Further analysis of the African Peer Review Mechanism and the ECA/OECD-DAC Mutual Review of Development Effectiveness in the context of NEPAD Report to the UN High Level Task Force on the Implementation of the Right to Development, January 2008
- The African Peer Review Mechanism: Lessons from the Pioneers, Ross Herbert and Steven Gruzd, South African Institute of International Affairs, March 2008
- Civil Society Participation in Uganda’s APRM Process Juliet Nakato Odoi, SAIIA, June 2008
- Assessing South Africa’s APRM: An NGO Perspective, Nick Hutchings, Mukelani Dimba, and Alison Tilley, SAIIA, June 2008
- Addressing the African Peer Review Mechanism's Programmes of Action, Faten Aggad, SAIIA, June 2008
- Understanding APRM Research: Planning, Process and Politics. A Practical Handbook for Peer Review Research, George Katito, SAIIA, June 2008
- The African Peer Review Process in Nigeria, Adele Jinadu, AfriMAP, August 2008
- Benin and the African Peer Review Mechanism: Consolidating Democratic Achievements Gilles Badet, AfriMAP, August 2008
- Making the News: Why the APRM Didn't, Brendan Boyle, SAIIA, September 2008
- Media Freedom, Transparency and Governance, Raymond Louw, SAIIA, September 2008
External links
- APRM official website
- AfriMAP The Africa Governance Monitoring and Advocacy Project of the Open Society Institute has a news archive of stories relevant to the APRM and has published reviews of the APRM process in different countries.
- South African Institute of International Affairs project on the APRM and Governance. Includes links to the original APRM Toolkit, with many useful documents and analyses of the peer review and governance in Africa.
- UNECA and the APRM UN Economic Commission for Africa webpage on the APRM
- Institute of Security Studies webpage of NEPAD and APRM documents
- Electoral Institute of Southern Africa webpage on APRM including toolkit for civil society
- Partnership Africa Canada webpage on APRM including background documents for civil society