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AFRICAN UNION
UNION AFRICAINE
UNIÃO AFRICANA
Addis Ababa, ETHIOPIA
P. O. Box 3243 Telephone: 011-551 7700 Fax: 011-551 7844
web site : www. africa-union.org
African Union Regional Consultative Meeting for Southern Africa for the
Development of a Common African Position on Humanitarian Effectiveness
to be Submitted to the World Humanitarian Summit,
Istanbul, Turkey 2016
27 – 29 May 2015, Midrand South Africa
CONCEPT NOTE
Common African Position on Humanitarian Effectiveness
Rev2
12/05/2015 11:50:33 am
1.0.
Introduction
Global trends and the rapidly changing humanitarian landscape have impacted variously on
humanitarian response in Africa. The African Union Commission, on basis of Executive Council
Decision EX.CL/Dec.817(XXV), is implementing an inclusive consultative Political Process in
Africa and to reach a Common African Position on a humanitarian system fit for current and
future challenges in preparation for the World Humanitarian Summit.
It will be recalled that at the 68th United Nations General Assembly in September 2013, the
Secretary General of the United Nations, Ban Ki-Moon announced the first ever World
Humanitarian Summit (WHS) to be held in May 2016, in Istanbul, Turkey1.
The World Summit is organized around four thematic areas: Humanitarian Effectiveness;
Transformation through Innovation; Reducing Vulnerability and Managing Risk and Serving the
needs of people in conflict. The summit will take stock of growing humanitarian challenges,
achievements and the changing humanitarian landscape, with a view to strengthening
partnerships in creating a more global, effective, and inclusive humanitarian system; while
building on best practices and ways for more effective humanitarian action2.
2.0.
A Rapidly Changing Global and Regional Landscape
The humanitarian assistance model today continues to be guided by a framework provided in
United Nations General Assembly Res. 46/182, in spite of the fact that, the landscape of
humanitarian action has changed since then
The world in general and the Africa region in particular are faced with an unprecedented and
rapidly changing humanitarian landscape. Growth in the scope and diversity of humanitarian
needs and a more complex operating environment has created new risks. Moreover, the
changing nature of conflicts and patterns of displacement have created complex crises. These
require new ways of humanitarian action particularly in expanding the humanitarian space to
ensure access, enforcement of IHL, use of innovation and technology, creating partnerships and
financing.
Globally, over 100 million people are targeted for assistance. It is projected that affected
population in need of humanitarian assistance and protection will nearly double by 50% from
250million per year to 375million. UN projects, by 2010-2030, world’s population growth will be
in urban areas, of low and medium income countries3. Urban population will peak to 5billion in
2050, from 3.5billion today, 737million in 1950. Africa with 4% urban population in 1950 will
have 15% by 2030. 60 Mega cities are predicted by 2015, with >10million people. This rapid
growth will increase major crises like food insecurity, floods, epidemics, earthquakes4 etc.
Currently, the African region is host to ¾ of the world population of forcibly displaced
populations. Reflected by over 6 million refugees and 11 million IDPs. A number of humanitarian
situations are protracted due to the unending longstanding conflicts. In Africa, displaced persons
grew to 15,100,000 with an increase of more than 500,000 in 20145. Effects of climate change
1
www.worldhumanitariansummit.org;
Concept Note: World Humanitarian Summit 2016, OCHA, September 2013.
3
World Disaster Report, 2010.
4
World Disaster Report, 2010.
5
UNHCR Global Appeal, 2015
2
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are on the increase. Regions of the continent have been ravaged by drought and floods. In the
Sahel, over 20million are food insecure, from 11million in 2013, of which 2.5million need urgent
humanitarian assistance to survive6. In the Horn of Africa over 8million people were affected by
drought and famine in 2013. In the Southern African region over 1 million people were affected
by floods. Epidemics like the recent Ebola outbreaks in West Africa created a new phenomenon
of humanitarian crises that threatened the social, political and economic fabric of Sub-Saharan
African7. The transnational nature of such outbreaks calls for stronger framework for response,
involving all actors including governments.
Patterns of financing are also changing. The cost for humanitarian action has tripled albeit with
a downward trend of financing. Globally, rich countries have made a commitment to spend
0.7% of their national income on aid, yet according to the OECD, just 11% of aid goes to
humanitarian needs, and flows to Africa are even much less8. In most Member States, very little
is allocated to humanitarian issues9. In spite of the deepening and protracted situations, from
2006-2010, only 3% of official humanitarian aid was spent on disaster prevention and
preparedness10.
The evolving landscape has also presented new opportunities. There is a wide range of actors
and networks, and innovations to tap from.
3.0.
Common African Position on Humanitarian Effectiveness
The Constitutive Act of the African Union in its Objectives, Article (3) (d) aims to “…promote and
defend African common positions on issues of interest to the continent and its peoples…” The
50th Anniversary Declaration, in Paragraph (5), The Heads of State and Government, in
emphasizing Africa’s place in world noted that “…our endeavour for Africa is to take her rightful
place in political, security, economic and social systems of global governance towards the
realisation of its renaissance and establishing Africa as a leading continent…”; and further
reiterate “…advance international cooperation that promotes and protects interests, that is
mutually beneficial and aligned to our Pan African Vision…”; further emphasises that Africa
should continue to speak with one voice and act collectively to promote our common interests
and positions in international arena…” The Declaration further reiterates “…Africa’s commitment
to play an active role in the globalisation process and international forums…” and to further have
a common position on the reform of the UN Security Council...”
Accordingly, considering that African humanitarian concerns will be at the centre of Summit, the
Executive Council in Decision Ex.CL/Dec.817 (XXV), while welcoming the announcement by
the UN Secretary General of the first ever humanitarian Summit to be held in Istanbul, Turkey in
May 2016; “…called on the Commission in close collaboration with the PRC Sub-Committee on
Refugees and IDPs to establish a Common African Position that will be presented at the
World Humanitarian Summit…” and to continuously make progress report to the Executive
Council at each Ordinary Summit leading up to the World Humanitarian Summit…”11
6
UNOCHA, Sahel Humanitarian Response Plan 2014-2016
http://www.au.int/en/commission
8
Diversity in Donorship: The changing landscape of official humanitarian aid, Researched, written and published by
the Humanitarian Policy Group at ODI, Adele Harmer and Lin Cotterrell
9
NRC (2014) Policy Analysis of the African Union Institutions and Mechanisms, “Understanding African
Humanitarian Action”
10
Ibid:Diversity in donorship
11
http://www.au.int/en/Executive Council of the African Union/Decision/Ex.CL/Dec.(XXV)
7
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The World Humanitarian Summit comes at a time when the AU is pursuing her own
humanitarian agenda encapsulated in Vision 206312 and Common African Position on post on
2015, which is also at a time when Africa is faced with growing challenges. It is therefore time
for Africa to seize the moment, to not only reaffirm her commitment to dealing with challenges
facing the continent on humanitarian issues on the continent, but to unequivocally bring to the
global agenda her concerns.
In so doing, Africa will not only call for a review and transformation of the global humanitarian
system to bridge existing gaps, but will also seek to lay emphasis on a future humanitarian
architecture that is more relevant, timely, effective, efficient and fit for present and future
challenges.
Africa’s goals on humanitarian issues are well stated13. The AU ideals and Shared values of
Pan-Africanism and Solidarity of States (brother’s keeper) provide a long standing vision and
inspiration. Various Declarations and Decisions that define these ideals and values, will provide
a solid foundation on which the Common African Position on Humanitarian Effectiveness will be
anchored. These include:

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
The Constitutive Act of the African Union
50th Anniversary Declaration
Shared Values
The AU Agenda 2063
It will be further recalled that the AU held it first ever Summit on Refugees, Returnees and IDPs
in Africa in October 2009. The Special Summit adopted three major outcomes, which constitute
AU’s humanitarian Agenda, namely:


The AU Convention for the Protection and Assistance of Internally Displaced Persons in
Africa (Kampala Convention). This is the first legally binding International Instrument for
the protection and assistance of IDPs.
The Kampala Declaration on Refugees, Returnees and Internally Displaced Persons in
Africa. The Solemn Declaration outlines eight strategic areas in the long-term strategy
for addressing the situation of forced displacement
The 52 Comprehensive Recommendations from the Ministers in-charge of Forced
Displacement Matters, as endorsed by the Extraordinary Session of the Executive
Council that preceded the Special Summit.
The strategic vision is to address root causes of conflict and to progressively eliminate forced
displacement on the continent all together, while strengthening mechanisms to mitigate effects
of humanitarian crises resulting from conflict and natural disasters14.
The AU response to humanitarian issues has been resolute and actionable. This has included
establishment of High Level Mechanisms and strengthening of normative frameworks and new
12
AGENDA 2063: A Shared Strategic Framework for Inclusive Growth and Sustainable
Decision EX.CL/Dec.558 (XVII) &EX. CL/591 (XVII)-Plan of Action on Refugees, Returnees and IDPs in Africa (2009)
14
Executive Council Decision EX.CL/591(XVII)
13
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ways of conflict prevention, resolution and peace building, through the Peace and Security
Architecture15, and the African Governance Architecture.
In addition, the AU has undertaken commitments in various International Agenda. These
commitments will constitute important milestones in the formulation of CAP on humanitarian
effectiveness. These include:



4.0.
The Common African Positions on post 2015 Agenda16,
Common African and Post-2015 Disaster Risk Reduction (DRR) Framework17,
The Ezulwini Consensus18, of 8 March 2005, Executive Council Decision Ext/EX.CL/2
(VII), adopted a Common African Position on the Proposed Reform of the United Nations
by a high panel of ten. Since then, Africa has continued to call for UN reform including
the humanitarian system to make it more effective.
Implementation Structure
Overall, the implementation structure is intended to:
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To provide guidance on the development of the Common African Position involving the
Commission, Member States, partners and segments of African society,
Stimulate discussion on issues of concern to Africa to be presented at the World
Humanitarian Summit,
Outline the approach and roadmap for African Union consultative process,
Address the issues of diversity, timelines, milestones and outputs, roles and
responsibilities of stakeholders,
Outline common solutions that are adaptable to the specifics of the local situation in
Africa,
To propose strategies that allow for context-specific response in an increasingly
interconnected world,
Explore mitigation measures for cross-border risks and challenges that affect Member
States and is often interrelated and can exacerbate the impact of crisis.
The implementation structure comprises the following:

Champion/Special Envoy

Conference of Ministers

AU Commission

Member State Regional Consultative Meetings

High-Level Advisory Group (HAG)

Technical Advisory Group (TAG).
5.0.
Objectives of Regional Consultations
The purpose of the AU consultative meetings is to stimulate discussion among Member States
on the emerging issues concerning the global and regional humanitarian landscape, in so doing
15
http://www.au.int/en/commission
http://www.uneca.org/sites/default/files/uploaded-documents/Macroeconomy/post2015/cap-post2015_en.pdf
17
http://climate-l.iisd.org/news/african-countries-adopt-common-position-on-post-2015-drr-framework/
18
http://www.africa-union.org/News_Events/Calendar_of_Events/7th extra ordi...
16
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undertake a “Political Process” for reform to strengthen the humanitarian system. The
outcomes of regional consultations will be consolidated into a Common Africa Position to be
presented at the World Humanitarian Summit in Istanbul, Turkey 2016.
Africa’s narrative in shaping a new humanitarian agenda in a globalized and rapidly changing
humanitarian landscape grounded and anchored on AU’s vision as articulated in various
documents. Notably, the Constitutive Act of the African Union19; the 50th Anniversary Solemn
Declaration of 201320; Shared Values, the Kampala Declaration and Plan of Action21 which aims
to address rootcauses and progressively eliminate forced displacement on the continent, as well
as AU Commitments in post 2015 Agenda and Post Hyogo Framework.
Regional consultations therefore seek to provide an opportunity for Africa to once again focus
on shaping a future humanitarian system that responds to Africa’s needs. The consultations will
give rise to discussions amongst Member States and Regional Economic Communities and
Member States on emerging issues within the global and regional humanitarian landscape. The
Regional consultations will give a chance to Africa in strengthening and provide greater
cooperation in shaping a future humanitarian system that is rooted in Shared Values22 in Africa
that put humanity at the centre, while being more relevant, inclusive and fit for Africa in the
present and future challenges.
The table below is an aggregation of the Shared values at individual, state or regional level23:
Table 1: Shared Values
At the Individual Level
-
At the State or Regional
Basic rights to life, identity and opportunity
Solidarity with each other in times of joy and
in times of sadness
Justice
Equality of persons (gender, race, sex etc.)
Community Spiritedness
Self determination
- Sovereignty and interdependence of
States
- Adherence to rule of law
- Care for the weakest
- Justice
- Law and order
- Solidarity of States (Brother’s Keeper)
- Stability of environment
- Security
Source: AU Discussion Paper on Shared Values, 2010
The AU political process further aims to ensure that Africa’s voice, is heard in shaping a new
global architecture for humanitarian action. The Common African Position will reflect its past
experiences, present and future challenges as well as the experiences of affected people
especially women and children.
More specifically, Regional Consultations will seek:
19
The Constitutive Act of the African Union
st
Adopted at the 21 Ordinary Session of the Assembly, 26 May 2013
21
Adopted during the AU Special Summit on Refugees, Returnees and IDPs held in October 2009
22
th
The 14 Session of the Assembly of the African Union endorsed Executive Council Decision EX.CL/Dec.525 (XVI),
th
as a focus of the 16 Ordinary Session of the Assembly January 2011
23
Discussion Paper, “Towards Greater unity and integration Through Shared Values”2010.
20
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6.0.
To emphasize the central role of States in creating requisite humanitarian space and
access that guarantees effective protection and assistance, while reaffirming their
commitment to humanitarian principles.
To further facilitate collective renewal of Africa’s values of hospitality and solidarity, in
finding own solutions to Africa’s problems.
To provide a platform for re-examining the prevailing global and regional humanitarian
architecture, providing suggestions on how the two mechanisms can work better in
addressing humanitarian crises.
To further provide space for re-examining means and ways of enhancing civil-military
coordination and High mechanisms in conflict resolution and peace-building, as well as
the central role of affected and host communities, including in review of the framework
for humanitarian governance, especially in adherence to international humanitarian
standards and shaping of humanitarianism in Africa.
Guiding Framework
Africa’s emerging governance and humanitarian agenda will be an overarching doctrine. The
Common African Position will be derived and guided by various African Union Normative and
existing Policy Frameworks, and Declarations such as:
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7.0.
The Constitutive Act of the African Union
AU 50th Anniversary Solemn Declaration of Adopted by 21st Session of GA, 26 May 2013
2009 Kampala Declaration and Plan of Action
African Union Agenda 2063
Common Africa Position on Post 2015 Development Agenda
The 1969 OAU Convention Governing Specific Aspects of Refugees in Africa
AU Convention for the Protection and Assistance of IDPs Africa
Shared Values
- African Governance Architecture
- African Union Peace and Security Architecture
- African Humanitarian Policy and Disaster Management Policy Frameworks.
Expected Outputs/Outcomes of the Regional Consultations
The World Humanitarian Summit comes at a time when Africa is faced with growing
humanitarian challenges. Africa though the Common position, will seize the moment, to not only
reaffirm her leadership role on humanitarian issues on the continent, but to unequivocally bring
to the global agenda her concerns. In so doing, Africa will not only call for a review and
transformation of the global humanitarian system to bridge existing gaps, but will also seek to
lay emphasis on a future humanitarian architecture that is more relevant, timely, effective,
efficient and fit for future challenges.
The AU Regional consultations envisage an inclusive dialogue among Member States and
Regional Economic Organizations on a broad range of issues constituting Africa’s humanitarian
agenda. The reinvigorated debate on global and Africa’s humanitarian challenges will generate
a forwarding looking agenda that will shape the future of humanitarian action.
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Regional consultations are envisioned to pursue a multi-track approach to create space for
wider participation and consultation among Member States. To ensure sustained political
support at all levels, consultations will seek to be participatory at the level of regional bodies and
national institutions, with a focus on common solutions that are adaptable to the specifics of the
national situation in Africa in response to an increasingly interconnected world. The
consultations will provide opportunity for enumeration of mitigation measures for cross-border
risks and challenges that affect Member States and is often interrelated and can exacerbate the
impact of crisis.
8.0.
Participation
The regional consultative meetings will be attended by Representatives from Regional
Economic Communities and Member State Senior Officials dealing with Humanitarian and
Forced Displacement issues.
9.0.
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Working Documents
Background Paper on Common African Position on Humanitarian Effectiveness
Constitutive Act of the African Union
50th Anniversary Solemn Declaration
Shared Values
The AU Agenda 2063
The 2009 Kampala Declaration and Plan of Action
The Common African Position on post 2015 Agenda
The Common African on Post-2015 Disaster Risk Reduction (DRR) Framework
The Ezulwini Consensus, of 8 March 2005, Executive Council Decision Ext/EX.CL/2
(VII), adopted a Common African Position on the Proposed Reform of the UN.
The OAU Convention Governing the Specific Aspects of Refugee Problems in Africa;
The AU Convention for the Protection and Assistance of Internally Displaced Persons in
Africa (Kampala Convention).
The African Charter on Human and Peoples' Rights;
The Protocol to the African Charter on the establishment of an African Court on Human
and People’s Rights
African Charter on Human and Peoples’ Rights (1981/1986) etc.
References

World Humanitarian Summit Concept Note, UNOCHA

Displacement in Africa, IDMC Report
Dates and venue: 27 – 29 May 2015, Midrand South Africa
Further Information
Ms. Rita Amukhobu
African Union Commission, Political Affairs Department, P o Box 3243, Addis Ababa, Ethiopia,
Tel. + (251) 11 551 7700, + (251) 11 551 7844. [email protected]
Renny Mike Wafula (Consultant)
African Union Commission, Political Affairs Department, Mob :+( 251)938484669:
[email protected] .
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