THE 6 TH CONFERENCE OF AFRICAN MINISTERS FOR PUBLIC/CIVIL SERVICE REPORT ON POST-CONFLICT RECONSTRUCTION AND DEVELOPMENT JOHANNESBURG, SOUTH AFRICA 13 15 OCTOBER 2008 1
INTRODUCTION 1. Many African countries are emerging from the ravages of wars that have shuttered public service and many other governance systems in these countries. Urgent interventions are needed in these countries to rebuild the capacity of public service and administration to ensure sustainable development that in turn, is a basic requirement for peace and security. 2. Post-Conflict Reconstruction and Development (PCRD) is one of the key strategies of the 2005 Addis Ababa Declaration. The programme of the Pan- African Ministers for Public/Civil Service is also informed by the reality that postconflict interventions in the past were predominantly peace building and keeping in approach. The new approach seeks to mainstream the rebuilding and strengthening of public service and administration systems in post-conflict initiatives on the continent. 3. The following report provides background information on public service and administration PCRD initiatives, on the incorporation of this thematic area into the agenda of the Conference of Ministers. It justifies public service and administration intervention in post-conflict initiatives and it also chronicles strategic objectives as they emerged in PCRD work since the Addis Declaration. BACKGROUND INFORMATION 4. The Pan-African Conference of Ministers for Public Service and Administration has prioritized Post-Conflict Reconstruction and Development since 1996. In that year, a regional conference on administration development was held in Windhoek in Namibia, with the aim to modernizing post-conflict public services. Pan-African Ministers took their cue from the United Nations General Assembly on Post-Conflict Reconstruction and Development and former United Nations Secretary General Boutros-Boutros Ghali s An Agenda for Peace in 1992. This agenda addressed the matter of Post-Conflict Reconstruction (UN Secretariat, 1992). The Ministers used this agenda as a guide and subscribed to the idea that, in the 21 st century, the needs of a post-conflict country should proceed in the direction that ensures social justice, economic development, access to quality services, decentralized administrations as well as human rights and responsibilities. 5. In order to provide added momentum to PCRD mandates of the programme of Ministers, the Ministerial Bureau requested the establishment of the PCRD Thematic Area. Burundi was nominated to champion this thematic area. Burundi is considered an ideal choice given the acute post-conflict challenges with which it has had to grapple. The Programme of Ministers focused on Burundi as a case study from which to learn and develop guidelines that would be beneficial to postconflict initiatives in Africa. The Burundi case demonstrated the importance of focusing attention on matters relating to Public Service and reinforcement of the overall theme of building the capabilities of the African state for effective service delivery. The concern expressed by Burundi was that as a country emerging from conflict it had multiple priority challenges to address and was in no position as such to contribute financially to the implementation of the Ministers PCRD 2
Initiative. As Chair of the Pan-African Conference of Ministers, South Africa assured Burundi that essential support would be mobilized. 6. GTZ was requested to partner with Burundi and this provided kick-start resources for PCRD work in Burundi. It was also agreed that GTZ would provide technical assistance where this was appropriate. A PCRD programme was drafted using the UNDP and DPSA partnership experience. CONTEXTUAL FRAMEWORK 7. The African Union put significant effort into negotiations for peaceful resolution of conflicts and effective implementation of peace agreements in Member States, i.e. Burundi, Central African Republic (CAR), the Comoros, Côte d Ivoire, the Democratic Republic of Congo (DRC), Liberia, Sudan and Somalia. As a result, there has been a steady decline in the number of conflicts on the continent. The progress made in terms of cessation of conflicts suggests that Africa s future depends increasingly on the existence of effective implementation of Post- Conflict Reconstruction and Development (PCRD) programmes. 8. The Ministers Programme is currently facilitating the integration of post-conflict reconstruction and development into the broader development agenda of the continent. This reality calls for focused attention on measures that consolidate peace and pave the way for growth and regeneration. In the absence of a clear strategic framework that can act as a reference point, countries emerging from conflict have struggled to stabilize and manage the involvement of myriad actors each pursuing their own interests, agendas and priorities. The draft African Union PCRD framework provides a definition for Post-Conflict Reconstruction and Development from which the African Union could depart. Through the AU s PCRD Strategy and its specific identification of political governance and transition there is an opportunity to develop strategies and interventions that focus specifically on state building and reconstruction. 9. The need for state building and reconstruction is significant since, in the past, governance matters have received very little attention within post-conflict reconstruction and development initiatives. The African Union s ad hoc experience in this area has highlighted the need to address PCRD as part of a holistic process, with activities ranging from early warning, to conflict prevention, management and resolution, peace support operations, reconciliation, reconstruction, and beyond. This has given impetus to the crafting of the framework for a Public Service and Administration Post-Conflict Reconstruction and Development Programme in the Pan-African Conference of Ministers. 10. Public Service PCRD has also affirmed the requirement to develop the capacity of the state in Africa. This is necessary for delivery on continental public service and administration imperatives. 3
STRATEGIC PCRD INITIATIVES 11. Strategic and Normative Imperative: At the 5 th Pan-African Ministers Conference held in December 2005, African Ministers for Public/Civil Service undertook to share experiences with post-conflict countries with a view to help them reconstruct public/civil service systems and reinvigorate public service institutions. The Programme of Ministers underscored the need to develop a comprehensive framework to guide Member States in their engagement with post-conflict countries. This is work in progress. 12. Lessons Learnt Approach: Experiences from past PCRD efforts on the continent have indicated several weaknesses at all levels, ranging from the conceptual to the strategic and operational. For instance, most reconstruction models have been borrowed from outside the continent, with limited, if any, involvement of the affected countries/areas or their populations. Most models have focused on some aspects of PCRD, the most favoured being disarmament, demobilization and/or reintegration (DDR). The PCRD framework in progress will be informed by lessons learnt from favoured approaches as well as the best practices on the continent and elsewhere. It is envisaged that this information will offer a road map towards sustainable peace and development. Through regional workshops, conferences and study tours, PCRD countries would be afforded the opportunity to exchange and share experiences on Post-Conflict Reconstruction and Development. 13. Consolidation of Peace Goal: Across the continent, countries emerging from conflicts are under immense pressure to deliver visible peace dividends immediately after the end of the war. Yet the translation of the commitment to peace into tangible benefits is a process dependent on the formulation of comprehensive strategies that require substantial institutional, human, technical and financial resources, as well as time. The PCRD framework will reduce pressure on affected countries by providing a consistent and coherent strategy that will fast-track planning and implementation of quick-impact programmes and rehabilitation. The framework will also increase the likelihood of the success of long-term development programmes. 14. Improvement of Coherence and Coordination: Experience in Africa indicates that each conflict situation is unique. As such, the process of conflict resolution differs from one situation to the next. Prioritization of reconstruction efforts and activities is always context-based and this requires that the PCRD framework prove adaptable to particular situations in each country. The PCRD framework will address the challenges associated with the lack of or ineffective coordination of PCRD activities and programmes. The PCRD framework will also provide parameters for coherence and coordination of action between state and nonstate actors operating in and from the national, regional and/or international levels. 15. Synergy with the AU PCRD Framework. The Ministers Programme noted the need for greater synergies to be established with the programme of the AU Commission on Peace and Security. It is envisaged that this will strengthen 4
opportunities for relevant partnerships as well as advance the impact of postconflict work on the continent. EMERGING STRATEGIC CONSIDERATIONS 16. African Ministers for Public/Civil Service call for a paradigm shift in order to explore new methodologies that would ensure sustainable public service and administration systems towards peace and security building. It is envisaged that this will also facilitate the establishment of sustainable conditions for development and accelerated growth. In numerous forums since 1996, African Ministers for Public/Civil Service have pronounced the need for accelerated Post- Conflict Public Service and Administration. 17. The Addis Ababa Declaration in December 2005 welcomed the specific developments and efforts of post-conflict countries in Public Service and Administration as well as the AUC post-conflict strategy development process. In this context, the AUC and NEPAD Secretariat were requested to ensure that further attention is focused on the establishment of effective and responsive Public Administration in post-conflict countries. The Ministerial Bureau in April 2006 noted that it is clear that a great deal of effort had been placed on the development of the Joint-Work Programme. It was advised that Member States need to consider taking responsibility for driving implementation based on local experience. 18. A regional conference on administration development was held in Windhoek in Namibia in March 1996. This conference set out steps to be taken in modernizing post-conflict public service. Outcomes of the Windhoek conference will be used to guide and address the needs of post-conflict countries. In the 21 st century, the needs of a post-conflict country proceed in the direction of ensuring social justice, economic development, access to quality services, decentralized administrations and freedom of the media, among others. 19. The causes of conflicts in countries are many and diverse but for the most part these are economic and strategic. Conflicts in Africa are rarely as a result of foreign invasion. Often conflicts are linked to religion, ethnicity, access to public services or politics. Conflicts wreak destruction and sometimes lead to genocide. In reconstructing post-conflict public service, it is imperative to address the inherent weaknesses that are caused by post-conflict situations, e.g. a review of the judiciary and institutionalization of vital frameworks for building state capability. 20. The Bureau observed the need to establish linkages and synergy between the post-conflict work in the Conference of Ministers and the AU Peace and Security Council. It was further noted that PCRD partnerships are critical because issues confronting post-conflict countries are fairly complex and compounded by the challenge of ensuring the safe return of refugees. In this context, Mozambique registered willingness to share its experiences. 5
21. In making the case for an approach that ensures holistic PCRD programmesthe Conference of Ministers emphasized the following key pillars: Public service reconstruction Building the capacity of the State for service delivery - with an emphasis on human resource management and development, skills transference, development of implementation strategies, and capacitation of relevant institutions Macro-organization of the state, including the consolidation of processes and policy mechanisms relating to inter-governmental relations as well as delegation of powers and functions Structures to deliver systems, including IT, finance, human resources, and E-Governance Anti-corruption - with an emphasis on systems, processes, mechanisms, codes of conduct and political will to implement agreements and plans of action CHALLENGES 22. Post-conflict reconstruction is a complex and dynamic process. The answers are often very difficult to ascertain. Its landscape raises fundamental questions about human nature, human rights and responsibilities, reconstruction methodologies, transformation of relationships and institutions of society. It requires tenacity, resources, courage and principled leadership. In the African context, where the challenges of poverty, displacement and globalization are even acute, it requires collective action with bold responses. The challenge is to establish a post-conflict reconstruction and development framework characterized by a good mix of the imperatives listed above. 23. The definition of post conflict remains unresolved, given that in some contexts countries that are considered to be post conflict are still experiencing pockets of conflict. The Sudan is such an example and illustrates that states defined as post-conflict are not homogenous. A similar situation persists in the DRC. 24. Globally, the tendency in post-conflict work has been on building peace and security along with economic reconstruction, development, poverty alleviation and humanitarian services. The challenge is to ensure that state capacity is central to PCRD initiatives. In this context, Public Service becomes a key instrument of reconstruction and development. 25. PCRD needs to review and redefine (where this is necessary) the mandates of Ministries. This has been demonstrated in Burundi and DRC. The challenge in realizing the aspirations of this approach is political will, good plans, essential resources, implementation monitoring, accountability, continuous improvement and documentation. 6