LESSONS FROM THE IMPLEMENTATION OF
THE APRM NATIONAL PROGRAMMES OF
ACTION
Afeikhena Jerome
Governance Assessment for Accountable Politics
Windhoek, Namibia
13-Jul-17
2 to 5 November 2009
1
Overview of the APRM
Africa entered the new millennium with optimism and a commonly
derived and broadly supported roadmap of how to overcome the
development challenges of the last decades that were
exacerbated by a range of factors including conflict, institutional
decay, leadership and managerial deficit, endemic corruption and
economic mismanagement.
Overview
The Africa’s agenda for renewal and overcoming these
development deficits includes advancing the basic values of
democratization and good governance, which together constitute
the key requirements for sustainable development.
The APRM which is turning out to be the most innovative aspect
of NEPAD is a self-monitoring instrument voluntarily agreed to by
member states of the African Union.
2
Overview of the APRM
Overview
Its primary purpose is:
“To foster the adoption of policies, standards and practices that
lead to political stability, high economic growth, sustainable
development and accelerated sub-regional and continental
economic integration through sharing of experiences and
reinforcement of successful and best practice, including
identifying deficiencies and assessing the needs of capacity
building.”
It is unprecedented in scope and mandate, even compared to
the OECD that invented modern Peer Review. It covers four
broad areas, namely;
Democracy and Political Governance;
Economic Governance and Management;
Corporate Governance; and
Socio-Economic Development.
3
APRM Principles
Overview
National ownership and leadership by the participating
country are essential factors underpinning the APRM
process.
It is designed to be open and participatory. The core
guiding principles are transparency, accountability,
technical competence, credibility and it should be free
from manipulation.
The APRM is not a score-card exercise, meant to exclude
or punish countries. There is no conditionality attached to
the mechanism.
4
African Countries Participating
in NEPAD and the APRM
APR Forum
HSGIC
Burkina Faso
Tunisia
Libya
Botswana
Algeria
Angola
Republic of
Cameroon
Congo
Egypt
Ethiopia
Ghana
Gabon
Kenya
Mali
Mauritius
Nigeria
Mozambique
Rwanda
Sao Tome
&Principe
Senegal
South Africa
Benin
Djibouti
Lesotho
Malawi
Sierra Leone
Sudan
Tanzania
Uganda
Zambia
5
The APR Processes

Stage One comprises: the establishment of the national focal point;
sending out of the questionnaire by the APR Secretariat; the
development of the country’s self assessment based on the
questionnaire and preliminary Programme of Action; and the
submission of these to the APR Secretariat. At this stage the
Secretariat also prepares a Background Paper on the Country for
comparison with the self assessment.

Stage Two the country review team visits the country to undertake
wide consultations with stakeholders.

Stage Three is the drafting of the report by the country review team.

Stage Four is the submission of the Country Review Team’s report to
the APR Secretariat and the APR Panel and Review by the Forum

Stage Five which is the final stage of the APR process involves
making public the country’s report and related actions.
6
Stages of the APRM
Stage 1
Stage 2
Stage 3
Stage 4 Stage 5
6 to 9 Mths
2. APR Secretariat
Develops a background
paper on country
Country
Support
Mission
1. APR Secretariat
sends a questionnaire
to be country to be
reviewed
Country establishes
APR Focal Point
2C3.Country
submits to the
Secretariat the
responses to the
questionnaire and
its PoA
3. APR Secretariat
develops an Issues
Paper based on the
background paper, the
responses to the
Questionnaire & the
draft PoA.
The issues paper may
identify issues that
require more in-depth
analysis through
Technical
Assessments (TA)
If issues for TA:
2C1. In response, the
Country undertakes the
self-assessment
on the basis of the
Questionnaire
= Country level processes
2C2. Country
formulates a draft
Programme-ofAction (POA)
If no issues for
TA:
4. APR Secretariat
arranges for
Partner
Institutions to
conduct Technical
Assessments on
specific issues
identified in Issues
Paper.
Reports are
submitted to the
APR Secretariat
and the country
under review
5. The APR
Secretariat
updates
Issues Paper
taking into
account the
findings of the
Technical
Assessments
5C. Country
submits (if
necessary) an
update of its
draft PoA
C
O
U
N
T
R
Y
V
I
S
I
T
C
O
U
N
T
R
Y
R
E
P
O
R
T
A
P
R
A
P
R
P
A
N
E
L
F
O
R
U
M
Country
submits
final PoA
adjusted
on basis of
CRV and
draft
Country
Report
7
Operational Structure of the APRM



The overall responsibility of the APRM is vested in the Committee
of Participating Heads of State and Government of the Member
States of the APRM (APRM Forum].
A Panel of Eminent Persons [APRM Panel] appointed by the Heads
of States oversees the conduct of the APRM process and ensures
its integrity.
The APR Secretariat provides the secretarial, technical,
coordinating and administrative support services for the APRM.
8
Structures of the APRM
APR Forum
National
APRM Focal Point
National APRM Commission
APR Panel
TRIs
APR Secretariat
Strategic Partner Institutions
Continental Level
National APRM Secretariat
Country Level
9
Structures to manage the
process at country level
A National Commission with broad stakeholder
representation should ideally be in place to interact
with the support mission team.
A trend seems to emerge that includes a Focal Point
and Governing Council supported by a Secretariat
as well as Technical Research Institutes.
While uniformity may not be easy to achieve based on
the contexts of countries, national ownership and
broad-based stakeholder representation are key
features required for these institutions.
10
APRM Master Questionnaire
Democracy and Good Political
Governance (9 Objectives)
Economic Governance and
Management (5 Objectives)
Corporate Governance
(5 Objectives)
Socio-Economic Governance
(6 Objectives)
30 International instruments and
Standards/ 16 Regional instruments
and Standards
15 Standards and codes
9 Standards and codes
10 Standards and codes
1. Prevent and reduce intra- and
inter-country conflicts.
1. Promote macroeconomic
policies that support
sustainable development
1. Promote an enabling
environment and effective
regulatory framework for
economic activities
1. Promote self-reliance in
development and build
capacity for self-sustaining
development
2. Constitutional democracy,
including periodic political
competition and opportunity for
choice, the rule of law, a Bill of
Rights and supremacy of the
Constitution.
2. Implement sound,
transparent and predictable
government economic
policies
2. Ensure that corporations act
as good corporate citizens with
regards to human rights, social
responsibility and
environmental sustainability
2. Accelerate socio-economic
development to achieve
sustainable development and
poverty eradication
3. Promotion and protection of
economic, social and cultural rights,
civil and political rights as enshrined
in African and international human
rights instruments
3. Promote sound public
finance management
3. Promote adoption of codes
of good business ethics in
achieving the objectives of the
corporation
3. Strengthen policies, delivery
mechanisms and outcomes in
key social areas including
education and combating
HIV/AIDS and other
communicable diseases
4. Uphold the separation of powers,
including the protection of the
independence of the judiciary and of
an effective parliament
4. Fight corruption and
money laundering
4. Ensure that corporations
treat all their stakeholders
(Shareholders, employees,
communities, suppliers and
customers) in a fair and just
manner
4. Ensuring affordable access
to water, sanitation, energy,
finance (including microfinance), markets, ICT, shelter
and land to all citizens,
especially the rural poor
5. Ensure accountable, efficient
and effective public office holders
and civil servants
5. Accelerate regional
integration by participating
in the harmonization of
monetary, trade and
investment policies
5. Provide for accountability of
corporations, directors and
officers
5. Progress towards gender
equality in all critical areas of
concern, including equal access
to education for girls at all
11
levels
APRM Master Questionnaire
Democracy and Good Political
Governance
6. Fighting corruption in the
political sphere
Economic Governance
and Management
Corporate Governance
Socio-Economic Governance
6. Encourage broad-based
participation in
development by all
stakeholders at all
levels
7. Promotion and protection of the
rights of women
8. Promotion and protection of the
rights of children and young
persons
9. Promotion and protection of the
rights of vulnerable groups
including internally
displaced persons and
refugees
12
Status of Implementation of the
APRM thus Far
Cape Verde’s accession in June 2009
brings to 30 the total number of AU
member countries that have so far
acceded.
Mauritania was suspension on 25 October
2008 for the unconstitutional change of
government following the 6 August 2008
coup that ousted its democratically
elected President
Green – Reviewed Countries
This represents about 76 per cent of the
African population.
Orange –Other Participating Member Countries
Grey – Non-Participating Countries
Red- Suspended Countries
We look forward to the 23 other African
countries joining the fold.
13
APRM Member Countries by
Region
Region
Countries
Central Africa (5)
Cameroon, Gabon, Republic of Congo, Rwanda and São Tomé and Principe
East Africa (5)
Djibouti, Ethiopia, Kenya, Tanzania, Uganda
North Africa (3)
Algeria, Egypt, Sudan
Southern Africa (7)
Angola,
Lesotho,
South Africa, Zambia
West Africa (9)10
Benin, Burkina Faso, Ghana, Mauritania, Mali, Nigeria, Senegal, Sierra Leone, Togo and Cape
Verde
Malawi,
Mauritius,
Mozambique,
14
STATUS OF IMPLEMENTATION

So far, 17 out of the 30 member countries have launched the
process.

Twelve countries have been peer reviewed by the APR Forum.
(Ghana, Rwanda, Kenya, South Africa, Algeria, Benin, Uganda,
Nigeria and Burkina Faso, Mali and Mozambique and Lesotho)

Mauritius and Ethiopia has just completed their Country Review
Missions. Kenya II is scheduled for November 2009.
Tanzania has submitted its CSAR and NPOA to the Secretariat.
Zambia is also slated on the Work Plan for Peer Review this year.

15
APRM Country Review Missions
16
APRM Country Review Missions
17
Examples from the Pioneer
Countries- Ghana
6 Best Practices including:
An oasis of peace and tranquility in a sub-region perpetually in
turmoil.
Unique processes for fostering democracy such as the Annual
Governance Forum and the People’s Assembly;
Main Challenges
Low representation of women in politics; corruption;
decentralisation; and chieftaincy disputes which have been quite
rife in recent year.
Others are – bloated cabinet - 88 ministers in all; weak internal
capacity for economic policy making; weak oversight by
Parliament; and heavy dependence on external aid.
18
Rwanda Review Process
Best Practices including:
The highest proportion of Women in Parliament (49%) in
the in the world; efforts in providing social services
especially free education; and using ICT strategy to
transform the country into a service-based economy.
Main Challenges
Aid dependence - about 90% of the capital expenditure
funded externally;
Relations with its neighbours in the Great Lakes region
which has been a source of conflict; and
the issue of legitimacy and trust in the Gacaca.
19
Kenya Review Process
Overview
Progress So Far
Lessons Learnt
Challenges
9 Best Practices including:
Kenya’s role in pacifying her neighbours; considerable
degree of freedom in exercising political and civil rights;
promotion of decentralisation; reduction in the prevalence
rate of HIV/AIDS; and firing of 29 judges to clean up the
Judiciary.
Main Challenges
Delay in adopting a new constitution to replace the colonial
era charter; inability to redress the colonial legacies;
ethnicity; endemic corruption; weak parliamentary
oversight; poor representation of women in key positions;
and high incidence of poverty.
20
South Africa Review Process
Overview
Progress So Far
Lessons Learnt
Challenges
In addition to some remarkable feats by South Africans, the
report identified 18 Best Practices including:
Taking the parliament to the people; the budget formulation
process, self-reliance in funding development; the JSE and
triple bottom reporting; and gender empowerment (Women
constitute about 45 % of Parliament).
Main Challenges
Violent crime, violence against women and children;
capacity constraint and poor service delivery; Racism and
Xenophobia.
21
The National Programme of
Action
A major deliverable of the Review Process is the NPOA
Real progress can only be guaranteed if NPOAs are
implemented hence for the first time, Forum meeting in
January 2009 was dedicated to progress in implementing
NPOA .
22
The National Programme of
Action
Inter alia, the POA is expected to present among others:

Clear, time-bound commitments on key governance and socioeconomic development priorities over the next three 3 years,
including the identification of key stakeholders for implementation,
and the estimated budgetary implications and allocations;

Description of the national consultations that have taken place in
developing the National Programme of Action;

Outline the feedback mechanism established to keep local
stakeholders involved in the process;

Description of the capacity building and resource mobilization
requirements for undertaking the Programme of Action; and,

Outline the implementation, monitoring and evaluation
mechanisms for the Programme of Action.
23
Budget of the NPOA in Reviewed
Countries
Ghana
Rwanda
Kenya
South Africa
Algeria
Benin
Uganda
Nigeria
Burkina Faso
Democracy and
Political
Governance
118,982,083
(2.4%)
2,235,000 (1.4%)
Economic
Governance and
Management
235,305,000
(4.7%)
20,484,000 (13%)
8,829,000
(0.2%)
R1.003 billion
(7.2%)
2,378,000,000
(40.5%)
586,370,000
(24.8%)
101,930,205
(2.1%)
5 billion
(40%)
413,705,000
(10.5%)
45,772,000
(0.8%)
R1.5335 billion
(11.0%)
936,000,000
(16.0%)
7,340,000
(0.3%)
388,506,686
(8.0%)
4 billion
(25%)
160,060,000
(3.3%)
Corporate
Governance
Socio-Economic
Development
2,684,361,693
(54.7%)
107,750,000
(67%)
4,946,658,000
(91.8. %)
R 0.204 billion
(1.5%)
751,000,000
(12.8%)
1,004,260,000
(42.6%)
324,369,895
(6.7%)
3 billion
(20%)
2,750,390,000
(56.0%)
1,867,150,000
5,000,000,000
(37.3%)
31,269,000 (19%) 161,738,000
387,145,000
(7.2%)
R 11.161 billion
(83.5%)
1,800’000,000
(30.7%)
758,120,000
(32.2%)
4,035,295,788
(83.1%)
8 billion
(15%)
1,583,060,000
(32.3%)
Total
USD
5,388,404,000
R13.9015 billion
5,865,000,000
2,356,090,000
4,857,102, 574
20 billion
4,907,215,000
24
Experience in implementing the
NPOAs

Demonstrable commitment by all countries that have gone
through the review process. They are enthusiastically
implementing the NPOA, in spite of several formidable challenges,
some even before they were peer reviewed;

There are daunting challenges, including the establishment of
appropriate national structures to monitor the NPOA, proper
costing and ensuring that it is not a wish list (need for
prioritization). No format until recently.

Capturing key findings and conclusions of the peer review
processes (overarching issues);

Overlap between the NPOAs and other national initiatives
sometimes, resulting in double costing of interventions. While
NPOAs are not designed to be a substitute to other ongoing
national initiatives such as the PRSPs or National Development
Strategies (NDS), the comparative value added must be captured
and disseminated.
25
Key Challenges
Rrequisite institutional mechanism are lacking in some countries
to take forward the post-review process, since the Governing
Council was disbanded immediately after the peer review
exercise. In others, key stakeholders are not kept informed
about the APRM process after the review process;
The monitoring and evaluation component needs a lot of
development. (Country specific); and,
Perhaps the major challenge is the capacity and resource gaps
which are pervasive; and there is need for additional resources
to support the implementation of the NPOA.
26
CONCLUSION
Conclusion
Key Lessons
The APRM is a unique African instrument that is trialblazing and has great potential as a tool to promote and
strengthen good governance. It is African in origin, African
inspired and African-owned.
The experiences from the APRM implementation process
are very encouraging.
The process has been empowering in ways that were not
envisaged when it started. It has spawned and
strengthening a culture of political dialogue in the countries
.
27
Conclusion
The APRM is making it possible for countries to
benchmark good governance in Africa on shared
African and international norms and standards as well
as for citizens to participate in the evaluation of how
they are governed.
It is show-casing African innovative thinking in
governance.
An area where the rest of the world can learn useful
lessons from Africa.
28
Thank you for your attention
WWW. aprm-international.org
29