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Regional Integration Dynamics in Africa Volume 5 - Issue 4 ecdpm’s July/August 2016 GRATION TRADE REGIONAL INTE AGRICULTURE ECONOMICS GOVERNANCE Regional integration dynamics in Africa WWW.ECDPM.ORG/GREAT In this issue: Discussing the role of finance, institutional relations, infrastructure, civil society and more in regional integration Including contributions from UNECA, ECOWAS, World Bank, CUTS International About GREAT Insights Governance, Regional integration, Economics, Agriculture and Trade (GREAT) Insights is ECDPM’s magazine covering a wide range of topics related to economic Contents development in Africa and the developing world. GREAT Insights gathers expert analysis and commentary from a wide variety of stakeholders with different perspectives. Dynamics GREAT Insights is 4 Regional integration journey in Africa 26 Indigenous business for regional published by ECDPM Stephen Karingi, Director, Regional Integration Editor: dynamics in Africa Sanoussi Bilal and Trade Division, UNECA Okechukwu C. Iheduru, Professor, School of [email protected] Politics and Global Studies, Arizona State Twitter: @SanBilal1 7 Make regional integration in Africa work… University Executive editor: better Pamela O’Hanlon Jan Vanheukelom, Senior Adviser, and Bruce 30 A collaborative platform promoting regional [email protected] Byiers, Senior Policy Officer, ECDPM integration Web editors: Marianne Camerer, Building Bridges Jacques van Laar and 10 Cautious optimism for regional integration Programme Director, University of Cape Town Jacquie Dias in sub-Saharan Africa Design, layout and Paul Brenton, Lead Economist, and Barak production: Claudia Backes, Hoffman, Public Sector Specialist, World [email protected] Sectors Bank HEAD OFFICE 32 Promoting business ‘un’usual for food 13 The diversity of African regionalisms Onze Lieve Vrouweplein 21 security Daniel Bach, Director of Research 6211 HE Maastricht Sean Woolfrey, Policy Officer, ECDPM The Netherlands Emeritus, Emile Durkheim Centre; Tel +31 (0)43 350 29 00 Professor, Sciences Po Bordeaux 35 Railway rivalry in the East African Fax +31 (0)43 350 29 02 Community Brian Cooksey, Independent Researcher BRUSSELS OFFICE External support Rue Archimède 5 1000 Brussels 16 Why aiding regional integration in Africa Belgium does not work Tel +32 (0)2 237 43 10 Fredrik Söderbaum, Professor, School of Fax +32 (0)2 237 43 19 Global Studies, University of Gothenburg ISSN: 2215-0593 (print) 2213-0063 (online) 18 The EU’s new approach to funding For further information regional cooperation or to subscribe to our Alisa Herrero and Cecilia Gregersen, E-newsletters, visit Policy Officers, ECDPM www.ecdpm.org/subscribe. To order a hard copy of an ECDPM publication, Actors Regulars [email protected] 21 New AU-RECs relationship needed for 3 Editorial This publication benefits integration from structural support by ECDPM’s institutional Raheemat Momodu, Head, ECOWAS Liaison 38 Talking Points Blog highlights partners The Netherlands, Office, AU Belgium, Finland, Ireland, 39 Weekly Compass highlights Luxembourg, Portugal, 24 Civil society role in SADC integration: Sweden, Switzerland, Austria a missed opportunity 40 Latest ECDPM publications and Denmark. Chenai Mukumba, Centre Coordinator, and Muntanga Musiwa, Assistant Programme Copyright: Officer, CUTS International Prior permission is not required for quoting, translating or reproducing part of the contents of this publication provided the source is fully acknowledged. Coverphoto: World Bank Managing Director and COO Sri Mulyani Indrawati meets with two Rwandese and two Congolese women to listen to the challenges the small scale women cross border traders are facing. Rwanda. Photo: Simone D. McCourtie / World Bank 2 | GREAT Insights |July/August 2016 Editorial Regional integration holds many promises, generates many their regional partners. Charismatic regional leaders, at the fears, and results in many disappointments. This is because head of their country or of the regional organisations, can levels of ambitions often differ among regional partners and also exercise strong influence. However, in spite of political among domestic actors, and do not match implementation legitimacy and consensus building, even with the formal realities. Progress and achievements are often overlooked, support of strong regional actors, collective decisions taken whereas difficulties and constraints encountered are at the regional level do not necessarily imply in practice a emphasised. And integration agendas are commonly criticised commitment by all partners to act upon and implement such for not sufficiently reflecting domestic concerns and interests. decisions: member states can face incentives to signal their The Brexit debate, with the recent decision by the majority support for regional integration (based on longer term vision) of the British voters to leave the European Union, and the even when implementation is not a domestic priority (at least echoes and reactions it generated in Europe and beyond, is a in the short term). Ultimately, implementation at domestic reminder of the tensions and passions that regional integration level largely depends on national interests and priorities, as can generate. Among others, it demonstrates once more the defined by domestic ruling elites, which may diverge from importance of political leadership and vision, at regional and national positions taken at regional levels and resulting regional domestic levels; the need to connect with and involve the decisions. Although a regional agenda is largely aspirational, it people in regional integration destinies; the role of information, can also be driven by more immediate and pragmatic concerns explanation, transparency and managing realistic expectations; and interests by member states' interests. These differences the emotional dimension related to national and regional also explain the different implementation dynamics experienced debates; and the need to involve young people in building a in different sectors and policy areas. Non-state actors, such as regional future. private sector and civil society organisations, do play some role All these dimensions are traditionally overlooked when in regional dynamics, but their impact on regional organisations dealing with regional integration, where the focus is generally often remains limited. Their interests and engagements tend to on institutional settings, policy design and technical capacities. coalesce around relatively narrow and specific agendas, which To remedy such a short-sighted approach, it is thus necessary tend to be still mainly expressed through domestic channels. to pay greater attention to the various dynamics that shape and Underlying all of these dynamics, long-run structural affect regional integration. This is an endeavour that ECDPM factors (e.g. geography, history, economic structures) continue is committed to, including with this issue of GREAT Insights, to impact on how countries react within a region, while in the which brings together a number of insights and perspectives short-term, critical junctures can very quickly alter incentives on some of these characteristics and dimensions that shape and offer opportunities (or challenges) for taking regional various regional integration initiatives in Africa. cooperation forward. Regional integration plays an important role in Africa’s Finally, support from donors can help stimulate cooperation political rhetoric and vision, and has contributed to shape and integration processes, though it can often detract Africa’s political, economic and institutional landscape. from member state ownership, thereby risking effective They involve numerous formalised regional cooperation and implementation in the long run. Beyond the significant quantity integration processes at the sub-regional, regional, and of aid, it is the quality of aid that really matters. Yet, donors, as continental levels. Regional organisations in Africa have taken external actors, do not operate outside the political economy on central roles and fulfil multiple functions in promoting dynamics of regional integration, but are an integral and often regional cooperation and regional integration. This has led to important part of it. the articulation of broad and ambitious integration agendas. This issue of GREAT Insights presents various perspectives Yet, implementation of these agendas has often been slow and along these dimensions, which we hope you will enjoy. As hampered by many obstacles, leading to what is commonly always, your comments and reactions are most welcomed. referred to as an ‘implementation gap’. Regional institutions in Africa do matter. They serve an important role of political legitimacy, as a channel for exchanges among leaders in a region. However, they do not necessarily serve the purpose or function they claim to serve. This is commonly attributed to the weakness of some institutions, which, it is assumed, can then be directly remedied with appropriate capacity building. This explanation ignores underlying dynamics that are often more complex. Reforms aimed at improving the effectiveness of regional organisations Dr San Bilal (Editor), Head of Economic should thus focus on the core functions such organisations Transformation and Trade Programme, ECDPM are attempting to perform, with a greater chance of demand for improved functions through problem solving and the likely Follow San on Twitter: @SanBilal1 coalition building this requires or involves. A critical role is played by big and powerful countries, which are in a strong position to influence
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