ARTICLES

Beyond paper-based affiliate status: National human rights institutions and the African Commission on Human and Peoples' Rights

Bonolo R Dinokopila

Doctoral Candidate, Centre for Human Rights, Faculty of Law, University of Pretoria, South Africa; Associate Attorney, Duma Boko & Co, Gaborone, Botswana

SUMMARY

An extensive literature has evolved around the relationship between the African Commission on Human and Peoples' Rights and non-governmental organisations with observer status. Not much has been written about the nature of the relationship between the African Commission and national human rights institutions. This article seeks to scrutinise this relationship. In particular, it examines the role of national human rights institutions in the activities of the African Commission and, concomitantly, how their role could be strengthened in order to enhance human rights protection in Africa. The paper further examines the rationale behind their greater participation in the workings of the African Commission and ascertains whether there is a need for a more elaborate and meaningful relationship.

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* LLB (Botswana), LLM (Human Rights and Democratisation in Africa) (Pretoria); dinoksbr@yahoo.com. I am greatly indebted to Prof J Oloka-Onyango for his valuable and incisive comments on the earlier version of this work. This paper is based on the author's dissertation submitted in partial compliance with the requirements for the degree LLM (Human Rights and Democratisation in Africa), Centre for Human Rights, Faculty of Law, University of Pretoria, 2008.
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2 Para 14 26th Activity Report AU Doc EX CL/529(XV).
3 F Viljoen International human rights law in Africa (2007) 412.         [ Links ]
4 Resolution on Granting Observer [Affiliate] Status to National Human Rights Institutions in Africa (1998 Resolution on Affiliate Status), adopted at the Commission's 24th session, Banjul, The Gambia, 22-31 October 1998.
5 1998 Resolution on Affiliate Status, para 4(d).
6 n 5 above, para 4(a).
7 Viljoen (n 3 above) 412.
8 Viljoen (n 3 above) 413.
9 Para 61 24th Activity Report AU Doc EX.CL/466(XIII).
10 As above.
11 Viljoen (n 3 above) 412.
12 As above.
13 OC Kafor & SC Agbakwa 'On legalism, popular agency and "voices of suffering": The Nigerian National Human Rights Commission in context' (2002) 24 Human Rights Quarterly 663.
14 K Quashigah 'National human rights institutions in Africa: Functions, strengths, and weaknesses' quoted in HS Kanzira 'The independence of national human rights bodies in Africa: A comparative study of the CHRAJ, UHRC and SAHRC' (2002) 8 East African Journal of Peace and Human Rights 176.
15 Kafor & Agbakwa (n 13 above) 663.
16 International Council on Human Rights Policy Performance and legitimacy; National human rights institutions (2004) 3; ESCR Committee General Comment 10, 'The role of NHRIs in the protection of economic, social and cultural rights' (1998) Doc E/1999/22.
17 International Council on Human Rights Policy (n 16 above) 3.
18 LC Reif 'Building democratic institutions: The role of national human rights institutions in good governance and human rights protection' (2000) 13 Harvard Human Rights Journal 2.
19 S Cardenas 'Emerging global actors: The United Nations and national human rights institutions' (2003) 9 Global Governance 23.
20 J Hatchard Report on the inter-relationship between Commonwealth human rights commissions and other national human rights institutions (2003) 7.
21 Eg Ghana's Commission on Human Rights and Administrative Justice (CHRAJ) fused a Human Rights Commission, an Ombudsman and an Anti-Corruption Agency.
22 Hatchard (n 20 above) 7.
23 Kanzira (n 14 above) 174.
24 Centre for Human Rights National human rights Institutions: A handbook on the establishment and strengthening of national human rights institutions for the promotion and protection of human rights (UN Handbook) UN Professional Training Series 4 (1995) 8.
25 Centre for Human Rights (n 24 above) 7.
26 ESCR Committee (n 16 above).
27 Sec 184(3) South African Constitution (1996).
28 AE Pohjolainen The evolution of national human rights institutions - The role of the United Nations (2006) 6.
29 M Gomez 'Sri Lanka's new Human Rights Commission' (1998) 20 Human Rights Quarterly 281.
30 Para 1 Paris Principles.
31 As above.
32 C Idike 'Deflectionism or activism? The Kenya National Commission on Human Rights in focus' (2004) 1 Essex Human Rights Review 43.
33 J Hatchard et al Comparative constitutionalism and good governance in the Commonwealth: An Eastern and Southern perspective (2004) 211.
34 International Council on Human Rights Policy (n 16 above) 1-2.
35 Roundtable of national human rights institutions and national machineries for the advancement of women, Ouarzazate, Morocco, 15-19 November 2004 3-4.
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37 LM Mute 'Infusing human rights in policy and legislation: Experiences from Kenya National Commission on Human Rights' in CM Peter (n 36 above) 29; secs 16(1) (a)-(i) KNCHR Act.
38 Para 2 Paris Principles; eg sec 16(1)(d) KNCHR Act.
39 Paras 1(a)-(g) Paris Principles.
40 Part IV Paris Principles; UN Handbook (n 24 above) 34; Kafor & Agbakwa (n 13 above) 671; eg secs 16(1)(h)-(i) KNCHR Act.
41 Eg secs 19(2)(a)-(c) KNCHR Act.
42 Paras 3(b) & (c) Paris Principles; eg sec 16(1)(f) KNCHR Act.
43 Para 3(c) Paris Principles.
44 Para 3(d) Paris Principles; eg sec 16(1)(f) KNCHR Act.
45 Para 3(g) Paris Principles; eg sec 16(1)(c) KNCHR Act.
46 Para 3(e) Paris Principles.
47 Sec 181(1)(b) Constitution of the Republic of South Africa; art 51(2) Constitution of Uganda; UHRC Act of 1995.
48 B Lindsnaes et al National human rights institutions; articles and working papers: Input to the discussions on the establishment and development of the functions of national human rights institutions (2001) 14.
49 National Human Rights Commission Decree of 1995.
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52 R Murray The role of national human rights institutions at the international and regional levels: The experience of Africa (2007) 7.
53 JO Ambani 'Oval slides in triangular spaces? Anchoring national human rights institutions in "tripartite" Commonwealth Africa' unpublished LLM dissertation, University of Pretoria, 2006 8.
54 Ambani (n 53 above) 12.
55 Cardenas (n 19 above) 23.
56 J von Doussa 'The potential role of national human rights institutions in the Pacific' paper presented at the Australian Law Reform Agencies conference, Port Villa, Vanuatu, September 2008 http://www.hreoc.gov.au/about/media/speeches/speeches_president/index.html (accessed 9 October 2008).
57 Ambani (n 53 above) 12.
58 As above.
59 Murray (n 52 above) 11.
60 Para A(3)(d) Paris Principles. The UN CERD Committee has in its General Recommendation 28 (2002) recommended that NHRIs assist their member states in complying with their reporting obligations.
61 Murray (n 52 above) 11.
62 Murray (n 52 above) 12.
63 M Kjœrum National human rights institutions implementing human rights (2003) 19 http://www.humanrights.dk/files/Importerede%20filer/hr/pdf/n_h_r_i_h_fte_eng.pdf (accessed 20 August 2008).
64 In the case of South Africa, this would be the other ch 9 institutions, namely, the Commission for Gender Equality, the Public Protector and the Commission for the Promotion and Protection of the Rights of Cultural, Religious and Linguistic Communities; sec 181 South African Constitution.
65 Viljoen (n 3 above) 370; Murray (n 52 above) 16-18; Hatchard (n 33 above,) 231; M Nassali 'Economic and social rights: drawing the threads together' in Peter (n 36 above) 98.
66 M Evans et al 'The reporting mechanism of the African Charter on Human and Peoples' Rights' in M Evans & R Murray (eds) The African Charter on Human and Peoples' rights: The system in practice, 1986-2000 (2002) 57.
67 Murrray (n 52 above) 21.
68 Murray (n 52 above) 18; ML Schweitz 'NGO participation in international governance: The question of legitimacy' (1995) 89 American Society of International Law Proceedings 419.
69 Centre for Human Rights Opinion to the African Commission on Human and Peoples' Rights on the conduct and procedure of joint promotional and protective fact-finding missions with the United Nations and any other organisations (2008) 5 (on file with author).
70 Viljoen (n 3 above) 393.
71 Kjœrum (n 63 above) 19.
72 NHRIs lodge petitions with the Inter-American Commission on Human Rights after domestic remedies have been exhausted; Murray (n 52 above) 13.
73 As above.
74 Lindsnaes (n 48 above) 120.
75 SA Yeshanew 'Utilising the promotional mandate of the African Commission on Human and Peoples' Rights to promote human rights education in Africa' (2007) 7 African Human Rights Law Journal 191.
76 Cardenas (n 19 above) 36.
77 Murray (n 52 above) 59.
78 P de Vos 'Experience of human rights in Africa: Challenges of implementing economic, social and cultural rights' in Peter (n 36 above) 27.
79 C Scott 'Accountability in the regulatory state' (2000) 27 Journal of Law and Society 60; Murray (n 52 above) 69-88.
80 RE Kapindu 'Book review: The role of national human rights institutions at the international and regional levels: The experience of Africa by Rachel Murray' (2008) 125 South African Law Journal 198.
81 Viljoen (n 3 above) 393.
82 International Council on Human Rights Policy (n 16 above) 100.
83 Cardenas (n 19 above) 7.
84 Kafor & Agbakwa (n 13 above) 665-666.
85 International Council on Human Rights Policy (n 16 above) 12-13.
86 As above.
87 Cardenas (n 19 above) 37.
88 CR Kumar 'National human rights institutions: Good governance perspectives on institutionalization of human rights' (2003) 19 American University International Law Review 297; see also MA Olz 'Non-governmental organisations in regional human rights systems' (1997) 28 Columbia Human Rights Law Review 326-321.
89 Para 1(a) Paris Principles, Composition and Guarantees of Independence and Pluralism.
90 Training Series 12 Economic, social and cultural rights: A handbook for national human rights institutions (2005) 38.
91 Murray (n 52 above).
92 Kumar (n 88 above) 297;interview with Roselyn Karugonjo-Segawa, Director, Monitoring and Inspections, Uganda Human Rights Commission, Kampala, Uganda, 14 October 2008.
93 Kapindu (n 80 above) 199.
94 As above.
95 Art 26 as read with art 25 African Charter.
96 http://www.newsite.co.ke/hr/index.php?option=com_content&task=view&id=8&Itemid=3 (accessed 11 October 2008).
97 Para 17 Yaoundé Declaration.
98 Durban Declaration.
99 Para 14 Durban Declaration.
100 Para 4 Resolution on Affiliate Status.
101 Para 24 Mauritius Declaration and Plan of Action.
102 Para 4(d) Resolution on Affiliate Status to National Human Rights Institutions in Africa, adopted at the Commission's 24th session, Banjul, The Gambia, 22-31 October 1998; Viljoen (n 3 above) 413.
103 Para 4 1998 Resolution on Affiliate Status; Viljoen (n 3 above) 413.
104 Murray (n 52 above) 49.
105 n 9 above.
106 Murray (n 52 above) 51.
107 Para 7 20th Activity Report, AU Doc EX.CL/279(IX).
108 Para 7 21st Activity Report, AU Doc EX.CL/322(X).
109 Para 9 22nd Activity Report, AU Doc EX.CL/364(XI).
110 Para 12 23rd Activity Report, AU Doc EX.CL/466(XIII).
111 Para 10 24th Activity Report.
112 Para 8 25th Activity Report, AU Doc EX CL/490(XIII).
113 Para 6 26th Activity Report.
114 Para 58 23rd Activity Report.
115 Paras 47 & 49 African Commission's Mauritius Plan of Action 1996-2001.
116 Murray (n 52 above) 87.
117 Human Rights Watch 'Protectors or pretenders? Government human rights commissions in Africa' http://www.hrw.org/reports/2001/africasummary (accessed 10 May 2008).
118 The report charges that many African NHRIs serve as apologists for government violations of human rights, lack independence and are generally, with a few exceptions, ineffective; Human Rights Watch (n 117 above) summary; MH Abdiwawa 'Empowering people on their rights in Tanzania' in Peter (n 36 above) 44.
119 Second AU conference on NHRIs which was held to discuss the role of NHRIs in the African Commission resulted in recommendations which remain unimplemented; para 18 20th Activity Report; Viljoen (n 3 above) 413.
120 Murray (n 52 above) 51.
121 G de Beco 'Networks of European national human rights institutions' (2008) 14 European Law Journal 860-877 869.
122 De Beco (n 121 above) 864.
123 http://www.newsite.co.ke/hr/index.php?option=com_content&task=view&id=8&ltemid=3 (accessed 11 October 2008).
124 As above.
125 As above.
126 Arts 2 & 3 Constitution of NANHRI.
127 Interview (n 92 above).
128 Conference Report, Sixth Conference of African National Human Rights Institutions, 8-10 October 2007, Kigali, Rwanda, 34.
129 As above.
130 n 9 above; Report of the retreat of members of the African Commission on Human and Peoples' Rights facilitated by the Office of the High Commissioner for Human Rights (OHCHR), African Union Conference Centre, Addis-Ababa, Ethiopia, 24-26 September 2003 http://www.nhri.net/pdf/ACHPR-Retreat-Report-Final.pdf (accessed 22 February 2010).
131 As above.
132 Murray (n 52 above) 53.
133 M Hansungule 'R Murray The role of national human rights institutions at the international and regional levels' (2007) 7 African Human Rights Law Journal 592.
134 Interview (n 92 above).
135 Human Rights Watch (n 115 above) summary.
136 Interview (n 92 above).
137 Human Rights Watch (n 115 above) summary.
138 Art 5(3) Court Protocol, as read with Rule 33 of the Interim Rules of Procedure of Court.
139 Art 30 Protocol on the Statute of the African Court of Justice and Human Rights (2008).
140 Report of the retreat of members of the African Commission on Human and Peoples' Rights (n 130 above); n 9 above.
141 M Hansungule 'Overview paper on the role of the APRM in strengthening governance in Africa: Opportunities and constraints in implementation' (undated) 15.
142 Interview (n 92 above).
143 Rule 2 International Co-ordinating Committee of National Institutions for the Promotion and Protection of Human Rights, Rules of Procedure.
144 The ICC co-ordinates NHRIs at national level, organises ICC conferences and ensures regular contact with the OHCHR and other international organisations. The ICC is also responsible for accrediting NHRIs that are in compliance with the Paris Principles; R Murray (n 52 above) 31.
145 Effective functioning of human rights mechanisms: National institutions and regional arrangements. Paras 5-6 Report of the Secretary-General, 24 January 2006 E/CN.4/2006/101.
146 Rule 4(a) Rules of Procedure of the ICC.
147 http://www.asiapacificforum.net/about/annual-meetings/8th-nepal-2004/downloads/other-human-rights-institutions/americas.pdf (accessed 23 September 2008).
148 Asia Pacific Brochure http://www.asiapacificforum.net (accessed 23 September 2008).
149 As above.
150 As above.
151 The APF has a good exchange programme and has gone a long way to training the staff of member institutions.
152 The APF has a website in place (http://www.asiapacificforum.net) that is used for the dissemination of information pertaining to the activities carried out by NHRIs. NANHRI, although still at the nascent stages, has a similar website (http://www.nanhri.com) which can be used effectively for the dissemination of information.
153 Remarks of Mr Justice R Rajendra Babu, Chairperson, National Human Rights Commission of India, 12th Annual meeting of APF, 26 September 2007.
154 Abuja Guidelines on the Relationship between Parliaments, Parliamentarians and Commonwealth NHRIs (2004).
155 Arts 47- 59 African Charter.
156 Art 46 African Charter.
157 Viljoen (n 3 above) 407.
158 As above.
159 As above.
160 Commission Nationale Des Droits de l'homme et des Libertés v Chad (2000) AHRLR 66 (ACHPR 1995); Murray (n 52 above) 13.
161 L Reif The Ombudsman, good governance and the international human rights system (2004) ch 6.
162 T Mutangi 'Fact-finding missions or omissions: A critical analysis of the African Commission on Human and Peoples' Rights and lessons to be learnt from the Inter-American Commission on Human Rights' (2006) 12 East African Journal of Peace and Human Rights 1, for a detailed discussion on fact-finding missions of the African Commission.
163 Report of the retreat of members of the African Commission (n 130 above) 9.
164 F Viljoen 'The Special Rapporteur on Prisons and Conditions in Africa: Achievements and possibilities' (2005) 27 Human Rights Quarterly 125-171.
165 CM Peter 'The way forward for the East African Human Rights Institutions' in Peter (n 36 above) 324.
166 Mutangi (n 162 above) 37.
167 Art 45(1) African Charter; Yeshanew (n 75 above) 191.
168 Art 45(1)(a) African Charter.
169 Art 45(1)(c) African Charter.
170 VOO Nmehielle The African human rights system: Its laws, practices and institutions (2001) 176-179.
171 Viljoen (n 3 above) 371; Report of the Brainstorming Meeting on the African Commission, 9-10 May 2006, Banjul, The Gambia, AU Doc ACHPR/BS/01/010,9 May 2006 (20th Activity Report, Annex II).
172 As above.
173 G Alfredsson et al (eds) International human rights monitoring mechanisms (2001) 825.
174 Report of the retreat of members of the African Commission (n 130 above) 3.
175 F Seidensticker Examination of state reporting by human rights treaty bodies: An example of follow-up at the national level by national human rights institutions (2005).