Issue No. 788

Published 17 Feb 2025

Djibouti at the Helm of the African Union

Published on 17 Feb 2025 17:11 min

Djibouti at the Helm of the African Union

On Saturday, after several rounds of secret voting in Addis Ababa, Djiboutian Foreign Minister Mohamoud Ali Youssouf was elected to serve as the next African Union (AU) Commission Chair. He defeated former Kenyan PM Raila Odinga, who dropped out in the 6th round after successive neck-and-neck ballots, with the long-serving Kenyan opposition leader ahead in the first two rounds. Following the elimination of the Madagascan candidate, however, Youssouf inched ahead, and it soon became apparent that Raila would be unable to obtain the 2/3s required of the 49 AU member states.

Youssouf comes to the helm of the AU Commission at a troubled time for the continent and the Horn. Every region is experiencing some form of conflict or another, from the roiling civil war and famine in Sudan to the transnational Sahelian jihadist groups in Mali and Burkina Faso to the escalating violence in the eastern Democratic Republic of Congo (DRC). The outgoing Chair and former Chadian politician Moussa Faki has overseen the atrophying relevance of the AU, as well as a move away from its founding peace and security principles. Though he has developed relationships with the UN and other multilateral organisations, Faki has been repeatedly criticised for applying these tenets haphazardly and comprehensively failed to outline a vision for peace talks in Sudan. Many of the key organs within the AU have wilted during his leadership.

Youssouf's victory is being viewed as evidence of tiny Djibouti's growing influence in the Horn and ability to punch above its weight. As the candidate from Djibouti, a francophone country and Arab League member, Youssouf was able to call on West African as well as the Arab-aligned member states for their support. The former diplomat, who has overseen Djiboutian foreign policy for 20 years, ran a quiet campaign, which picked up steady pledges of support. On the other hand, while slow-starting, the Raila campaign also gained momentum in the latter half of 2024. In the end, though, the vote was a complicated affair, and the geopolitical intrigue and politics that catapulted the Red Sea state's candidate are worth considering.

In large part, the vote for Youssouf was one against Raila and Kenya because of the events unfolding in the DRC. The escalating conflict in the resource-rich east of the country has seen the alleged Rwandan-backed M23 rebels seize Goma in January and now Bukavu, the second-largest city in the region. It has precipitated a severe deterioration in bilateral ties between Rwanda and South Africa, which have been at odds on a host of issues for several years. The killing of South African military personnel by M23 forces in Goma and the escalating war of words between Kigali and Pretoria, aligned with the Félix Tshisekedi government in Kinshasa, has now triggered an immense crisis in bilateral relations. The rhetorical onslaught on South Africa by the returned Trump administration has further muddied the waters.

Rwanda was the first East African state to unequivocally and openly voice support for Raila Odinga. President Paul Kagame took on the mantle of 'regional champion' for the campaign, as South Africa, for its part, largely dithered or remained non-committal. It came as little surprise when Pretoria moved against Raila over the weekend, based on the assumption that Kenya is aligned with Rwanda and that Raila may serve Kigali's interest.

South Africa's stance was confirmed a week before the vote when the regional East African Community bloc called a joint summit with the Southern African Development Community (SADC) in Tanzania chaired by Kenya. The meeting did not go well. It proved acrimonious, with the outgoing AU Chair, Faki, ejected from the meeting at the behest of the South Africans. Pretoria soon doubled down on its DRC policy and mobilised its African and international allies against Rwanda and, by extension, Raila at the AU vote in Addis. SA's leverage and clout in the SADC sub-region proved decisive, with Pretoria also likely to have influenced North Africa to support Youssouf at the ballot. Speaking at the end of the vote at the AU Hall in Addis Ababa, a beaming Cyril Ramaphosa said, "We are pleased with the outcome."

Leaving aside his defeat of Raila and ahead to his coming four-year term, it will be notable how Youssouf will have to negotiate the still-growing influence of Middle Eastern and Gulf powers on the continent. Since Faki came to the seat in 2017, Qatar, the UAE, and Saudi Arabia's economic and political investments have broadened and deepened, particularly in the Horn. These highly wealthy actors' general preference for quiet bilateral dealings with non-state actors over multilateral forums and sovereign states has repeatedly undermined the workings and influence of the AU. Doha is even widely believed to have funded Youssouf's run for the seat. 

With the Djiboutian candidate now in position and the deputy chair, Selma Haddadi, hailing from Algeria, the Arab voice has been strengthened at the African multilateral. But the election of Haddadi also signals a loss for Israel, with the Algerian position historically a pro-Palestinian one. Israel's attempts to sway African countries to its side now look even more remote, including due to Youssouf's victory. In 2024, the Djiboutian foreign minister controversially praised the Houthi attacks on Israeli-linked vessels in the Red Sea as "resisting foreign intervention."

In the Horn of Africa, barring Djibouti, Somalia is the other significant beneficiary of Youssouf's win. In fact, the Djiboutian minister was thrown into the vote partly as a 'tactical candidate' to thwart Raila Odinga and his perceived pro-Somaliland sympathies. The news of Youssouf's victory has certainly cheered those in Mogadishu and 'One Somalia' proponents. Youssouf is an implacable opponent of the Ethiopia-Somaliland Memorandum of Understanding (MoU), and will be responsible for helping to steer the multilateral on the issue. Interestingly, Addis, in the end, quietly backed Djibouti's candidate despite its positioning as pro-Raila, which will likely further constrain its movement with the MoU.
 
Though the AUC chair is not an all-powerful position, it is undoubtedly highly influential in the multilateral’s direction and the collective responses to peace and security issues on the continent. The challenges facing the incoming chair in the coming four years will be significant, including dealing with a severe legitimacy and relevance crisis. And globally, the influence of multilateral organisations has waned, a dynamic certain to only further accelerate with the return of the 'America First' US President Donald Trump to the White House. But instead of joining the global diplomatic race to the bottom and purely transactional interests, the AU would be better placed to restore the principles outlined in its founding charters. 
 
Youssouf is a seasoned diplomat who will hopefully be able to help ease some of the administrative bottlenecks within the multilateral. However, his credentials on a host of broader policy issues are more problematic, not least his links to Doha, just one of several rising Gulf powers jostling to extend their influence throughout the African continent. Member States are naturally free to choose their allies, but as a continental body, it behoves the AU and its Chair to remain above the fray. The multilateral needs strong, principled, and competent leadership more than ever.

The Somali Wire Team

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