Understanding Human Mobility in Africa / The Regional Economic Communities of African Union: ECCAS

Regional Economic Communities (RECs) and the African Union (AU)

The Regional Economic Communities (RECs) are regional groups of African states. The RECs have developed individually and separated from one another and have different roles and structures. Generally, the purpose of the RECs is to facilitate economic integration between members of the individual regions and through the African Economic Community (AEC), which was established under the Abuja Treaty of 1991. The 1980 Lagos Plan of Action for the Development of Africa and the Abuja Treaty proposed the creation of RECs as the basis for wider African integration, with a view of regional and eventual continental integration. The RECs are increasingly involved in coordinating African Union (AU) Member States’ interests on topics such as peace and security, development and governance.

The RECs are closely integrated with the AU’s work and serve as its building blocks. The relationship between the AU and the RECs is mandated by the Abuja Treaty and the African Union Constitutive Act and guided by the 2008 Protocol on Relations between the Regional Economic Communities and the African Union, as well as the Memorandum of Understanding (MoU) on Cooperation in the Area of Peace and Security between the AU, RECs and the Coordinating Mechanisms of the Regional Standby Brigades of Eastern and Northern Africa. The AU recognizes eight RECs:

• Arab Maghreb Union (AMU)
• Common Market for Eastern and Southern Africa (COMESA)
• Community of Sahel–Saharan States (CEN–SAD)
• East African Community (EAC)
• Economic Community of Central African States (ECCAS)
• Economic Community of West African States (ECOWAS)
• Intergovernmental Authority on Development (IGAD)
• Southern African Development Community (SADC)

In addition, the Eastern Africa Standby Force Coordination Mechanism (EASFCOM) and North African Regional Capability (NARC) have liaison offices at the AU. [Source: African Union, RECs]

History of the Economic Community of Central African States (ECCAS)

The Economic Community of Central African States (ECCAS) was established in 1983 with the objective of promoting collective autonomy, improving the living standards of its populations, and ensuring economic stability in the Central African region through cooperation. ECCAS was founded as part of an effort to integrate African economies and foster regional cooperation. Its creation marked a significant step toward regional unity, with the hope of overcoming the challenges of economic underdevelopment, political instability, and external dependency that had plagued many Central African countries. ECCAS was officially formed on October 18, 1983, by the members of the Customs and Economic Union of Central Africa (UDEAC), which had been in existence since 1964, when the Brazzaville Treaty was signed. The UDEAC, which initially included Cameroon, the Central African Republic, Chad, the Republic of Congo, and Gabon, was an attempt to promote economic integration through the establishment of a customs union, free trade among member states, and a common external tariff for imports. Equatorial Guinea joined UDEAC in 1983, expanding the union's reach. The formation of ECCAS aimed to create a broader economic community by including not just UDEAC members but also São Tomé and Príncipe and the members of the Economic Community of the Great Lakes States (CEPGL), which was formed in 1976 by the Democratic Republic of the Congo (DRC), Burundi, and Rwanda. This merger sought to combine the strengths of the existing organizations, integrate their economies, and address the economic challenges facing the region.

 While ECCAS was intended to bring some economic stability to the region, it encountered several setbacks in its early years. The organization formally began functioning in 1985, but its activities were soon hampered by financial difficulties and the instability of the Great Lakes region, which was embroiled in armed conflicts. The complex and protracted nature of these conflicts, especially the war in the Democratic Republic of the Congo, caused divisions among member states, as countries like Rwanda and Angola found themselves on opposing sides of the conflict. These tensions contributed to ECCAS's early struggles to maintain effective operations. In 1994, the Treaty for the establishment of the Economic and Monetary Community of Central Africa (CEMAC) was signed, building on the economic integration initiated by UDEAC. CEMAC sought to create a monetary union with the Central African CFA Franc as the common currency, thereby strengthening regional cooperation through economic and monetary integration. However, ECCAS and CEMAC, although both focused on promoting Central African unity, pursued somewhat distinct agendas. While CEMAC became more focused on monetary and economic integration, ECCAS was concerned with broader regional cooperation and development. As ECCAS struggled to function effectively in the early years due to financial constraints and political challenges, the role of CEMAC became more prominent, especially after 1999, when CEMAC officially took over the role of fostering economic integration in Central Africa.

The decline of ECCAS in the 1990s did not go unnoticed. In 1999, after years of inactivity, the African Economic Community (AEC) reaffirmed the importance of ECCAS as a central pillar in the African economic integration framework. It was clear that a revitalized ECCAS could play a key role in addressing the ongoing conflicts and instability in the region. By the end of the 1990s, political instability and wars in the Democratic Republic of the Congo, Chad, and Central African Republic were major obstacles to peace in Central Africa. ECCAS was increasingly seen as an organization that could contribute to peace-building efforts and the resolution of these crises. In 1998, a summit in Libreville, Gabon, led to a renewed commitment from ECCAS member states to reinvigorate the organization. At this summit, the leaders emphasized the need for cooperation to address regional conflicts, including the civil war in the DRC, and pledged to reform the organization to make it more effective in tackling economic and security challenges. This summit also paved the way for Angola's full membership, marking the country's official integration into ECCAS after years of observing the organization from the outside. Following the 1998 summit, ECCAS was tasked with coordinating peace and security efforts in the region, with the formation of the Council for Peace and Security in Central Africa (COPAX). ECCAS also launched several mechanisms, including the Multinational Force of Central Africa (FOMAC) and the Early Warning Mechanism of Central Africa (MARAC), which aimed to prevent conflicts, mediate peace agreements, and offer military support during crises.

In 2003, a significant agreement was reached between ECCAS, CEMAC, and the European Union (EU). The EU agreed to provide financial assistance to ECCAS and CEMAC, but this aid was conditional on the merger of the two organizations. ECCAS was tasked with taking on a more prominent role in regional security, notably through COPAX, while CEMAC continued to oversee economic integration and monetary policy. This agreement underscored the growing importance of ECCAS as a central actor in Central Africa's economic and political landscape. ECCAS's focus on peace and security continued throughout the 2000s. The 11th Ordinary Session of Heads of State and Government in January 2004 marked a milestone, as ECCAS welcomed the ratification of the Protocol on the Establishment of COPAX, which entered into force that same year. This protocol reinforced ECCAS's commitment to maintaining regional peace and provided the framework for military interventions if necessary.

However, ECCAS faced several internal challenges, particularly in maintaining cohesion among its member states. Over time, countries like Rwanda and Angola left or suspended their participation in the organization. In 2007, Rwanda decided to leave ECCAS to focus on its membership in other regional organizations like the East African Community (EAC) and the Common Market for Eastern and Southern Africa (COMESA). Rwanda rejoined ECCAS only in 2016, reflecting its renewed commitment to Central African regional cooperation. In 2009, the United States also recognized ECCAS’s growing importance by making it eligible for the U.S. Foreign Military Sales Program. This policy shift suggested that ECCAS was gaining traction not only as an economic body but also as a key player in regional security, with the U.S. seeing it as a partner in addressing security concerns in Central Africa. The year 2023 brought a significant test for ECCAS when Gabon experienced a coup d'état that ousted President Ali Bongo Ondimba. ECCAS responded by strongly condemning the use of military force and calling for the restoration of constitutional order in the country. In response to the political crisis, ECCAS suspended Gabon’s membership on September 5, 2023, and moved its headquarters from Libreville to Malabo, Equatorial Guinea. This shift represented not only a geographical change but also a symbolic reaffirmation of the organization's commitment to promoting peace and stability in the region.

Current members of ECCAS include:

• Angola
• Burundi
• Cameroon
• Central African Republic
• Chad
• The Democratic Republic of the Congo
• Equatorial Guinea
• Gabon
• The Republic of Congo
• Rwanda
• Sao Tome and Principe 

Structure and organizations of ECCAS

ECCAS is divided into 6 organs and 6 institutions. The organs of the Community are:

• The Conference of Heads of State and Government: The supreme body of ECCAS, responsible for managing and controlling the community.
• The Council of Ministers: Assisted by the Conference of Heads of State and Government, the Council of Ministers is made up of ministers in charge of regional integration, foreign affairs, economy, and finance.
• The General Secretariat and Commission: The executive organ of ECCAS, with a secretary-general and three assistant secretaries-general.
• Specialized Technical Committees.
• The Committee of Permanent Representatives.
• The Interstate Committee of Experts.

The institutions of the Community are:

• The Community Parliament.
• The Community Court of Justice.
• The Court of Auditors of the Community.
• Financial institutions.
• Specialized institutions.
• Central African Early Warning System (MARAC): A mechanism for monitoring, observing, and preventing crises and conflicts. 

Most important projects of ECCAS

ECCAS was established to enhance cooperation between its member states by addressing the challenges of political instability, development, and economic fragmentation. The organization's key projects are structured around economic integration, peace, security, infrastructure development, and human resource improvement. By focusing on these areas, ECCAS aims to create a more unified, stable, and prosperous Central Africa. ECCAS’s primary objectives are revolving around enhancing cooperation and fostering integration among Central African states. These objectives include:

1. Eliminating Customs Barriers: ECCAS aims to remove customs duties and other charges that create barriers to trade between member states. By eliminating these barriers, the organization promotes free trade and encourages regional economic cooperation.
2. Removing Quantitative Restrictions: Another objective is to abolish quantitative restrictions on trade, ensuring that no member state faces arbitrary limits on the import or export of goods.
3. Establishing a Common Customs Tariff: ECCAS promotes the establishment and maintenance of a common external tariff for all member states, which harmonizes trade relations with countries outside the region.
4. Creating a Unified Trade Policy: The organization works towards formulating a cohesive trade policy that governs the region’s interactions with external states and entities, ensuring that ECCAS presents a unified front in international trade negotiations.
5. Facilitating the Free Movement of Goods, Services, and Capital: ECCAS advocates for the progressive removal of barriers to the free movement of people, goods, services, and capital, which is essential for fostering a more integrated regional economy.
6. Harmonizing National Policies: In an effort to promote regional integration, ECCAS encourages the harmonization of policies in key sectors such as industry, transport, communications, energy, agriculture, and human resources.
7. Establishing a Cooperation and Development Fund: ECCAS works towards the creation of a fund that would provide financial support for projects that promote the economic development of member states.
8. Supporting Development in Least Developed States: The organization focuses on accelerating the development of landlocked, island, and least developed countries, ensuring that all member states benefit from the integration process.
9. Joint Activities for Community Goals: ECCAS promotes the initiation of joint activities by member states that contribute to achieving the broader goals of regional integration, economic stability, and peace.

These nine objectives represent the foundation upon which ECCAS builds its various programs, strategies, and projects to achieve its long-term vision for Central Africa. To achieve its goals, ECCAS has launched a wide array of projects across key sectors, such as peace and security, transport and infrastructure, energy, agriculture, gender equality, and social development. These projects are pivotal in overcoming the challenges faced by Central Africa and laying the groundwork for deeper regional integration.

One of ECCAS’s most important initiatives is the Peace and Security Council for Central Africa (COPAX). The primary aim of COPAX is to guarantee political stability and peace within the region, addressing conflicts and preventing future crises. Over the years, COPAX has been instrumental in conflict resolution and the establishment of peacekeeping operations in the Central Africa region. The Multinational Force for Central Africa (FOMAC), which is an essential component of COPAX, has been strengthened since its inception. FOMAC plays a critical role in peacekeeping and conflict resolution, particularly in countries like the Democratic Republic of the Congo (DRC), where political instability has been prevalent. In addition, the Early Warning Mechanism for Central Africa (MARAC) has been developed to monitor potential security threats, providing timely responses to emerging crises. Regional integration also comes through the development of transportation and infrastructure systems. ECCAS’s approach to improving regional connectivity focuses on the Consensual Development Plan for Transport in Central Africa (PDCT-AC). By connecting major ports, airports, railways, and river and lake networks, the PDCT-AC aims to support international trade and facilitate the movement of goods and people within Central Africa. The PDCT-AC also includes efforts to enhance the connectivity of the region’s transport systems with transcontinental corridors, such as the West-East (Lagos-Mombasa) and North-South (Tripoli-Cape Town) African routes. 

Energy is a critical component of regional development, and ECCAS is investing heavily in building a sustainable regional energy market. The Central African Power Pool (PEAC), which coordinates the efforts of member states to exploit the region’s vast energy resources, is at the forefront of this strategy. PEAC aims to promote regional cooperation in energy generation and distribution, with a focus on building electrical interconnections between the countries of the region. One of the flagship projects under PEAC is the development of the Inga Dam (located in the DRC), which is expected to generate significant amounts of hydroelectric power for the entire region. This project will serve as a cornerstone for regional integration, providing a reliable and sustainable energy source. In 2009, ECCAS also adopted a regional water policy to better manage water resources, ensuring that member states can meet their growing water demands while preserving the environment. In agriculture, ECCAS has focused on creating a Common Agricultural Policy (PAC-CEEAC) to increase food security and promote sustainable agricultural practices across the region. The organization has initiated the Regional Agricultural Investment Program (PRIASAN), that aims to boost agricultural productivity through financial support, capacity-building, and technical assistance to smallholder farmers. ECCAS has also prioritized the development of regional value chains in sectors such as cotton-textile, livestock, and fisheries. The Special Regional Fund for Agricultural Development (FSRDA) was created to help small farmers access necessary inputs, equipment, and support for processing and storage. Additionally, ECCAS is working on the promotion of food reserves to address regional food security challenges, particularly in times of crisis or drought.

ECCAS recognizes the importance of gender equality and social development in building a stable and prosperous region. Various initiatives have been launched to promote women’s rights and empowerment, such as the Regional Network of Women Mediators of Central Africa, which strengthens women’s involvement in peace and conflict resolution. The organization has also implemented projects aimed at improving health infrastructure, with the Central African Health Organization (OSAC) now operational to coordinate regional health security and epidemiological surveillance. Other social initiatives focus on youth, migration, and employment, ensuring that the region’s development benefits all citizens. Latly, ECCAS has also placed significant emphasis on industrialization and trade integration, with the ultimate goal of creating a regional common market. Since the launch of the ECCAS Free Trade Area (FTA) in 2004, the organization has worked toward the establishment of a Customs Union (CU), which would introduce a common external tariff and a coordinated commercial policy towards external partners. In addition, ECCAS is working on harmonizing the economic policies of its member states to create a more unified regional market. Efforts are underway to improve customs procedures and eliminate non-tariff barriers to facilitate trade. A key component of ECCAS’s strategy is building the capacity of its member states and stakeholders to engage effectively in regional integration processes. This includes promoting intra-regional trade, strengthening productive capacities, and enhancing export competitiveness, especially in growth sectors such as agriculture and industry.

ECCAS and Free Movement of People

One of the core objectives of ECCAS is the promotion of the free movement of people within the region. However, despite the adoption of key protocols and initiatives, the progress in implementing the free movement of people has been slow, leaving many challenges unresolved.  The Treaty Establishing ECCAS laid the groundwork for greater integration among its member states, spanning countries rich in natural resources and strategic geopolitical importance. A major aspect of this integration was the promise to facilitate the free movement of people, goods, services, and capital across borders. The Protocol on the Freedom of Movement and the Rights of Establishment of Nationals of Member States, adopted in 1983, set out to guarantee citizens of ECCAS member states the right to freely move, reside, and establish themselves in any of the member countries. In principle, the protocol was a crucial step towards the creation of a single and united economic and political space in Central Africa. Implementation of the protocol was designed to occur in phases, with the freedom of movement expected to be fully operational within 12 years from the date of the treaty’s adoption. Additionally, an initiative to fast-track free movement of people was introduced in 1990, and later amended in 2000. Despite these efforts, the initiative was scheduled to be in full effect by March 2005 but remains largely unimplemented. While the free movement protocol was ambitious and foundational to the vision of a unified Central Africa, the reality has been one of slow progress and uneven implementation across the region. The protocol’s implementation has been delayed for several reasons, notably due to security concerns, political will, and the economic challenges faced by several member states.

In practice, the free movement of people is only fully operational within the Central African Economic and Monetary Community (CEMAC), a subgroup of ECCAS that includes six member states: Cameroon, Chad, the Republic of the Congo, the Central African Republic, Gabon, and Equatorial Guinea. Citizens of these countries can move across borders without a visa, with some countries also allowing visa-on-arrival for their neighbors. However, the situation in the broader ECCAS region remains far from ideal. Most member states, including Angola, Burundi, and others, still require visas for their fellow ECCAS citizens, thus limiting the practical effect of the protocol. One of the primary reasons for the delay in implementing the free movement protocol is the security concerns raised by several member states. These countries argue that the free movement of people could facilitate cross-border crimes, as well as terrorism, and human trafficking. This has been particularly pronounced in the context of countries with porous borders, where the movement of people may be harder to monitor. Moreover, political will has also been a factor. While the protocol was adopted by all member states, the lack of commitment from some governments has impeded the full implementation of its provisions. Political leaders in certain countries are reluctant to grant unrestricted movement for fear of losing control over their borders or because of concerns over the social and economic impact of migration. The lack of regional cooperation on security and border management has also been a contributing factor to the slow progress. Economic challenges have also played a role in stalling the free movement of people. Many ECCAS member states have weak economies, poor infrastructure, and high levels of unemployment, which make them hesitant to allow unrestricted movement of people from neighboring countries. The fear that free movement of people could exacerbate these economic difficulties has kept some governments from fully embracing the protocol.

Visa requirements within ECCAS are a significant hindrance to the free movement of people. The average AVOI (Average Visa Openess Index) score for ECCAS member states is considerably lower than the average for other Regional Economic Communities (RECs) in Africa. This is despite the fact that two ECCAS members — Burundi and Rwanda — are among the top 20 performers in terms of visa openness on the continent. Rwanda has set a precedent by implementing a visa-free policy for all African nationals, which has led to the country’s strong performance in the AVOI rankings. In contrast, many ECCAS member states remain far less visa-open. Countries such as Angola, Equatorial Guinea, and Cameroon continue to impose strict visa requirements on ECCAS citizens. The low AVOI score for the region highlights the difficulty ECCAS faces in creating an integrated, borderless space for its citizens. However, there are signs of improvement. In recent years, several ECCAS member states have made moves towards greater openness, with some countries offering visa-on-arrival policies or loosening visa requirements for fellow ECCAS citizens. Rwanda’s leadership in this area has prompted other member states to follow, but significant challenges remain.

Recognizing the importance of facilitating free movement, the International Organization for Migration (IOM) launched the Strengthening ECCAS capacities builder initiative to better manage migration and promote regional free movement” project in 2018. This initiative focuses on building the capacity of ECCAS member states to manage migration and implement the free movement protocol effectively. The project has two key components:

1. Capacity Building: the first component involves training key stakeholders within ECCAS and CEMAC member states on migration governance and the implementation of the free movement protocol. This includes building the skills of policymakers and officials responsible for migration data collection, border management, and policy development.
2. Research: the second component of the project supports the production of research and studies that highlight the challenges to implementing the protocol. This research will provide recommendations for improving migration governance and overcoming the barriers to free movement within the region.

The project aims to foster greater awareness of migration issues and encourage member states to develop policies that facilitate cross-border movement while addressing concerns related to security, economic stability, and social integration.