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

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 Inter-Governmental Authority on Development (IGAD)

The Intergovernmental Authority on Development (IGAD) in Eastern Africa has undergone big changes since its creation. Originally established in 1986 as the Intergovernmental Authority on Drought and Development (IGADD), its formation was prompted by recurring severe droughts and natural disasters that caused widespread famine, ecological degradation, and economic hardship across the region. The founding members — Djibouti, Ethiopia, Kenya, Somalia, Sudan, and Uganda — joined forces under the auspices of the United Nations to create a regional body capable of addressing these challenges. Eritrea became a member in 1993 following its independence, and South Sudan joined in 2011, bringing the number of member states to eight [Source: IGAD, About]. The organization’s evolution from IGADD to IGAD in 1996 reflected a shift in priorities as the region faced new socio-economic and political challenges. During a meeting in Addis Ababa in April 1995, the Assembly of Heads of State and Government resolved to revitalize IGADD and expand its scope of cooperation. The rebranded IGAD, launched at the 5th Summit of Heads of State and Government in Djibouti in November 1996, established a mandate focusing on food security, environmental protection, economic cooperation, and peace and security. These expanded objectives were designed to address both immediate crises and long-term developmental challenges [Source: African Union, IGAD].

IGAD’s vision is to create a resilient, peaceful, prosperous, and integrated region where all citizens enjoy a high quality of life. Its mission is to promote regional cooperation and integration, enhancing the efforts of member states to achieve peace, security, and prosperity. The overarching goal is the transformation of the region towards sustainable development, resilience, and stability. IGAD’s strategy and implementation plans have evolved to reflect these priorities, beginning with its first strategic framework in 1987. Subsequent iterations have refined the organization’s focus, aligning it with emerging regional and global challenges. The formulation of the Regional Strategy and Implementation Plan 2021–2025 marked a significant step in this process, providing a roadmap for achieving IGAD’s long-term Vision 2050 [Source: IGAD, About]. The IGAD Vision 2050 represents the organization’s commitment to transforming the region into an upper-middle-income economy by mid-century, emphasizing industrialization and inclusive socio-economic development. It envisions a future anchored on regional peace and security, macroeconomic stability, equitable resource distribution, and sustainable infrastructure development. The vision also prioritizes science, technology, and innovation as catalysts for growth, alongside climate change mitigation and efficient management of natural resources. This vision is being implemented through a three-phase program. The first phase focuses on leveraging natural resources through the application of science and technology. The second phase emphasizes industrialization to diversify the region’s economies, while the third phase seeks to create a knowledge-driven economy. The first ten years of this vision, within which the current strategy falls, emphasize structural transformation through value addition, industrial diversification, and the sustainable utilization of natural resources. Achieving these goals requires robust coordination across regional, national, and global levels, supported by appropriate policies, regulatory frameworks, and financial stability [Source: IGAD, About].

Peace and security remain at the core of IGAD’s mandate, reflecting the region’s history of conflict and political instability. IGAD has been actively involved in conflict prevention, resolution, and peacebuilding efforts. One of its significant contributions was the deployment of the IGAD Peace Support Mission in Somalia (IGASOM) in 2006, following approval by the African Union Peace and Security Council [Source: UNECA, IGAD]. Although IGASOM was eventually replaced by the African Union Mission in Somalia (AMISOM) in 2007, IGAD has continued to play a crucial role in supporting Somalia’s Federal Government. Initiatives such as AMISOM and its successor, the African Union Transition Mission in Somalia (ATMIS), reflect IGAD’s enduring commitment to stability in the region. Beyond Somalia, IGAD has mediated peace processes in South Sudan and Sudan, demonstrating its capacity to address complex regional conflicts [Source: UNECA, IGAD].

Despite its achievements, IGAD faces significant challenges in fulfilling its mandate. The region’s persistent conflicts, political instability, and economic disparities pose obstacles to progress in regional integration. Additionally, the impacts of climate change and global economic volatility exacerbate existing vulnerabilities. Financial constraints remain a major issue, with IGAD relying heavily on donors to fund its programs. Strengthening the organization’s financial independence and institutional capacity is crucial for its long-term sustainability [Source: IGAD, About]. The establishment of IGAD marked a turning point for regional cooperation in Eastern Africa, offering a platform for addressing shared challenges and fostering collective growth. Its journey from IGADD to IGAD reflects a continuous effort to adapt to the region’s evolving needs, expanding its focus from drought and disaster mitigation to include peacebuilding, economic integration, and sustainable development. The organization’s strategic frameworks and Vision 2050 provide a clear roadmap for transforming the region into a hub of stability, prosperity, and innovation [Source: IGAD, About]. IGAD’s role as a mediator in regional conflicts and its efforts to build resilience to climate change highlight its importance in addressing the complex challenges faced by its member states. [Source: IGAD, About]

Structure and organizations of IGAD

IGAD operates through a structured hierarchy of policy organs designed to address regional challenges effectively and enhance cooperation among its member states. The highest decision-making body is the Assembly of Heads of State and Government, which serves as the supreme policy-making organ of IGAD. Comprising the leaders of the member states, the Assembly meets annually to determine objectives, set guidelines, and approve programs. A chairman is elected on a rotational basis among the member states, ensuring equal representation and leadership. The second tier of IGAD’s structure is the Council of Ministers, which includes the Ministers of Foreign Affairs and another designated focal minister from each member state. The Council plays a critical role in formulating policies, approving the work programs, and reviewing the annual budget of the Secretariat. It convenes biannually to ensure alignment between regional priorities and the activities of IGAD’s administrative and technical arms [Source: IGAD, About]. The Committee of Ambassadors represents the third tier of IGAD’s governance. It consists of ambassadors or plenipotentiaries from member states accredited to Djibouti, the location of IGAD’s headquarters. This body meets as needed to provide advice and guidance to the Executive Secretary, ensuring that the organization’s activities are aligned with the interests of member states [Source: IGAD, About].

The Secretariat serves as IGAD’s executive body, coordinating the implementation of regional programs and projects. Headed by an Executive Secretary appointed by the Assembly of Heads of State and Government for a renewable four-year term, the Secretariat facilitates the formulation of regional initiatives in key priority areas, mobilizes resources, and strengthens the infrastructure necessary for executing regional policies. Supporting the Executive Secretary are several specialized divisions, each addressing specific areas such as agriculture and environment, economic cooperation and regional integration, health and social development, peace and security, administration and finance, and planning, coordination, and partnerships [Source: UNECA, IGAD]. In addition to these divisions, IGAD operates several specialized institutions and programs located across its member states. These include the Conflict Early Warning and Response Mechanism (CEWARN), the IGAD Security Sector Programme (ISSP), the Centre for Pastoral Areas and Livestock Development (ICPALD), the Climate Prediction and Applications Center (ICPAC), and the Regional AIDS Programme (IRAPP). Each of these entities is dedicated to tackling specific challenges in the region, ranging from conflict prevention to environmental management and public health. [Source: UNECA, IGAD]

As one of the eight recognized Regional Economic Communities (RECs) under the African Union, IGAD plays a vital role in advancing the African Economic Community (AEC) agenda. The IGAD region’s strategic location, ecological diversity, and vast resources provide a strong foundation for regional cooperation. Moreover, its cultural interconnectedness and shared transboundary resources facilitate natural integration. The region hosts several United Nations agencies and the African Union Commission in Addis Ababa and Nairobi, enabling IGAD to leverage high-level policy dialogue and enhance coordination with global and continental bodies [Source: IGAD, About]. IGAD’s strength lies in its ability to mobilize political will among its member states. Despite bilateral differences, member states consistently demonstrate a commitment to regional cooperation through active participation in IGAD meetings, financial contributions, and support for key initiatives. This unity is evident in IGAD’s role in addressing regional conflicts, such as the peace processes in Sudan and Somalia, and the establishment of political instruments like CEWARN and ISSP [Source: IGAD, About].

The IGAD Partners Forum (IPF) is another strength of the organization, providing a venue for dialogue between IGAD and its development partners. Through this forum, IGAD coordinates regional interventions, aligns partner programs with regional priorities, mobilizes resources, and monitors the implementation of supported projects. Capacity-building initiatives, such as the Institutional Strengthening Action Programme (ISAP), further bolster IGAD’s capabilities [Source: African Union, IGAD]. These initiatives include identifying training needs, developing targeted programs, and organizing activities that address cross-cutting themes like information management, gender equality, and conflict mediation. IGAD’s Secretariat has increasingly become a key player in regional coordination and advocacy, often representing the collective interests of its member states in international forums. This role is particularly important given the region’s vulnerability to challenges such as conflict, climate change, and economic instability. By fostering collaboration and promoting shared solutions, IGAD continues to build a foundation for sustainable development and stability in Eastern Africa [Source: African Union, IGAD]. The organization’s strategic location and institutional framework enable it to address complex regional issues effectively.

Most important projects of IGAD

IGAD serves as a critical regional body in Eastern Africa, striving to address multifaceted challenges and enhance cooperation among its member states. Rooted in the principles outlined in Article 7 of its founding Agreement, IGAD's objectives are strategically designed to foster development, stability, and integration within the region. This mission is operationalized through key projects and initiatives across its five thematic pillars [Source: African Union, IGAD]:

Agriculture, Natural Resources and Environment;
Economic Cooperation and Regional Integration;
Health and Social Development;
Peace and Security;
Corporate Development Services.

IGAD’s overarching goals are [Source: African Union, IGAD]:

Regional Integration and Economic Cooperation: IGAD seeks to harmonize policies in trade, customs, transport, communications, and agriculture, promoting free movement of goods, services, and people. Through initiatives like developing coordinated infrastructure in transport and telecommunications, IGAD supports cross-border trade and investment [Source: IGAD, About].
Food Security and Environmental Sustainability: IGAD promotes regional food security through sustainable resource management and environmental protection. Programs are designed to combat drought, desertification, and other natural disasters, which remain significant challenges in the region [Source: IGAD, About].
Infrastructure Development: A priority is enhancing regional infrastructure, particularly in transport, energy, and communication. Improved connectivity aims to facilitate trade and integration while driving economic growth [Source: IGAD, About].
Peace and Security: IGAD plays a pivotal role in conflict prevention, management, and resolution. It supports mechanisms for dialogue and cooperation to address inter-state and intra-state conflicts, terrorism, and other security threats [Source: IGAD, About].
Human and Institutional Capacity Building: IGAD invests in research, science, and technology while promoting training and capacity development at regional and national levels to support sustainable development [Source: IGAD, About].
Social Development: Addressing health, education, and social issues is integral to IGAD's mission. Special attention is given to youth empowerment, gender equality, and addressing urbanization challenges [Source: IGAD, About].

Some projects already implemented by IGAD include the Drought Disaster Resilience and Sustainability Initiative (IDDRSI), a flagship project aimed at enhancing resilience to drought and climate change. This initiative involves capacity building, sustainable land management, and water resource development. Another significant project includes efforts to preserve biodiversity and address land degradation through the IGAD Biodiversity Management Program. IGAD also focuses on promoting trade and economic integration through cross-border trade facilitation projects and regional infrastructure development. It supports the implementation of the African Continental Free Trade Area (AfCFTA) by harmonizing trade policies and removing barriers. The organization also prioritizes integrating regional markets to boost competitiveness and attract investment. IGAD runs programs addressing public health issues such as HIV/AIDS and pandemics. The organization also focuses on migration management through the IGAD Regional Migration Policy Framework, which seeks to ensure safe, orderly, and regular migration and to protect migrants' rights. Urbanization and youth empowerment are addressed through education and employment initiatives tailored to the region’s demographic trends [Source: IGAD, About].

IGAD’s Conflict Early Warning and Response Mechanism (CEWARN) plays a critical role in monitoring and mitigating potential conflicts in the region. The IGAD Security Sector Program (ISSP) works on counter-terrorism, arms control, and preventing transnational crimes. IGAD has been instrumental in facilitating peace processes in Somalia, South Sudan, and Sudan, contributing to regional stability. IGAD invests in strengthening institutional capacities and governance across member states[Source: African Union, IGAD]. It emphasizes transparency, accountability, and social inclusion in governance structures. Capacity-building programs enhance the ability of regional and national institutions to implement IGAD’s strategic objectives effectively. To achieve its objectives, IGAD partners with key stakeholders, including international organizations like the African Development Bank, European Union, and United Nations agencies. Collaboration with civil society organizations and private-sector actors ensures comprehensive and inclusive development strategies. The IGAD Partners Forum (IPF) is a platform for engaging development partners and mobilizing resources for regional projects. IGAD's work is carried out in a region marked by diverse challenges, including rapid population growth, urbanization, and environmental degradation [Source: African Union, IGAD]. Agriculture remains a cornerstone of the region's economy, contributing significantly to GDP and employment, yet vulnerability to climate change and natural disasters persists. Economic diversification is limited, with high youth unemployment posing a risk to stability. Urban centers face infrastructure deficits and social tensions due to rapid growth and migration from rural areas. Despite these challenges, IGAD’s focus on good governance, infrastructural development, and socio-economic inclusivity aims to harness the region’s potential. Improved governance structures and democratic reforms in member states are fostering an environment conducive to sustainable development [Source: African Union, IGAD].

IGAD and Free Movement of People

The Intergovernmental Authority on Development (IGAD) has played a pivotal role in promoting regional integration in the Horn of Africa, with the free movement of people as a central pillar of its policy framework. The adoption of the IGAD Protocol on Free Movement of Persons in June 2021 was a milestone in the organization’s efforts to enhance cross-border mobility within its member states. The Protocol aims to provide a structured and effective framework for the free, safe, and orderly movement of individuals across borders within the IGAD region. To date, five IGAD Member States — Sudan, South Sudan, Ethiopia, Uganda, and Kenya — have signed the Protocol, signaling their commitment to advancing regional cooperation and integration [Source: IGAD, Uganda Signs the IGAD FMP]. The Protocol has a multifaceted approach that addresses several pressing issues facing the region, with particular emphasis on pastoralism, economic integration, and rights-based migration governance. The Protocol's most immediate focus is on facilitating the cross-border mobility of transhumance livestock herders, whose livelihoods depend on the ability to move freely across borders in search of water and pasture. Pastoralism is a critical economic activity in many IGAD member states, especially in arid and semi-arid regions. In these areas, where resources such as water and pasture are often scarce, the free movement of people and livestock is vital to preventing conflicts and mitigating tensions over access to these resources. The Protocol not only aims to ensure the free movement of these pastoralists but also focuses on building regional cooperation to manage shared resources and foster peaceful coexistence among neighboring countries. This aspect of the Protocol addresses the causes of conflict in the region and promotes the coordination of responses to resource-based challenges [Source: IGAD, Uganda Signs the IGAD FMP].

In addition to addressing pastoral mobility, the Protocol is designed to foster greater economic integration by promoting the movement of workers across borders. The economic landscape in the IGAD region is marked by structural challenges, including high levels of unemployment, particularly among youth, and limited access to decent work. Labour migration has the potential to alleviate some of these pressures by providing opportunities for work in neighboring countries. Migrants often fill critical gaps in the labour market by taking up jobs that are in demand but underserved by local workers. This helps sustain the economic growth of destination countries while addressing employment challenges in countries of origin. By facilitating the free movement of workers, the Protocol aims to unlock economic opportunities and contribute to broader regional integration goals, including the expansion of trade, investment, and the establishment of economies of scale [Source: IGAD, Kenya Signs the IGAD FMP]. The implementation of the Protocol is also firmly rooted in a rights-based approach to migration governance and management. Migrants often face significant challenges, including exploitation, trafficking, and lack of access to legal migration channels. The IGAD Protocol seeks to provide legal frameworks to ensure safe and orderly migration while promoting the protection of migrants' rights. This includes improving access to fair recruitment practices, upholding the rights of migrants in destination countries, and ensuring that migration is undertaken through legal channels. By aligning with international human rights standards, the Protocol sets the stage for addressing the vulnerabilities of migrants and ensuring their protection across the region [Source: IGAD, Uganda Signs the IGAD FMP].

The journey toward realizing the free movement of people in the IGAD region, however, began well before the adoption of the Protocol in 2021. In fact, the groundwork for this initiative was laid much earlier, with significant steps taken by IGAD member states to address the challenges of migration and mobility. In 2012, IGAD adopted the Regional Migration Policy Framework, which provided a comprehensive approach to migration governance in the region. This framework highlighted the need for greater cooperation among member states to manage migration and mobility effectively. A year later, in 2013, the Heads of State and Government of IGAD adopted a Minimum Integration Plan, which laid out the roadmap for regional integration. The plan identified free movement of people as a key pillar of the integration agenda [Source: IGAD, Uganda Signs the IGAD FMP]. By 2020, IGAD member states had further solidified their commitment to regional mobility through the endorsement of the Protocol on Free Movement of Persons and Transhumance. The Committee of Ambassadors formally endorsed the Protocol on Transhumance in February 2020, while the Protocol on Free Movement of Persons was approved by the Ministers in charge of Internal Affairs and Labour. These steps marked significant progress toward realizing the vision of a region where people can move freely for work, education, and other opportunities without facing excessive barriers or restrictions [Source: IGAD, Uganda Signs the IGAD FMP].

Despite these strides, the process of adopting and operationalizing the free movement regime in the IGAD region has been complex, requiring consultations, negotiations, and capacity-building efforts. A major contributing factor has been the involvement of international partners, such as the European Union, the International Labour Organization (ILO), and the International Organization for Migration (IOM) [Source: ILO and IOM]. These organizations have supported IGAD in developing and implementing projects aimed at facilitating the free movement of people and improving migration governance in the region [Source: IGAD, Kenya Signs the IGAD FMP]. One of the key projects funded by the European Union is the initiative "Towards Free Movement of Persons and Transhumance in the IGAD Region," which has been crucial in advancing the implementation of the Protocol. This project, which is implemented by IGAD in collaboration with the ILO, has made contributions to the development of the Protocol. The project’s activities focus on generating research and evidence, building the capacity of key labor market actors, and promoting a rights-based approach to migration governance. Research conducted under this project has helped inform the drafting and negotiation of the Protocol by providing valuable data on migration trends, challenges, and opportunities within the region [Source: ILO and IOM]. The project has also worked to increase the capacity of IGAD and its member states to manage labor migration effectively. This includes enhancing the ability of governments to collect and analyze data, develop national migration policies, and respond to the challenges posed by both regular and irregular migration. Capacity-building activities have targeted both technical experts and senior officials, with training workshops and forums designed to equip them with the knowledge and skills needed to address migration issues at both national and regional levels [Source: ILO and IOM].

The promotion of a rights-based approach to migration governance has been another critical focus of the project. This involves encouraging the ratification and implementation of international labor standards and conventions on migrant workers, as well as supporting member states in developing national labor migration policies and bilateral agreements. The project also emphasizes fair recruitment practices and aims to improve the working conditions of migrant workers across the region. This component of the project is particularly important in addressing the vulnerabilities faced by migrant workers, especially those engaged in low-wage, low-skill jobs [Source: ILO and IOM]. Another important aspect of the project is its focus on promoting tripartism and social dialogue in the context of labor migration governance. In many countries, the involvement of workers' and employers' organizations in migration policy discussions has been limited. The ILO’s project seeks to rectify this by supporting the active participation of these organizations in policy development and by fostering dialogue between governments, employers, and workers on migration-related issues. This approach ensures that the voices of all stakeholders are heard, and that migration policies are developed in a way that benefits both migrants and the countries they move to [Source: ILO and IOM].