When the Anglophone Crisis meets Elections: advice from a Constitutionalist
By Barrister Paul Simo, Esq*
Cameroon’s political firmament is at present gripped by two major quandaries: that of resolving the first major crisis bordering on armed conflict to have affected the country in close to 50 years (the Anglophone crisis), and renewing the 5-year electoral mandates of the members of its Lower House of Parliament (the National Assembly), as well as elected Municipal Councilors (who in turn vote local government Mayors). The said mandates have already been extended for one (1) year. Both are indisputably national priorities, and both affect the NW/SW Regions in a particular manner. However, as every manager knows, there is a distinction between what is important, and what is urgent. All important tasks are not urgent, but an urgent task (even if unimportant) left unattended to, may dramatically increase its importance.
In the coming days, we will be releasing a major, longitudinal study of Special Status, Special Regional Autonomy, and Special Administrative Regions in countries around the world, informed by the crisis affecting the Northwest and Southwest Regions. The said 40-page study contains proposals for a Legislative Whitepaper on the Special Status framework for Cameroon’s Anglophone regions. One of the fundamental pre-requisites we observe in Special Status regions around the world, is that for them to be created, and for their attributes to be modified, legislation adopted by the national Parliament is not enough. Due to the fact that they create a unique type of relationship between a region of the country and its central State, Special Status arrangements need to be ratified through a democratic vote by a constituent assembly or by the elected representative body (legislature) of the Regions in question.
Presently, the Northwest and Southwest Regions of Cameroon do not have elected Regional Councils (same with the country’s other Regions). Therefore, any crafter of Special Status arrangements for both regions needs to scan keenly for which elected, representative body will stand in their stead, to validate the Special Status law once it is enacted by the National Legislature. It does not take particular constitutional genius to discern that the only democratically-elected alternative in place is to have recourse to a sui generis (specially-constituted) group of elected representatives from both regions, namely their Senators, Members of the Lower House (National Assembly), and Municipal Councilors. The current composition of those representatives from the Northwest and Southwest regions, elected in 2013, hold a popular elected mandate.
If elections were to be held in the Northwest and Southwest regions in February 2020, it must be assumed either that the current group of regional representatives will approve the Special Status content before the election, or that the February 2020 election will produce a democratically representative group of elected officials. And furthermore, that there will prevail a climate of sufficient calm and security in both regions, to allow a meaningful exercise of the most fundamental civic duty. None of the above assumptions sound feasible, let alone likely.
It must also be borne in mind that Special Status or Regional Autonomy arrangements, where undertaken to resolve a political crisis bordering on an armed conflict, must be embedded in a peace agreement which reaches out to, entices, and involves the belligerent armed groups. The August 2005 agreement signed in Helsinki, Finland, and brokered by the renowned Finnish Statesman and Nobel Peace Prize Winner, Martti Ahtisaari, which brought to and end the separatist conflict in the Indonesian Island province of Aceh (fought for three decades between 1976 and 2005) is a shining example in this regard.
That peace agreement contained the prospect of regional autonomy, and succeeded to wean off the Free Aceh Movement (an armed insurrection that had received support for armed struggle from as far away as Muammar Gaddafi’s Libya), to renounce its separatist project and aspire for regional autonomy within a Unitary State of Indonesia. That peace agreement continues to hold to this day, 14 years later. The Peace Agreement (2005) was then reflected in a Special Status Law on the Governance of Aceh (2006). Special Status Legislation and Peace Agreement went hand in hand, whereas in Cameroon’s context, the Special Status process at national level, and the existing and undeniable early-stage peace process with armed groups are operating in silos, heightening the risk that the latter will later fundamentally revise the former.
To return to the timing of elections in the Northwest and Southwest regions, the most likely prospect, given current incidents, is that elections convened in February 2020 (even assuming a Special Status law has been passed) will meet hostile terrain. It is not the civic, traditional, and political Anglophone elites who met in Yaoundé from 30 September to 4 October (and endorsed the regional Special Status proposal) who are wreaking havoc in the two Regions, nor is it they who will disrupt an election therein. There is therefore the risk that an election held in the two Regions will have extraordinarily low levels of voter participation (anywhere from 1 to 2 % of the registered voters), casting a major doubt on the democratic, electoral legitimacy of the resulting Municipal Councilors and elected Lower House Representatives. To give such an unrepresentative group (since Regional Council elections are not also yet foreseen) the onus of endorsing and granting Regional imprimatur to the Special Status arrangements, is a way of killing this important prospect for peace in the two Regions.
It is therefore perennial that no-one who means well for resolution of the crisis should argue for elections to take place within those Regions without considering the dynamics above. Putting in place unrepresentative electoral “representatives” of both Regions, knowing fully well that those Regions’ representatives need to validate and endorse regional Special Status legislation to give it legitimacy, is culpable.
In order to address the counterargument that the entire country’s elected institutions cannot be left indefinitely in a limbo, the best approach for Cameroon will be to proceed with a split election. Hold the Legislative and Municipal elections in the other eight (8) regions of the country and defer the elections in the NW/SW for another year or so, pending the Special Status Legislation and Peace Agreement. (By the way, if deep insecurity blights parts of the Far North and renders elections materially impossible, they can be deferred, and by-elections conducted when security conditions improve). The practice of conducting by-elections is not anathema to democracies around the world – those are also convened when a local or regional election result is overturned in postelectoral litigation.
The argument that Cameroon is one unique national “constituency” and no citizen should be disenfranchised, falls on its face: Article 9 of Cameroon’s Constitution envisages both a State of emergency and a State of war, which can adequately, legally justify deferring elections. And it is questionable what “enfranchisement” of their residents occurs when those Regions have to hold “elections” amidst violence, impracticability of road transport, and massive internal displacement of their citizens across the country.
* The author specializes in the areas of constitutional, public, and international law. For 20 years (1999 to 2018) he worked on countries undergoing peace-processes and political transitions in East, Central, and West Africa. Between 2007 and 2018, he served the United Nations at Headquarters, and in multi-dimensional peace operations in Africa. He advised senior UN diplomats working on the following countries’ peace/reconstruction processes: Uganda (LRA conflict), DR Congo (regional conflagration in the 2000s), Burundi (2000s peace process), Sierra Leone and Liberia (Mano River region conflicts in the early 2000s), and the Central African Republic (escalation of politico-religious violence since 2013). He was Law valedictorian of the first graduating cohort of the University of Buea, Cameroon (LL.B. 1996) and holds a graduate law degree, summa cum laude, from the Catholic University of Notre Dame, Indiana. He is an Attorney at the Bar of New York (2001) and a Barrister in Cameroon (2010). The views expressed herein are solely those of the author. He is based in Douala and Yaoundé, Cameroon. Email: firstname.lastname@example.org.