By Dr. Kariuki Muigua, PhD (Leading Environmental Law Scholar, Policy Advisor, Natural Resources Lawyer and Dispute Resolution Expert from Kenya), Winner of Kenya’s ADR Practitioner of the Year 2021, ADR Publication of the Year 2021 and CIArb (Kenya) Lifetime Achievement Award 2021*
The African Commission on Human Rights is supposed to receive and consider cases (‘communications’) alleging human rights violations by any State party to the African Charter and make quasi-judicial ‘recommendations’. The jurisdiction of the Commission is compulsory and automatic as it extends to all States parties to the African Charter. However, while the African Commission on Human and Peoples’ Rights (African Commission) task is to protect and uphold human rights, it is not a judicial body, but rather a supervisory body, with no prosecutorial powers over states for breaching human rights. The choice of a non-judicial a Commission instead of a court was informed by, inter alia, that the selection of a non-judicial procedure was more in keeping with African tradition. On its part, the African Court of Justice and Human Rights was established and operates on the understanding that its role and that of the Commission are complementary. The African Court of Justice and Human Rights is now designated as the main judicial organ of the African Union with its prosecutorial powers.
Some of the main achievements of the African Commission since its inception have been listed as including the development of standards on the various provisions of the African Charter through: decisions on admissibility of communications mainly concerning exhaustion of domestic remedies; decisions on merits of communications; adoption of resolutions, principles/guidelines, general comments, model laws and advisory opinions; special rapporteurs and working groups to deal with thematic human rights issues; consideration of State reports and conducting on-site visits; and referral of communications (unimplemented interim measures, serious or massive human rights violations, or Commission’s admissibility and merits finding) to the African Court.
Notably, the Protocol on the Statute of the African Court of Justice and Human Rights, 2008 introduced two chambers in the newly constituted Court after the merger, to have two (2) Sections; a General Affairs Section composed of eight (8) Judges and a Human Rights Section composed of eight (8) Judges. Article 29 of the Protocol outlines the entities which are eligible to file cases at the Court as follows: State Parties to the present Protocol; the Assembly, the Parliament and other organs of the Union authorized by the Assembly; a staff member of the African Union on appeal, in a dispute and within the limits and under the terms and conditions laid down in the Staff Rules and Regulations of the Union. However, the Court is not open to States, which are not members of the Union. The Court also does not have jurisdiction to deal with a dispute involving a Member State that has not ratified the Protocol.
In addition to the foregoing, the following entities are also entitled to submit cases to the Court on any violation of a right guaranteed by the African Charter, by the Charter on the Rights and Welfare of the Child, the Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Women in Africa, or any other legal instrument relevant to human rights ratified by the States Parties concerned: State Parties to the present Protocol; the African Commission on Human and Peoples’ Rights; the African Committee of Experts on the Rights and Welfare of the Child; African Intergovernmental Organizations accredited to the Union or its organs; African National Human Rights Institutions; Individuals or relevant Non-Governmental Organizations accredited to the African Union or to its organs, subject to the provisions of Article 8 of the Protocol.
Without prejudice to its competence to rule on issues of compensation at the request of a party by virtue of paragraph 1(h), of Article 28 of the present Statute, the Court may, if it considers that there was a violation of a human or peoples’ right, order any appropriate measures in order to remedy the situation, including granting fair compensation. 40 The decision of the Court is binding on the parties. Subject to the provisions of paragraph 3, Article 41 of the Statute, the judgment of the Court is final. However, the Court may either interpret or revise its own judgment at the request of a Party. It has been noted that unlike its regional counterparts—the Inter-American Court of Human Rights or the European Court of Human Rights (the Inter-American Court and the European Court, respectively)—the African Court does not restrict itself to considering human rights violations exclusively under the regional human rights system under which it was established.
In Chacha v Tanzania (admissibility) (2014), the African Court reiterated that ‘as long as the rights allegedly violated are protected by the Charter or any other human rights instrument ratified by the State concerned, the Court will have jurisdiction over the matter.’ Some commentators have argued that the effect of the above is that the Court’s authority to issue binding decisions on “any other relevant human rights instrument ratified by the States concerned” means that its jurisdiction extends beyond applying and interpreting just the African Charter. The implication of this is that the African Court not only has potentially greater powers than any adjudicatory body established under any of the international bill of rights but with non-prosecutorial powers but also the Court’s broad adjudication powers would mean that where a particular right is not covered in the African Charter, a citizen of a Member State falling within the Court’s jurisdiction still could be protected if that right is contained in another international human rights treaty ratified by a member state. The challenge would arise in enforcement of such rights in the member state if it does not recognise the rights in question in its domestic laws, for instance, in the case of lesbian, gay, bisexual, transgender, queer and intersex (LGBTQI) rights.
Notably, while the Court has power to issue binding decisions, within the African human rights system, the Court’s powers cannot be considered unique: The Commission has the same jurisdiction on human rights issues, but its decisions are not binding. This raises the question of how to separate the jurisdiction of the two institutions especially regarding serious cases which can be handled by either of the two bodies. This is because, while the Commission may decide to hear and determine a case itself instead of referring it to the Court, the question of enforcement comes into play. It really matters because it would mean that where the Commission decides to hear the case, the parties thereto may be denied the chance to enjoy real justice as the state parties are not obligated to enforce the same since the Commission’s decisions are not binding. The challenge is complicated even further by the fact that while the Commission has automatic jurisdiction on all African States by virtue of their membership to the African Charter, the membership to the Court is by ratification and an optional declaration for member states to allow their citizens and NGOs to have direct access to the Court, as discussed below.
*This is article is an extract from an article by Dr. Kariuki Muigua, PhD, Kenya’s ADR Practitioner of the Year 2021 (Nairobi Legal Awards), ADR Publisher of the Year 2021 and Lifetime Achievement Award 2021 (CIArb Kenya): Muigua, K., “African Court of Justice and Human Rights: Emerging Jurisprudence,” Available at: http://kmco.co.ke/wp-content/uploads/2020/06/African-Court-on-Human-and-Peoples-Rights-Emerging-Jurisprudence-Kariuki-Muigua-June-2020.pdf. Dr. Kariuki Muigua is Kenya’s foremost Environmental Law and Natural Resources Lawyer and Scholar, Sustainable Development Advocate and Conflict Management Expert. Dr. Kariuki Muigua is a Senior Lecturer of Environmental Law and Dispute resolution at the University of Nairobi School of Law and The Center for Advanced Studies in Environmental Law and Policy (CASELAP). He has published numerous books and articles on Environmental Law, Environmental Justice Conflict Management, Alternative Dispute Resolution and Sustainable Development. Dr. Muigua is also a Chartered Arbitrator, an Accredited Mediator, the Africa Trustee of the Chartered Institute of Arbitrators and the Managing Partner of Kariuki Muigua & Co. Advocates. Dr. Muigua is recognized as one of the leading lawyers and dispute resolution experts by the Chambers Global Guide 2021.
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