In Durban, SADC reaffirms its support for Madagascar's Refoundation process. It welcomes steps already taken while reiterating principles to guide the process ahead.
Inclusive governance. This term appears in the section of the communiqué concerning Madagascar, issued at the 46th Summit of Heads of State and Government of the Southern African Development Community (SADC) on Monday.
Following the Durban meeting in South Africa, the regional organization sends a favorable signal to Madagascar. Colonel Michaël Randrianirina, head of state, noted this to the press yesterday in the VIP lounge at Ivato airport. "The previous communiqué was more acerbic and even sparked controversy," he stated, referring to SADC's extraordinary summit communiqué on Madagascar from June 29.
In point 9 of the communiqué, it is reported that "the Summit congratulated the Republic of Madagascar for the constructive consultations" conducted under its Committee of Elders, among others. It also affirms "SADC's commitment to support Madagascar's Refoundation process and development program." The document adds principles that, according to the regional organization, should guide the process ahead.
These include "the promotion of inclusive governance, democratic institutions, accountability, human rights, citizen participation and return to constitutional normalcy." Since publication, the term "inclusive governance" has crystallized the attention of political actors and observers. It is a notion that frequently appears in communiqués and recommendations related to crisis mediation.
In the political arena, some read it as a recommendation to broaden the circle of power, or even to share power among crisis stakeholders or different political tendencies. A diplomat contacted indicates that indeed, if "inclusive governance" is read purely politically, "it could imply power-sharing."
Relative Calm
The diplomat notes, however, that the subject cannot be reduced to the political framework. He draws attention to how the principles guiding the return to constitutional normalcy are arranged. "The meaning of inclusive governance here can aim toward a crisis exit accepted by all components of society and which avoids new crises," he explains.
While "inclusive governance" initially suggests political opening of power, the fact that it is cited alongside other crisis-exit principles "implies it has broader scope," the diplomat insists. The idea would be to ensure all components of society participate in defining the country's political and institutional future. The term can also invite national actors to examine structural causes of the crisis, such as power concentration, weak checks and balances, and electoral or institutional dysfunctions.
This brings us back to the national consultation initiative. Meant to form the inclusive foundation of the refoundation process, national consultation has been slow to start. According to publications on political crisis mediation, "inclusive governance" also invites applying the accountability principle—consideration of population concerns. "Accountability, human rights, citizen participation" are all inscribed in point 9 of SADC's communiqué.
At the airport yesterday, Colonel Randrianirina told the press that the regional organization's communiqué "should not be subject to interpretation," adding: "What matters is that SADC commits to supporting refoundation. It is on the basis of this SADC confidence that we will conduct the refoundation leading to elections." The head of state emphasizes that the Southern African Development Community "has confidence that we will succeed."
Beyond the refoundation process leading to constitutional normalcy, the regional organization also stresses the importance of preserving "the relative calm" in the country. Here too, the choice of term may not be insignificant. Thus, the summit communiqué "urges Madagascar's stakeholders to preserve the relative calm prevailing in the country and to favor dialogue to express their demands."
Garry Fabrice Ranaivoson