State of Financing of the African Union: A Wake-Up Call for Continental Ownership and Parliamentary Empowerment

In a persuasive address to the Pan-African Parliament during its 5th Ordinary Session of the Sixth Parliament, H.E. Ambassador George M. Orina, Kenya’s Permanent Representative to the African Union and Chairperson of the PRC Sub-Committee on General Supervision and Coordination of Budgetary, Financial and Administrative Matters (GSCBFAM) delivered a sobering yet hopeful presentation on the State of Financing of the African Union (AU).

The Message: Africa Must Finance Its Own Future

Ambassador Orina opened his remarks by reaffirming the African Union’s foundational vision—unity, peace, prosperity, and an empowered citizenry, as enshrined in Agenda 2063 and the AU Constitutive Act. He emphasized that for Africa to play a meaningful role on the global stage, it must strengthen its institutional architecture and take financial responsibility for its development trajectory.

He recalled the 2015 Johannesburg Decision where AU member states committed to self-financing: 100% of operational costs, 75% of programme budgets, and 25% of peace and security operations. However, a decade later, this ambitious vision remains largely unfulfilled.

“We become only as effective as we are able and willing to fund our programmes and activities,” he warned, echoing the urgency for Africa to stop outsourcing its sovereignty to external donors.

Three Critical Themes in AU Financing

Ambassador Orina anchored his presentation around three core issues:

Self-Reliance and Strategic Investment: The Ambassador noted that global geopolitical shifts—including war in Europe, the shrinking space for humanitarian aid, and economic shocks from the COVID-19 pandemic—necessitate a new urgency in financing Africa's priorities internally. He referenced President William Ruto’s call for a Special Summit on AU Reforms and Financing as a golden opportunity for course correction.
Competing National Priorities: Acknowledging the fiscal pressures on member states—many of which are still emerging from the shadows of colonial underdevelopment, Orina cautioned against allowing domestic constraints to undermine Africa’s collective future. He pointed to the AU’s 2026 budget, which, at $200 million from member contributions, is 10% lower than the 2020 level—despite the growing number of AU institutions and mandates.
Reaffirming Multilateralism: Quoting former UN Secretary-General Dag Hammarskjöld, he noted that multilateral institutions may not deliver fast wins but are essential for long-term stability and development. He urged PAP to remain a staunch defender of this principle.

Institutional Expansion Without Commensurate Funding

Orina drew attention to the proliferation of AU institutions—including the AfCFTA, Africa CDC, and African Humanitarian Agency, while cautioning that their effectiveness is being compromised by persistent underfunding. Though some fiscal discipline has been achieved through the “Golden Rules” and the work of the F15 Ministers of Finance, he stressed the need for difficult decisions and a clear prioritization of resources.

Voices from the Floor: PAP Members Raise the Alarm

Following the address, a spirited debate unfolded, with PAP Members voicing frustration over financial constraints, institutional neglect, and the erosion of parliamentary credibility.

Key Themes from PAP Member Contributions:

Underfunding and Institutional Disrespect: Senator Tony Sibandze (Eswatini) commended Orina’s past defense of PAP but lamented the gross mismatch between PAP’s requested $5.8 million supplementary budget and the $650,000 allocated. He highlighted unfunded core activities and statutory obligations.
Continental Self-Sabotage and Economic Disunity: Hon. Menyani Zulu (Zambia) criticized Africa’s failure to harness intra-African trade and reliance on foreign imports, urging a mindset shift toward internal self-sufficiency.
MP Allowances and Equality Concerns: Hon. Majimbo Kalasinga (Kenya) condemned the equal treatment of MPs and clerks in AU observer missions. He likened the AU’s starvation of PAP to killing a loyal dog through neglect.
Accountability Starts at Home: Hon. Sawaibou Touray (Gambia) emphasized that PAP members must push their own governments to meet financial obligations. Blaming others, he argued, was a form of institutional abdication.
Political Marginalization of Parliament: Hon. Sakata Tawab Garry (DRC) lamented the AU’s failure to empower PAP, stressing that citizens cannot be mobilized behind a Parliament that is invisible and ineffective due to funding cuts.
Oversight and Transparency Deficits: Hon. Professor Margaret Kamar (Kenya) called for greater budget transparency and synergy among AU organs. She questioned how MPs could advocate for increased funding when denied access to expenditure data.
Welfare of MPs and Institutional Support: Fourth Vice President Hon. Mahamat Mamar Djidda (Chad) raised the dire lack of insurance, per diems, and logistical support for MPs, warning that without basic welfare provisions, the PAP risks collapse.
Third Vice-President Lucia Passos’ Call to Action: She decried the reality that 90% of PAP’s budget goes to salaries, leaving virtually nothing for programs. She called for the restoration of member entitlements and demanded that PAP be treated as a full AU organ, not a ceremonial body.
Senator Mungatana Danson (Kenya): He made a strong case for increasing PAP’s budget, expressing deep regret that the Parliament is shackled by financing rules that prevent it from operating with any fiscal independence. He noted that even when PAP is able to raise funds from partners, such funds must be deposited into AU accounts and can only be spent with AU authorization. This, he said, stifles institutional growth and undermines the Parliament’s credibility as a self-standing organ.

Ambassador Orina's Response: Acknowledgement, Transparency, and Commitments

Ambassador Orina responded with candor and detail:

Budget Allocation Realities: He explained that PAP received the lion’s share of the reserve fund balance after other critical demands including the AfCFTA and CEDAW, were funded. However, he admitted $650,000 was insufficient and pledged support for a supplementary request.
On MPs’ Allowances: He confirmed that a 2021 Executive Council decision removed MPs from AU allowance structures, but a review has been mandated and will begin in August 2025. He encouraged PAP to submit a comprehensive position paper to guide deliberations.
On Member State Contributions: Only 17 of 55 AU member states have implemented the 0.2% levy adopted in 2016 to finance the AU. Orina acknowledged structural and political hurdles, including bilateral trade agreements and domestic fiscal laws, but encouraged MPs to pressure national governments for compliance.
On Transparency and Budget Access: He acknowledged calls for greater transparency in budget processes and oversight. Orina encouraged PAP to align its own calendar with the AU budget cycle and take part in shaping financial priorities.
On Senator Mungatana’s Concern: Orina confirmed the policy requiring PAP-raised funds to be routed through AU accounts but acknowledged that this limits institutional flexibility. He suggested this could be reviewed through appropriate AU policy organs, especially if PAP leadership makes a formal proposal.
Innovative Financing: He supported exploring African-based institutional partnerships (e.g., AfDB, Afreximbank) and philanthropic contributions. However, external fundraising by PAP would require fresh policy decisions from AU organs.
On the Future of AU Financing: He reaffirmed President Ruto’s proposal for a Special AU Summit and urged PAP to prepare a unified position paper to influence upcoming deliberations on AU reform and financing.

A Turning Point for Parliamentary Empowerment

Ambassador Orina’s address and the subsequent debate made one thing clear: financing is not just an accounting issue—it is a test of political will, institutional vision, and continental solidarity.

As Africa faces global headwinds and domestic crises, the Pan-African Parliament's plea is simple yet profound: "Fund us if you want us to function." Whether AU leadership heeds this call remains to be seen, but this session has planted a critical seed for a more accountable, effective, and inclusive African governance architecture.