The adoption of a police and judicial co-operation regime for the African Union

In 1991 the Treaty enacting the African Economic Community (AEC)1 was signed by the African Heads of State and Government.2 The AEC aims to establish regional free markets that would then be transformed into a continent-wide single market in six subsequent stages enabling the free movement of persons, goods, services, and capital until 2025 at the latest.3 However, to make sure that the free movement of persons in Africa would not also become a "free flow of criminals", the installation of a common market will require intensified police and judicial co-operation, information exchange and external border controls. 1 Treaty Establishing the African Economic Community adopted by the Heads of State and Government of Member States of the Organisation of African Unity in Abuja, Nigeria, 3 June 1991. 2 Art. 6(1) Treaty Establishing the African Economic Community. 3 Arts. 4(2)(h) and 4(2)(i) Treaty Establishing the African Economic Community. Furthermore, the age of globalisation calls into question the traditional concepts of sovereignty. Nowadays individual states are often unable to supervise their complete territory and battle to guard their borders against unwanted goods, people and ideas. Many facets of globalisation - including fast technological development and social and economic interaction - encourage governments to cooperate in order to try to achieve objectives that, acting on their own, they may not believe they can accomplish. Or to express the same thought in its negative sense: to fight unwanted consequences of this development, acting on their own, the states may not be able to achieve. This means that sooner or later the African States will have to address the problem of how to develop a police and judicial regime in criminal matters in order to fight against organised transnational crime. The question therefore is not whether the African States should engage in police and judicial co-operation, but rather what form it should take. The aim of this master treatise is to define the cornerstones of a possible future adoption of a police and judicial regime for the African Union (AU). There are numerous police and judicial co-operations around the world of various types so to make the task more manageable this treaty looks at the European Union (EU) in some detail and uses it as an example or as a guideline to sketch out a possible development of a police and judicial co-operation within the AU. This is for the reason that the EU has succeeded in creating a sophisticated regime of police and judicial co-operation and thus serves as a model of how co-operation levels can be created, handled, and preserved. The EU also serves as an example of how certain obstacles can make co-operation difficult or even prevent efforts for an effective transnational police and judicial co-operation. However, the current EU is the result of the specific circumstances in which its Member States and organs have responded to the economic and political changes they have been faced with. The AU has to operate amidst a political setting and various other circumstances that are very different. As a result the police and judicial co-operation regime of the AU will be very different from the EU model. This treatise argues that due to the vast number of participating states in the AU and the AU's decision-making practice, the continental level is not an appropriate point of departure for the AU to adopt a police and judicial co-operation regime. Police and judicial co-operation within the AU will at first have to be pursued at a sub-regional level. The co-operation should start at the already subdivided Regional Economic Communities (RECs) established by the AEC. Only in time, if at all, will the sub-regional markets be prepared to merge into a continent-wide integration. This is why at the present time the AU will have to accept a mere supervising and stimulating part in pursuing the ultimate objective of developing a police and judicial co-operation on a continent-wide level. Furthermore, this treatise assesses that the huge number of economic, social, and political challenges impair the AU's action ability with the result that it will not be able to establish a supranational legal body comparable to that of the EU in the near future. Also, the African Heads of State and Government are too interested in keeping their sovereign powers to themselves. This is why in Africa integration is more likely to be achieved with an intergovernmental approach. Therefore, police and judicial co-operation should first be exercised by means of informal meetings of the Interior and Justice Ministers and any resulting acts should be classified as (traditional) public international law. This is not to imply that the AU has no role to play here, for said meetings will have to be coordinated and supervised. In order to do justice to its supervising role it is necessary to empower the organs of the AU. This treatise analyses that for the AU to establish an efficient institutional framework, it is extremely important that the Assembly's monopoly over proposing legislation and establishing new organs is changed. Consensus decisions between fifty-four Member States would in an optimal case be replaced by a system where no organ is in total control. Finally, this treatise emphasises the necessity to push ahead with the development of the regional free markets as envisioned by the AEC. Similar to the development in the EU, this will bring about new challenges in combating new types of transnational crimes. This treatise demonstrates that this challenge might bring the necessary momentum to formally introduce police and judicial co-operation in criminal matters, usually a high policy area, on the agenda of the AU. In conclusion, this treatise shows that co-operation in such a sensitive area as security policy first and foremost needs a sufficient amount of trust between the decision makers of the involved states. To develop this necessary trust and the processes building upon this, this treatise argues that a regular meeting between the Interior and Justice Ministers, either inside or outside the framework of the AU, should be launched. Through these meetings the AU could gradually develop a platform for discussion in the area of criminal law and thereby slowly intensify its information exchange and operational co-operation. The history of the EU has shown that the development of a supranational legal system first and foremost requires mutual trust in each other's respective legal systems. Trust is generated by communication in an informal atmosphere. Therefore, this treatise argues that a colloquial intergovernmental co-operation within the field of criminal law is the correct approach for the AU to develop a police and judicial co-operation in criminal matters