Over the past two weeks, the world’s media has been transfixed by two images that would have been unthinkable until recently: the image of an American president at war with his G7 allies and another one showing him basking in a delirious bromance with a ruthless North Korean dictator. What does one make of these images, of the deluge of daily news about global developments that are so overwhelming that it’s often hard to keep up, let alone understand?
Besides the twittering outbursts and theatrics of the unpredictable President Donald Trump and the great power rivalries within the teetering Western alliance and with a towering China (which seem to be slipping into fierce trade conflicts), world news headlines are dominated by an endless cacophony of catastrophes in various world regions: the endless wars, migration crises, and human rights abuses and atrocities committed by intolerant governments, terrorist organisations, and fundamentalist civil society zealots.
There are, of course, other powerful stories and forces, slow, subterranean and structural, which are upending the current global order with profound consequences for national, regional, and world political economies. They include the rise of dangerous populisms and the recessions of democracy, the generation of unprecedented wealth and deepening inequalities, the development of planetary consciousness and growth of political tribalisms, and the contradictory trajectories of the digital revolution that is simultaneously unleashing remarkable economic productivity and social connectivity while threatening to overwhelm humanity with the transformative powers of artificial intelligence, robotics, and the Internet.
I would like to suggest that some of the current global developments that flood the media, especially the growing tensions among and within the major global and regional powers and their respective alliances, can fruitfully be understood in the context of hegemonic shifts and contestations that occur periodically in world history. Hegemony comprises both hard power (military and economic dominance) and soft power (cultural and ideological supremacy). During moments of hegemonic transitions, intra-hegemonic rivalries and struggles between the declining hegemons and rising hegemons tend to intensify, often leading to regional and global wars, both hot and cold.
As a historian, I am only too aware that history doesn’t repeat itself in exact or predictable patterns, but neither is any moment including ours immune from the familiar rhythms of historical change. This is to suggest the need to go beyond the pronouncements or shenanigans of particular leaders, or momentary trends that may seem temporarily consequential but end up sinking in the quicksand of history without much trace. Students of world history and the world system have identified various conjunctures in the constructions, contestations, and transitions of regional and global hegemonies going back millennia.
Moments of hegemonic shifts are often triggered or accompanied by economic and structural crises and escalating political and ideological competition and conflict. In the field of economic history, which is my specialty, there are fascinating historical accounts of economic crises going back millennia and some of the hegemonic upheavals they engendered, reflected, and reinforced. A few recent examples will suffice.
In the late 19th century, there was the shift in economic and military power in Europe, which was then the centre of the world system – from Britain as the world’s first industrial power to Germany following the latter’s unification in 1871. This shift occurred during, and was exacerbated by, the long global depression of 1873-1896. At the same time, the world drifted towards the New Imperialism, expressed geographically in the colonial conquest of Africa and parts of Asia, and geopolitically in the outbreak of World War I.
Moments of hegemonic shifts are often triggered or accompanied by economic and structural crises and escalating political and ideological competition and conflict.
Western Europe emerged from World War I devastated and exhausted, paving the way for the rise of two new hegemonic powers, the United States and the Soviet Union. The two countries’ march to superpower status was accelerated by the Great Depression of 1929-1939 and World War II, notwithstanding the economic hardships the Depression unleashed in the USA, and the trail of destruction left by WWII in the USSR. The decolonisation of Africa and Asia occurred in the maelstrom of the new global order and emergence of the Cold War between American-led and Soviet-led geopolitical alliances.
This underscores the fact that moments of hegemonic transitions create both dangers and opportunities for the peripheries. The hegemonic shift of the late 19th century among the European powers brought Africa and Asia the historic disaster of colonisation while that of the mid-20th century by the huge subcontinental states of the USA and USSR brought them the momentous promises of decolonisation. What will the current reconfiguration in global hegemonies portend for Africa?
At the heart of the current conjuncture is the emergence of a multipolar world, following the demise of the former Soviet Union in the early 1990s and the erosion of the United States hegemony as the sole superpower since the early 2000s. It seems almost quaint to recall Francis Fukuyama’s triumphalist thesis on the “End of History”—the conceit that the great ideological struggles of history were over, vanquished by Western liberalism—which was proclaimed in the midst of American euphoria following the collapse of “actually existing socialism”. 9/11 and the rise of politicised religious fundamentalisms seriously dented this hollow ideological gloating. The rise of China and other emerging economies that claimed a growing share of the unevenly developed and highly unequal global economy put more nails in the coffin of American and Western supremacy.
At the heart of the current conjuncture is the emergence of a multipolar world, following the demise of the former Soviet Union in the early 1990s and the erosion of the United States hegemony as the sole superpower since the early 2000s.
On the day that President Barack Obama was inaugurated in January 2009, I wrote an essay on my blog, The Zeleza Post (closed in 2012), which was subsequently included in the collection of essays, Barack Obama and African Diasporas (2009). In the essay I stated that the challenges facing the new administration “are immense indeed: ending two foreign wars in Iraq and Afghanistan that have depleted the nation of treasure and trust…; managing the economic crisis and administering an effective stimulus package that will halt the economic recession and restore growth; expanding access to health care and improving the quality of education and overcoming the inequities of the prison industrial complex that have devastated African American and other minority communities; pursuing sound and sustainable domestic and global environmental policies; and promoting smart foreign policies and allegiance to multilateralism. The biggest challenge facing President Obama is how to manage the relative decline of American global supremacy in a world of new and emerging powers…”
The Obama administration tried to manage this challenge through existing multilateral institutions by roping in the emerging economies, championing such important global causes as climate change by signing the Paris Climate Agreement in April 2016, containing nuclear proliferation by signing, in July 2015, the 5+1 Iran nuclear deal (officially known as the Joint Comprehensive Plan of Action between Iran and the permanent members of the UN + Germany), and trying to contain rising China by creating the Trans-Pacific Partnership that was signed in February 2016.
All these and other domestic and international policies and achievements of the Obama administration have been or are being undone by the Trump administration. This should not come as a surprise. As I wrote on the day after the 2016 election: “It is no prediction to expect that America’s slide into global ignominy will accelerate under Trump’s predictably inept leadership and the country’s apparently irreconcilable tribal polarisations…Obama’s legacy will be dismantled by his nemesis…. For the world at large, Trump’s looming presidency elicits different fears, perspectives and expectations. There are fears that postwar internationalism will be upended by isolationism…International trade agreements, the structural face of neoliberal globalization, are under threat from a potentially protectionist administration. The recent global compact on climate change, upon which the very future of humanity and our fragile little planet rests, will face renewed obstacles from one of the world’s greatest polluters. Some predict an apocalypse triggered by the Trump presidency that will lead to the demise of the West as we have known it. Some even doubt the future of the NATO alliance under President Trump with his ‘America First’ doctrine.”
Unfortunately, some of the worst predictions about the Trump presidency have come to pass, whether in terms of undermining domestic institutions and the aura of the presidency itself through wanton corruption, ineptitude, and perverse narcissism, or with regard to international institutions and diplomatic niceties through insufferable bluster, bombast, and boorishness. The proverbial stereotype of the “Ugly American” has become a veritable monstrosity in an American leader who despises allies and adores dictators that have historically threatened American interests or self-image.
But the challenges go beyond Trump. He was elected and channels the ideological impulses and interests, however misguided, of his constituents among the electorate and the establishment—the racism, tribalism, chauvinism, xenophobia, jingoism, and protectionism of the “America First” assault on the world. Those wedded to the rules of the crumbling order are deeply alarmed, even apocalyptic. Some hail from the Global South, including Africa. But as one Indian academic noted on Al-Jazeera, the Western order under assault from the Trump administration was not constructed to benefit the Global South, so it’s rather rich for the wealthy countries of Western Europe to expect support or solidarity from the emerging economies of the Global South in the intra-hegemonic battles of EuroAmerica.
But the challenges go beyond Trump. He was elected and channels the ideological impulses and interests, however misguided, of his constituents among the electorate and the establishment—the racism, tribalism, chauvinism, xenophobia, jingoism, and protectionism of the “America First” assault on the world.
The Trump administration’s contempt for America’s allies was on full display at the G7 Summit and the Summit with the North Korean leader, Kim Jong-un. To the indignation of the six leaders of the G7, Trump refused to sign the final agreement, claiming annoyance at the statement by the Canadian Prime Minister that he would not allow his country to be pushed around. The bone of contention in President Trump’s political and economic tantrums has ostensibly been about trade, the misguided belief that the USA has been exploited by its major trading partners, and that it can easily win any subsequent trade war.
In reality, at stake is the viability of the post-World War II order that the USA itself created and has disproportionately benefitted from. It reflects a beleaguered hegemon unable to control the world it has bestrode for seventy years as a superpower and as an undisputed colossus since the demise of the Soviet Union. That world has been vanishing, and as often happens in such moments of declining hegemony, the padded ideological gloves of soft power give way to the bare-knuckled fists of hard power, which only succeeds in accelerating hegemonic decline.
The challenges and ills confronting the world evident in the current intra-hegemonic rivalries and conflicts in the Western Alliance, in the face of rising new hegemons, especially China, are of course not an isolated American phenomenon. Nativism, nationalism, and distrust of the elites, experts, and the establishment have gone global, giving succour to populists, strongmen and dictators, even in so-called democracies.
Overarching the intra-hegemonic tensions in the Western Alliance is the escalating inter-hegemonic rivalry between the West and China. As the Trump presidency tarnishes the sheen of American democracy, China’s meritocratic model of “selection plus election” for the leadership acquires a new and competing ideological gloss. One Chinese scholar boasts that because of this model, and “despite its many deficiencies, the Chinese polity has delivered the world’s fastest growing economy and has vastly improved the living standards for most Chinese.” The Chinese model of governance and of selecting leaders, he continues, “makes it inconceivable that anyone as weak as George W. Bush or Donald Trump could ever come close to the position of the top leadership.”
Some African commentators are attracted to the Chinese model (which recently resulted in the removal of term limits for China’s leader). They argue that Africa can beneficially borrow from some of the model’s elements, such as the fight against corruption, while others regard it with alarm as “an unwelcome gift for African despots who can now point to China as justification for their authoritarian tendencies”.
Overarching the intra-hegemonic tensions in the Western Alliance is the escalating inter-hegemonic rivalry between the West and China. As the Trump presidency tarnishes the sheen of American democracy, China’s meritocratic model of “selection plus election” for the leadership acquires a new and competing ideological gloss.
Of course, the two current dynamics of intra- and inter- hegemonic struggles are only a part of much wider transformations the contemporary world is undergoing. There are other mega trends that reflect and reinforce the hegemonic shifts addressed in this essay. There’s an avalanche of popular and scholarly studies that provide fascinating (although not always accurate) or compelling diagnoses and prognoses of the global condition that bring hope to some and fear to others. The trends include some already mentioned, such as the apparent erosion of democracy, the rise of populisms, and the growth of global inequalities that feed into the politics of anger and political tribalism. Others include the unfolding economic, social, cultural, and political disruptions of technology and profound demographic changes. Then there are the changing dynamics of the world population marked by ageing populations in some regions, especially in the Global North and even in China, and the youth bulge in others, most dramatically in Africa. There are also the shifting patterns of global migrations, most graphically captured in the death traps across the Mediterranean.
Among the books I’ve particularly enjoyed reading to make sense of our infinitely complex, contradictory, and rapidly changing present (notwithstanding my disagreement with some of their premises, methodologies, or analyses), the following stand out. On the rising recession of democracy, Dambisa Moyo, the renowned Zambian economist, gives us her customary trenchant analysis in her recently published book, Edge of Chaos: Why Democracy is Failing to Deliver Economic Growth (2018). Other intriguing reflections on the growing global democratic deficits and the destabilising effects of populism, political tribalism, and anger include Yascha Mounk’s, The People Vs. Democracy: How Our Freedom is in Danger and How to Save It (2018), Steven Levitsky and Daniel Ziblatt’s How Democracies Die (2018), the riveting Political Tribes: Group Instinct and the Fate of Nations (2018) by Amy Chou, and the philosophically sophisticated Age of Anger: A History of the Present (2017) by Pankaj Mishra.
On wealth and inequality, there’s Thomas Piketty’s brilliant 2013 bestseller, Capital in the Twenty-First Century, that spans the past 250 years, while Walter Scheidel’s 2017 tome, The Great Leveler: Violence and the History of Inequality from the Stone Age to the Twenty-First Century, attempts an even more ambitious treatise.
On the impact of technology and the future of humanity, there are the incisive and provocative reflections by Yvan Noah Harari, Homo Deus: A Brief History of Tomorrow (2017), Rachel Botsman’s Who Can You Trust?: How Technology Brought Us Together and Why It Might Drive Us Apart (2017), Gideon Rose’s The Fourth Industrial Revolution: A Davos Reader (2016), and focusing on my own sector, Robert E. Aoun’s Robot-Proof: Higher Education in the Era of Artificial Intelligence (2017).
While demography is not destiny, and given that the ameliorative powers of technology to rescue ageing societies from economic stagnation cannot be underestimated, Africa’s demographic explosion could turn out to be a developmental and geopolitical asset. The continent is expected to have more than 2 billion people by 2050 (25% of the world’s population) and over 4 billion people in 2100 (40% of the world’s population). For this boon to materialise, massive investments need to be made in the development of the human capital of the youth as a matter of urgency – now! – otherwise the continent’s potential demographic dividend will turn into a demographic disaster as uneducated, unskilled, and unemployed youth terrorise their societies into cesspools of impoverishment, insecurity, and instability.
While demography is not destiny, and given that the ameliorative powers of technology to rescue ageing societies from economic stagnation cannot be underestimated, Africa’s demographic explosion could turn out to be a developmental and geopolitical asset.
We live, to use an old cliché, in the best of times and the worst of times. One thing for certain is that massive changes will continue to confront the multiple and intersected worlds of the 21st century, which will be marked, as all historical processes are, by the structures of historical geography and political economy, and the social inscriptions of class, race, ethnicity, gender, and religion.
In this most complex and demanding of times, Pan-Africanism ceases to be an affective good for African countries and peoples and becomes – as its founders and purveyors, from W.E. B. Dubois to Kwame Nkrumah to Thabo Mbeki, always understood – a historical and geopolitical imperative in an era of shifting global hegemonies. African governments, businesses, civil society, intergovernmental agencies, think tanks, and academia must mobilise the continent’s geopolitical thought leaders to properly decipher the implications of this most challenging of global moments in order to minimise its perils and to seize its opportunities.
A Dictator’s Guide: How Museveni Wins Elections and Reproduces Power in Uganda
Caricatures aside, how do President Yoweri Museveni and the National Revolutionary Movement state reproduce power? It’s been 31 years.
Recent weeks have seen increased global media attention to Uganda following the incidents surrounding the arrest of popular musician and legislator, Bobi Wine; emblematic events that have marked the shrinking democratic space in Uganda and the growing popular struggles for political change in the country.
The spotlight is also informed by wider trends across the continent over the past few years—particularly the unanticipated fall of veteran autocrats Muammar Gaddafi in Libya, Hosni Mubarak in Egypt, Yaya Jammeh in Gambia, and most recently Robert Mugabe in Zimbabwe—which led to speculation about whether Yoweri Museveni, in power in Uganda since 1986, might be the next to exit this shrinking club of Africa’s strongmen.
Yet the Museveni state, and the immense presidential power that is its defining characteristic, has received far less attention, thus obscuring some of the issues at hand. Comprehending its dynamics requires paying attention to at-least three turning points in the National Resistance Movement’s history, which resulted in a gradual weeding-out of Museveni’s contemporaries and potential opponents from the NRM, then the mobilisation of military conflict to shore up regime legitimacy, and the policing of urban spaces to contain the increasingly frequent signals of potential revolution. Together, these dynamics crystallised presidential power in Uganda, run down key state institutions, and set the stage for the recent tensions and likely many more to come.
From the late 1990s, there has been a gradual weeding out the old guard in the NRM, which through an informal “succession queue,” had posed an internal challenge to the continuity of Museveni’s rule. It all started amidst the heated debates in the late 1990s over the reform of the then decaying Movement system; debates that pitted a younger club of reformists against an older group. The resultant split led to the exit of many critical voices from the NRM’s ranks, and began to bolster Museveni’s grip on power in a manner that was unprecedented. It also opened the lid on official corruption and the abuse of public offices.
Over the years, the purge also got rid of many political and military elites—the so-called “historicals”—many of whom shared Museveni’s sense of entitlement to political office rooted in their contribution to the 1980-1985 liberation war, and some of whom probably had an eye on his seat.
By 2005 the purge was at its peak; that year the constitutional amendment that removed presidential term limits—passed after a bribe to every legislator—saw almost all insiders that were opposed to it, summarily dismissed. As many of them joined the ranks of the opposition, Museveni’s inner circle was left with mainly sycophants whose loyalty was more hinged on patronage than anything else. Questioning the president or harboring presidential ambitions within the NRM had become tantamount to a crime.
By 2011 the process was almost complete, with the dismissal of Vice President Gilbert Bukenya, whose growing popularity among rural farmers was interpreted as a nascent presidential bid, resulting in his firing.
One man remained standing, Museveni’s long-time friend Amama Mbabazi. His friendship with Museveni had long fueled rumors that he would succeed “the big man” at some point. In 2015, however, his attempt to run against Museveni in the ruling party primaries also earned him an expulsion from both the secretary general position of the ruling party as well as the prime ministerial office.
The departure of Mbabazi marked the end of any pretensions to a succession plan within the NRM. He was unpopular, with a record tainted by corruption scandals and complicity in Museveni’s authoritarianism, but his status as a “president-in-waiting” had given the NRM at least the semblance of an institution that could survive beyond Museveni’s tenure, which his firing effectively ended.
What is left now is perhaps only the “Muhoozi project,” a supposed plan by Museveni to have his son Muhoozi Kainerugaba succeed him. Lately it has been given credence by the son’s rapid rise to commanding positions in elite sections of the Ugandan military. But with an increasingly insecure Museveni heavily reliant on familial relationships and patronage networks, even the Muhoozi project appears very unlikely. What is clear, though, is that the over time, the presidency has essentially become Museveni’s property.
Fundamental to Museveni’s personalisation of power also has been the role of military conflict, both local and regional. First was the rebellion by Joseph Kony’s Lord’s Resistance Army in northern Uganda, which over its two-decade span enabled a continuation of the military ethos of the NRM. The war’s dynamics were indeed complex, and rooted in a longer history that predated even the NRM government, but undoubtedly it provided a ready excuse for the various shades of authoritarianism that came to define Museveni’s rule.
With war ongoing in the north, any challenge to Museveni’s rule was easily constructed as a threat to the peace already secured in the rest of the country, providing an absurd logic for clamping down on political opposition. More importantly, the emergency state born of it, frequently provided a justification for the president to side-step democratic institutions and processes, while at the same time rationalising the government’s disproportionate expenditure on the military. It also fed into Museveni’s self-perception as a “freedom fighter,” buttressed the personality cult around him, and empowered him to further undermine any checks on his power.
By the late 2000s the LRA war was coming to an end—but another war had taken over its function just in time. From the early 2000s, Uganda’s participation in a regional security project in the context of the War on Terror, particularly in the Somalian conflict, rehabilitated the regime’s international image and provided cover for the narrowing political space at home, as well as facilitating a further entrenchment of Museveni’s rule.
As post-9/11 Western foreign policy began to prioritise stability over political reform, Museveni increasingly postured as the regional peacemaker, endearing himself to donors while further sweeping the calls for democratic change at home under the carpet—and earning big from it.
It is easy to overlook the impact of these military engagements, but the point is that together they accentuated the role of the military in Ugandan politics and further entrenched Museveni’s power to degrees that perhaps even the NRM’s own roots in a guerrilla movement could never have reached.
The expulsion of powerful elites from the ruling circles and the politicisation of military conflict had just started to cement Musevenism, when a new threat emerged on the horizon. It involved not the usual antagonists—gun-toting rebels or ruling party elites—but ordinary protesters. And they were challenging the NRM on an unfamiliar battleground—not in the jungles, but on the streets: the 2011 “Walk-to-Work” protests, rejecting the rising fuel and food prices, were unprecedented.
But there is another reason the protests constituted a new threat. For long the NRM had mastered the art of winning elections. The majority constituencies were rural, and allegedly strongholds of the regime. The electoral commission itself was largely answerable to Museveni. With rural constituencies in one hand and the electoral body in the other, the NRM could safely ignore the minority opposition-dominated urban constituencies. Electoral defeat thus never constituted a threat to the NRM, at least at parliamentary and presidential levels.
But now the protesters had turned the tables, and were challenging the regime immediately after one of its landslide victories. The streets could not be rigged. In a moment, they had shifted the locus of Ugandan politics from the rural to the urban, and from institutional to informal spaces. And they were picking lessons from a strange source: North Africa. There, where Museveni’s old friend Gaddafi, among others, was facing a sudden exit under pressure from similar struggles. Things could quickly get out of hand. A strategic response was urgent.
The regime went into overdrive. The 2011 protests were snuffed out, and from then, the policing of urban spaces became central to the logic and working of the Museveni state. Draconian laws on public assembly and free speech came into effect, enacted by a rubber-stamp parliament that was already firmly in Museveni’s hands. Police partnered with criminal gangs, notably the Boda Boda 2010, to curb what was called “public disorder”—really the official name for peaceful protest. As police’s mandate expanded to include the pursuit of regime critics, its budget ballooned, and its chief, General Kale Kayihura, became the most powerful person after Museveni—before his recent dismissal.
For a while, the regime seemed triumphant. Organising and protest became virtually impossible, as urban areas came under 24/7 surveillance. Moreover, key state institutions—the parliament, electoral commission, judiciary, military and now the police—were all in the service of the NRM, and all voices of dissent had been effectively silenced. In time, the constitution would be amended again, by the NRM-dominated house, this time to remove the presidential age limit—the last obstacle to Museveni’s life presidency—followed by a new tax on social media, to curb “gossip.” Museveni was now truly invincible. Or so it seemed.
But the dreams of “walk-to-work”—the nightmare for the Museveni state—had never really disappeared, and behind the tightly-patrolled streets always lay the simmering quest for change. That is how we arrived at the present moment, with a popstar representing the widespread aspiration for better government, and a seemingly all-powerful president suddenly struggling for legitimacy. Whatever direction the current popular struggles ultimately take, what is certain is that they are learning well from history, and are a harbinger of many more to come.
The Enduring Blind Spots of America’s Africa Policy
America should move way from making the military the face of its engagement with Africa and instead invest in deepening democracy as a principled approach rather than a convenient choice.
While Donald Trump’s administration completely neglected America-Africa relations, the blind spots bedeviling America’s Africa policy preceded his 2016 election. Correcting the systemic flaws of the past 30 years will require a complete rethink after the controversial President’s departure.
To remedy America’s Africa policy, President Joseph Biden’s administration should pivot away from counterterrorism to supporting democratic governance as a principal rather than as mere convenience, and cooperate with China on climate change, peace, and security on the continent.
America’s Africa policy
America’s post-Cold War Africa policy has had three distinct and discernible phases. The first phase was an expansionist outlook undergirded by humanitarian intervention. The second was nonintervention, a stance triggered by the experience of the first phase. The third is the use of “smart” military interventions using military allies.
The turning point for the first phase was in 1989 when a victorious America pursued an expansive foreign policy approach predicated on humanitarian intervention. Somalia became the first African test case of this policy when, in 1992, America sent almost 30,000 troops to support Operation Restore Hope’s humanitarian mission which took place against the background of the collapse of the Somalia government in 1991.
On 3-4 October 1993, during the Battle of Mogadishu, 18 US servicemen were killed in a fight with warlords who controlled Mogadishu then, and the bodies of the marines dragged through the streets of Mogadishu. The media coverage increased pressure on the politicians and six months later America withdrew from Somalia — a case of the New World Order meeting the harsh reality of civil conflict.
The chastening experience resulted in America scaling back its involvement in internal conflicts in far-flung places. The result was the emergence of the second phase — non-engagement when Rwanda’s Genocide erupted in 1994 and almost a million people died in 100 days revealed the limitations of over-correcting the Somalia experience. This “non-interference” phase lasted until the twin Nairobi and Dar es Salaam US embassy bombings by Al Qaeda in 1998.
This gave way to the third phase with the realisation that the new threat to America was no longer primarily from state actors, but from transnational non-state actors using failing states as safe havens. The 2002 National Security Strategy states: “the events of September 11, 2001, taught us that weak states . . . can pose as a great danger to our national interests as strong states.”
Counterterrorism training and equipping of African militaries is the central plank of this new security policy. As a result, counterterrorism funding has skyrocketed as has America’s military footprint in Africa. As a result, Africa has become the theatre in which the Global forever War on Terror is fought.
The counterterrorism traps
The reflexive reaction to the events of September 11 2001 spawned an interlocking web of covert and overt military and non-military operations. These efforts, initially deemed necessary and temporary, have since morphed into a self-sustaining system complete with agencies, institutions and a specialised lingo that pervades every realm of America’s engagement with Africa.
The United States Africa Command (Africom) is the vehicle of America’s engagement with the continent. Counterterrorism blurred the line between security, development, and humanitarian assistance with a host of implications including unrelenting militarisation which America’s policy establishment embraced uncritically as the sine qua non of America’s diplomacy, their obvious flaws notwithstanding. The securitisation of problems became self-fulfilling and self-sustaining.
The embrace of counterterrorism could not have come at a worse time for Africa’s efforts at democratization. In many African countries, political and military elites have now developed a predictable rule-based compact governing accession to power via elections rather than the coups of the past.
“Smart” African leaders exploited the securitised approach in two main ways: closing the political space and criminalising dissent as “terrorism” and as a source of free money. In Ethiopia, Yonatan Tesfaye, a former spokesman of the Semayawi (Blue) Party, was detained in December 2015 on charges under Article 4 of Ethiopia’s Anti-Terrorism Proclamation ((EATP), arguably one of the the country’s most severe pieces of legislation. But Ethiopia has received millions of dollars from the United States.
The Department of Defense hardly says anything in public but gives out plenty of money without asking questions about human rights and good governance. Being a counterterrorism hub has become insurance policy against any form of criticism regardless of state malfeasance.
Egypt is one such hub. According to the Congressional Research Service, for the 2021 financial year, the Trump Administration has requested a total of US$1.4 billion in bilateral assistance for Egypt, which Congress approved in 2018 and 2019. Nearly all US funding for Egypt comes from the Foreign Military Finance (FMF) account and is in turn used to purchase military equipment of US origin, spare parts, training, and maintenance from US firms.
Another country that is a counterterrorism hub in the Horn of Africa is Ethiopia. For the few months they were in charge, the Union of Islamic Courts (ICU) brought order and stability to the country. Although they were linked to only a few of Mogadishu’s local courts, on 24 December 2006, Ethiopia’s military intervened in Somalia to contain the rise of Al Shabaab’s political and military influence.
The ouster of the ICU by Ethiopia aggravated the deep historical enmity between Somalia and Ethiopia, something Al Shabaab — initially the youth wing of the ICU — subsequently exploited through a mix of Somali nationalism, Islamist ideology, and Western anti-imperialism. Al Shabaab presented themselves as the vanguard against Ethiopia and other external aggressors, providing the group with an opportunity to translate their rhetoric into action.
Ethiopia’s intervention in Somalia could not have taken place without America’s blessing. The intervention took place three weeks after General John Abizaid, the commander of US forces from the Middle East to Afghanistan, met with the then Ethiopian Prime Minister Meles Zenawi. The intervention generated a vicious self-sustaining loop. Ethiopians are in Somalia because of Al Shabaab, and Al Shabaab says they will continue fighting as long as foreign troops are inside Somalia.
America has rewarded Ethiopia handsomely for its role as the Horn of Africa’s policeman. In both Ethiopia’s and Egypt’s case, on the score of human rights and good governance, the net losers are the citizens.
In keeping with the War on Terror being for forever, and despite departing Somalia in 1993, America outsourced a massive chunk of the fight against Al Shabaab to Ethiopia primarily, and later, to AMISOM. America is still engaged in Somalia where it has approximately 800 troops, including special forces that help train Somalia’s army to fight against Al Shabaab.
America carried out its first drone strike in Somalia in 2011 during President Barack Obama’s tenure. Under the Trump administration, however, the US has dramatically increased the frequency of drone attacks and loosened the oversight required to approve strike targets in Somalia. In March 2017, President Trump secretly designated parts of Somalia “areas of active hostilities”, meaning that the high-level inter-agency vetting of proposed strikes and the need to demonstrate with near certainty that civilians would not be injured or killed no longer applied. Last year, the US acknowledged conducting 63 airstrikes in the country, and in late August last year, the US admitted that it had carried out 46 strikes in 2020.
A lack of transparency regarding civilian casualties and the absence of empirical evidence that the strikes lead to a reduction in terrorism in Somalia suggest that expanding to Kenya would be ill-advised. The US has only acknowledged having caused civilian casualties in Somalia three times. Between 2016 and 2019, AFRICOM failed to conduct a single interview with civilian witnesses of its airstrikes in Somalia.
Despite this level of engagement, defeating Al Shabaab remains a remote possibility.
Containing the Chinese takeover
The Trump Administration did not have an Africa policy. The closest approximation of a policy during Trump’s tenure was stated in a speech delivered by John Bolton at a Conservative think tank decrying China’s nefarious activities in Africa. Even with a policy, where the counterterrorism framework views Africa as a problem to be solved by military means, the containing China policy views African countries as lacking the agency to act in their own interests. The problem with this argument is that it is patronising; Africans cannot decide what is right for them.
Over the last decades, while America was busy creating the interlocking counterterrorism infrastructure in Africa, China was building large-scale infrastructure across the continent. Where America sees Africa as a problem to be solved, China sees Africa as an opportunity to be seized.
Almost two years into the Trump administration, there were no US ambassadors deployed in 20 of Africa’s 54 countries even while America was maintaining a network of 29 military bases. By comparison China, has 50 embassies spread across Africa.
For three consecutive years America’s administration has proposed deep and disproportionate cuts to diplomacy and development while China has doubled its foreign affairs budget since 2011. In 2018, China increased its funding for diplomacy by nearly 16 per cent and its funding for foreign aid by almost 7 per cent.
As a show of how engagement with Africa is low on the list of US priorities, Trump appointed a luxury handbag designer as America’s ambassador to South Africa on 14 November 2018. Kenya’s ambassador is a political appointee who, when he is not sparring with Kenyans on Twitter, is supporting a discredited coal mining project.
The US anti-China arguments emphasize that China does not believe in human rights and good governance, and that China’s funding of large infrastructure projects is essentially debt-trap diplomacy. The anti-China rhetoric coming from American officials is not driven by altruism but by the realisation that they have fallen behind China in Africa.
By the middle of this century Africa’s population is expected to double to roughly two billion. Nigeria will become the second most populous country globally by 2100, behind only India. The 24-country African Continental Free Trade Agreement (AfCFTA) entered into force on 30 May 2019. AfCFTA will ultimately bring together all 55 member states of the African Union covering a market of more than 1.2 billion people — including a growing middle class — and a combined gross domestic product (GDP) of more than US$3.4 trillion.
While Chinese infrastructure projects grab the headlines, China has moved into diversifying its engagement with Africa. The country has increased its investments in Africa by more than 520 per cent over the last 15 years, surpassing the US as the largest trading partner for Africa in 2009 and becoming the top exporter to 19 out of 48 countries in sub-Saharan Africa.
Some of the legacy Chinese investments have come at a steep environmental price and with an unsustainable debt. Kenya’s Standard Gauge Railway is bleeding money and is economically unviable.
A fresh start
Supporting democratic governance and learning to cooperate with China are two areas that will make America part of Africa’s future rather than its past.
America should pivot way from making the military the most visible face of its engagement with Africa and instead invest in deepening democracy as a principled approach rather than a convenient choice.
Despite the elegy about its retreat in Africa, democracy enjoys tremendous support. According to an Afro barometer poll, almost 70 per cent of Africans say democracy is their preferred form of government. Large majorities also reject alternative authoritarian regimes such as presidential dictatorships, military rule, and one-party governments. Democracy, while still fledgling, remains a positive trend; since 2015, there have been 34 peaceful transfers of power.
However, such positive metrics go hand in hand with a worrying inclination by presidents to change constitutions to extend their terms in office. Since 2015, leaders of 13 countries have evaded or overseen the weakening of term limit restrictions that had been in place. Democracy might be less sexy, but ignoring it is perilous. There are no apps or switches to flip to arrest this slide. It requires hard work that America is well equipped to support but has chosen not to in a range of countries in recent years There is a difference between interfering in the internal affairs of a country and complete abdication or (in some cases) supporting leaders who engage in activities that are inimical to deepening democracy.
The damage wrought by the Trump presidency and neo-liberal counterterrorism policies will take time to undo, but symbolic efforts can go a long way to bridging the gap.
America must also contend with China being an indispensable player in Africa and learn to cooperate rather than compete in order to achieve optimal outcomes.
China has 2,458 military and police personnel serving in eight missions around the globe, far more than the combined contribution of personnel by the other four permanent members of the UN Security Council, Russia, the US, France and Britain. China had more than 2,400 Chinese troops take part in seven UN peacekeeping missions across the continent — most notably in Mali and South Sudan. Of the 14 current UN peacekeeping missions, seven are in Africa, consuming two-thirds of the budget.
Climate change and conflict resolution provide opportunities for cooperation. Disproportionate reliance on rain-fed agriculture and low adaptation to the adverse impact of climate change make Africa vulnerable to the damaging effects of climate change, the consequences of which will transcend Africa. Through a combination of research, development, technological transfer and multilateral investment, America and China could stave off the impact of climate change in Africa.
Hijacking Kenya’s Health Spending: Companies Linked to Powerful MP Received Suspicious Procurement Contracts
Two obscure companies linked to Kitui South MP Rachael Kaki Nyamai were paid at least KSh24.2 million to deliver medical supplies under single-source agreements at the time the MP was chair of the National Assembly’s Health Committee.
Two obscure companies linked to Kitui South MP Rachael Kaki Nyamai were paid at least KSh24.2 million to deliver medical supplies under single-source agreements at the time the MP was chair of the National Assembly’s Health Committee, an investigation by Africa Uncensored and The Elephant has uncovered.
One of the companies was also awarded a mysterious Ksh 4.3 billion agreement to supply 8 million bottles of hand sanitizer, according to the government’s procurement system.
The contracts were awarded in 2015 as authorities moved to contain the threat from the Ebola outbreak that was ravaging West Africa and threatening to spread across the continent as well as from flooding related to the El-Nino weather phenomenon.
The investigation found that between 2014 and 2016, the Ministry of Health handed out hundreds of questionable non-compete tenders related to impending disasters, with a total value of KSh176 billion including three no-bid contracts to two firms, Tira Southshore Holdings Limited and Ameken Minewest Company Limited, linked to Mrs Nyamai, whose committee oversaw the ministry’s funding – a clear conflict of interest.
Although authorities have since scrutinized some of the suspicious contracts and misappropriated health funds, the investigation revealed a handful of contracts that were not made public, nor questioned by the health committee.
Mrs Nyamai declined to comment for the story.
Nyamai has been accused by fellow members of parliament of thwarting an investigation of a separate alleged fraud. In 2016, a leaked internal audit report accused the Ministry of Health — colloquially referred to for its location at Afya House — of misappropriating funds in excess of nearly $60 million during the 2015/2016 financial year. Media stories described unauthorized suppliers, fraudulent transactions, and duplicate payments, citing the leaked document.
Members of the National Assembly’s Health Committee threatened to investigate by bringing the suppliers in for questioning, and then accused Nyamai, the committee chairperson, of blocking their probe. Members of the committee signed a petition calling for the removal of Nyamai and her deputy, but the petition reportedly went missing. Nyamai now heads the National Assembly’s Committee on Lands.
Transactions for companies owned by Mrs Nyamai’s relatives were among 25,727 leaked procurement records reviewed by reporters from Africa Uncensored, Finance Uncovered, The Elephant, and OCCRP. The data includes transactions by eight government agencies between August 2014 and January 2018, and reveals both questionable contracts as well as problems that continue to plague the government’s accounting tool, IFMIS.
The Integrated Financial Management Information System was adopted to improve efficiency and accountability. Instead, it has been used to fast-track corruption.
Hand sanitizer was an important tool in fighting transmission of Ebola, according to a WHO health expert. In one transaction, the Ministry of Health paid Sh5.4 million for “the supply of Ebola reagents for hand sanitizer” to a company owned by a niece of the MP who chaired the parliamentary health committee. However, it’s unclear what Ebola reagents, which are meant for Ebola testing, have to do with hand sanitizer. Kenya’s Ministry of Health made 84 other transactions to various vendors during this period, earmarked specifically for Ebola-related spending. These included:
- Public awareness campaigns and adverts paid to print, radio and tv media platforms, totalling at least KSh122 million.
- Printed materials totalling at least KSh214 million for Ebola prevention and information posters, contact tracing forms, technical guideline and point-of-entry forms, brochures and decision charts, etc. Most of the payments were made to six obscure companies.
- Ebola-related pharmaceutical and non-pharmaceutical supplies, including hand sanitizer
- Ebola-related conferences, catering, and travel expenses
- At least KSh15 millions paid to a single vendor for isolation beds
Hacking the System
Tira Southshore Holdings Limited and Ameken Minewest Company Limited, appear to have no history of dealing in hygiene or medical supplies. Yet they were awarded three blanket purchase agreements, which are usually reserved for trusted vendors who provide recurring supplies such as newspapers and tea, or services such as office cleaning.
“A blanket agreement is something which should be exceptional, in my view,” says former Auditor-General, Edward Ouko.
But the leaked data show more than 2,000 such agreements, marked as approved by the heads of procurement in various ministries. About KSh176 billion (about $1.7 billion) was committed under such contracts over 42 months.
“Any other method of procurement, there must be competition. And in this one there is no competition,” explained a procurement officer, who spoke generally about blanket purchase agreements on background. “You have avoided sourcing.”
The Ministry of Health did not respond to detailed questions, while Mrs Nyamai declined to comment on the contracts in question.
Procurement experts say blanket purchase agreements are used in Kenya to short-circuit the competitive process. A ministry’s head of procurement can request authority from the National Treasury to create blanket agreements for certain vendors. Those companies can then be asked by procurement employees to deliver supplies and services without competing for a tender.
Once in the system, these single-source contracts are prone to corruption, as orders and payments can simply be made without the detailed documentation required under standard procurements. With limited time and resources, government auditors say they struggle especially with reconciling purchases made under blanket agreements.
The agreements were almost always followed by standard purchase orders that indicated the same vendor and the same amount which is unusual and raises fears of duplication. Some of these transactions were generated days or weeks after the blanket agreements, many with missing or mismatched explanations. It’s unclear whether any of these actually constituted duplicate payments.
For example, the leaked data show two transactions for Ameken Minewest for Sh6.9 million each — a blanket purchase order for El Nino mitigation supplies and a standard order for the supply of chlorine tablets eight days later. Tira Southshore also had two transactions of Sh12 million each — a blanket purchase for the “supply of lab reagents for cholera,” and six days later a standard order for the supply of chlorine powder.
Auditors say both the amounts and the timing of such payments are suspicious because blanket agreements should be paid in installments.
“It could well be a duplicate, using the same information, to get through the process. Because you make a blanket [agreement], then the intention is to do duplicates, so that it can pass through the cash payee phase several times without delivering more,” said Ouko upon reviewing some of the transactions for Tira Southshore. This weakness makes the IFMIS system prone to abuse, he added.
In addition, a KSh4 billion contract for hand sanitizer between the Health Ministry’s Preventive and Promotive Health Department and Tira Southshore was approved as a blanket purchase agreement in April 2015. The following month, a standard purchase order was generated for the same amount but without a description of services — this transaction is marked in the system as incomplete. A third transaction — this one for 0 shillings — was generated 10 days later by the same procurement employee, using the original order description: “please supply hand sanitizers 5oomls as per contract Moh/dpphs/dsru/008/14-15-MTC/17/14-15(min.no.6).
Reporters were unable to confirm whether KSh4 billion was paid by the ministry. The leaked data doesn’t include payment disbursement details, and the MOH has not responded to requests for information.
“I can assure you there’s no 4 billion, not even 1 billion. Not even 10 million that I have ever done, that has ever gone through Tira’s account, through that bank account,” said the co-owner of the company, Abigael Mukeli. She insisted that Tira Southshore never had a contract to deliver hand sanitizer, but declined to answer specific questions. It is unclear how a company without a contract would appear as a vendor in IFMIS, alongside contract details.
It is possible that payments could end up in bank accounts other than the ones associated with the supplier. That is because IFMIS also allowed for the creation of duplicate suppliers, according to a 2016 audit of the procurement system. That audit found almost 50 cases of duplication of the same vendor.
“Presence of active duplicate supplier master records increases the possibility of potential duplicate payments, misuse of bank account information, [and] reconciliation issues,” the auditors warned.
They also found such blatant security vulnerabilities as ghost and duplicate login IDs, deactivated requirements for password resets, and remote access for some procurement employees.
IFMIS was promoted as a solution for a faster procurement process and more transparent management of public funds. But the way the system was installed and used in Kenya compromised its extolled safeguards, according to auditors.
“There is a human element in the system,” said Ouko. “So if the human element is also not working as expected then the system cannot be perfect.”
The former head of the internal audit unit at the health ministry, Bernard Muchere, confirmed in an interview that IFMIS can be manipulated.
Masking the Setup
Ms Mukeli, the co-owner of Tira Southshore and Ameken Minewest, is the niece of Mrs Nyamai, according to local sources and social media investigation, although she denied the relationship to reporters. According to her LinkedIn profile, Ms Mukeli works at Kenya Medical Supplies Agency, a medical logistics agency under the Ministry of Health, now embroiled in a COVID procurement scandal.
Ms Mukeli’s mother, who is the MP’s elder sister, co-owns Icpher Consultants Company Ltd., which shares a post office box with Tira Southshore and Mematira Holdings Limited, which was opened in 2018, is co-owned by Mrs Nyamai’s husband and daughter, and is currently the majority shareholder of Ameken Minewest. Documents also show that a company called Icpher Consultants was originally registered to the MP, who was listed as the beneficial owner.
Co-owner of Tira Southshore Holdings Limited, Abigael Mukeli, described the company to reporters as a health consulting firm. However Tira Southshore also holds an active exploration license for the industrial mining in a 27-square-kilometer area in Kitui County, including in the restricted South Kitui National Reserve. According to government records, the application for mining limestone in Mutomo sub-county — Nyamai’s hometown — was initiated in 2015 and granted in 2018.
Mukeli is also a minority owner of Ameken Minewest Company Limited, which also holds an active mining license in Mutomo sub-county of Kitui, in an area covering 135.5 square kilometers. Government records show that the application for the mining of limestone, magnesite, and manganese was initiated in 2015 and granted in 2018. Two weeks after the license was granted, Mematira Holdings Limited was incorporated, with Nyamai’s husband and daughter as directors. Today, Mematira Holdings is the majority shareholder of Ameken Minewest, which is now in the process of obtaining another mining license in Kitui County.
According to public documents, Ameken also dabbles in road works and the transport of liquefied petroleum gas. And it’s been named by the Directorate of Criminal Investigations in a fuel fraud scheme.
Yet another company, Wet Blue Proprietors Logistics Ltd., shares a phone number with Tira Southshore and another post office box with Icpher Consultants Company Ltd., according to a Kenya National Highway Authority list of pre-qualified vendors.
Mrs Nyamai and her husband co-own Wet Blue. The consulting company was opened in 2010, the same year that the lawmaker completed her PhD work in HIV/AIDS education in Denmark.
Wet Blue was licenced in 2014 as a dam contractor and supplier of water, sewerage, irrigation and electromechanical works. It’s also listed by KENHA as a vetted consultant for HIV/AIDS mitigation services, together with Icpher Consultants.
It is unclear why these companies are qualified to deliver all these services simultaneously.
“Shell companies receiving contracts in the public sector in Kenya have enabled corruption, fraud and tax evasion in the country. They are literally special purpose vehicles to conduct ‘heists’ and with no track record to deliver the public goods, works or services procured,” said Sheila Masinde, executive director of Transparency International-Kenya.
Both MOH and Ms Mukeli refused to confirm whether the ordered supplies were delivered.
Mrs Nyamai also co-owns Ameken Petroleum Limited together with Alfred Agoi Masadia and Allan Sila Kithome.
Mr Agoi is an ANC Party MP for Sabatia Constituency in Vihiga County, and was on the same Health Committee as Mrs Nyamai, a Jubilee Party legislator. Mr Sila is a philanthropist who is campaigning for the Kitui County senate seat in the 2022 election.
Juliet Atellah at The Elephant and Finance Uncovered in the UK contributed reporting.
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