The Lagos Plan of Action (1980) and the Abuja Treaty proposed creating Regional Economic Communities (RECs) to lay the foundation for Africa’s broader integration. These RECs were designed to focus on areas such as economy, peace, security, development, and governance, coordinating African Union (AU) member states for greater cohesion. As global crises continue to unfold and donor contributions decline, African RECs must prioritize regional integration now more than ever.

Two critical RECs in the Horn of Africa and East Africa are the East African Community (EAC) and the Intergovernmental Authority on Development (IGAD). These organizations possess distinct yet complementary strengths that can drive regional economic integration and stability.

IGAD includes Djibouti, Eritrea, Ethiopia, Kenya, Somalia, South Sudan, Sudan, and Uganda, while EAC comprises Burundi, Kenya, Rwanda, South Sudan, Tanzania, Uganda, the Democratic Republic of Congo (DRC), and in 2024, Somalia. With four IGAD members also belonging to the EAC and Ethiopia and Sudan seeking EAC membership, the continued existence of two separate regional organizations is increasingly untenable. This raises the question: is it time for a merger of these two organizations?

Overlapping Mandates and Institutional Redundancy

IGAD focuses on political stability, security, and humanitarian challenges, while EAC primarily concentrates on economic integration and trade. Given the geographic overlap, the mandates of both organizations are increasingly redundant, with administrative costs and resource duplication making the region inefficient. A merger would therefore not only be a strategic move but also an economic necessity. Merging would create a more balanced, efficient regional system, reducing administrative redundancies and ensuring resources are used effectively.

The Geopolitical and Legal Justification

The evolving geopolitical dynamics of the Horn of Africa make this merger even more pressing. IGAD has worked on critical regional issues like drought control and conflict resolution, but its limited resources often hinder its impact. EAC, with its stronger institutional framework and focus on economic integration, could provide the necessary leverage to improve regional peace and security.

Furthermore, both organizations’ integration efforts align with the African Union’s Constitutive Act, which emphasizes accelerating political and socio-economic integration. The newly merged body would need to harmonize legal and policy frameworks, creating a coherent regional governance system focused on trade, security, and development.

Financial and Institutional Considerations

Many African countries are members of multiple RECs, paying contributions to each, which burdens the financial resources of member states. Merging IGAD and EAC would reduce these financial strains by consolidating memberships and streamlining funding requirements. Coordinating budgetary processes would ensure financial accountability while avoiding duplications.

Ethiopia and Sudan’s potential membership in EAC exacerbates institutional redundancy, but a merger would resolve this issue, making the integration process smoother. These countries have previously integrated into larger RECs like COMESA, and their experience will facilitate a unified regional structure.

Addressing Challenges and Recommendations

Challenges are inevitable in any integration process, particularly regarding economic and political disparities between IGAD and EAC member states. Differences in economic development may lead to unequal advantages, which could cause friction among members. Diplomatic efforts should focus on aligning common objectives and enhancing people-to-people interactions to foster interdependence in sectors like trade, security, and development.

Lessons from successful African integration efforts such as SADC and ECOWAS emphasize the need for clear leadership, robust institutional frameworks, and a shared vision. If applied to East Africa’s context, these lessons increase the chances of a successful merger.

For integration to succeed, geographic proximity, complementary economic contexts, converging political values, and commitment to the process are essential. While EAC excels in economic integration with a customs union and common market, IGAD has focused on peacebuilding and security. Addressing disparities in these domains is vital for ensuring a fair and balanced integrated system.

A New Era of Cooperation

IGAD-EAC High Level Ministerial Conference, June 2023, Kampala, Uganda

The merger of IGAD and EAC could usher in a new era of integration and economic development for East Africa. Combining IGAD’s strengths in mediation and conflict management with EAC’s expertise in trade and economic policy would create a more unified and stable region. However, overcoming political rivalries and reconciling different perspectives will be essential to overcoming the challenges ahead.

If successful, this merger could symbolize a fresh start for East Africa, ensuring long-term stability and prosperity across the region.

By Yonas Yezezew, Researcher, Horn Review