NATIONAL ASSEMBLY AND INTERNATIONAL PARLIAMENTARY ORGANIZATIONS: WHAT IMPACT ARE THE RESOLUTIONS ON NIGERIAN PARLIAMENTS

A country’s foreign relation refers to the relationship that exists between the public policy organ of that country and other countries and entities abroad. The main goal of such relationship is basically to create, develop and manage foreign policy by continuously projecting self interest in the formulation of a universal policy. This infers that in a democratic setting, a country’s foreign relations or policy is a composition of the relationship that exists between both the Executive and Legislative arms (saddled with the responsibility of evolving or shaping public policy) and other countries/entities. This also means that Nigeria’s engagement in inter-parliamentary relations through the legislature is part of her foreign relation activities.

Since 1999, Nigeria has been a prominent player in the international arena either at the executive or legislative level.

Nigeria’s foreign policy has all along been centred on Africa as a Regional power, with the principle of promoting unity and independence, exercising dominant influence in the region, peaceful conflict resolution, non-alignment and non-intentional interference in the internal affairs of other nations, and regional economic co-operation and development. In this respect, Nigeria participates prominently in International Associations like the African Union (AU), the Economic Community of West African States (ECOWAS), the Non-Aligned Movement, the Commonwealth, and the United Nations amongst other organizations.

The National Assembly since 1999 had to participate actively in Inter-Parliamentary Organizations which was hitherto denied the country due to the long years of military rule. Among others the Nigerian Legislature especially the National Assembly play active roles in the International Parliamentary Organizations like the Inter-Parliamentary Union (IPU), the African Parliamentary Union (APU), Commonwealth Parliamentary Association (CPA), ACP-EU Joint Parliamentary Assembly, PAN African Parliament (organ of the African Union), ECOWAS Parliament and Friendship Groups amongst others.

For effective coordination and articulation of the resolutions arising from the organizations, the two Chambers have committees that liaise with the National Secretariat of Nigerian Legislatures (NSNL) to harness the benefits from Nigeria’s participation in the parliamentary organizations. The Committees for Inter-Parliamentary Relations are established by the Senate and House of Representatives to treat matters bordering on Inter-parliamentary activities. In this respect, the Committees are to:

        i.            Study, analyze and suggest improvement of the charters of all inter-parliamentary co-operative groupings of which the House is a member as well as to find other ways by which Nigerian Legislature shall exert itself thereon;

      ii.            Initiate good policies on parliamentary research and documentation and ensure an efficient data bank on the National and State Houses of Assembly;

    iii.            Ensure the maintenance of harmonious and productive relations between the National Assembly and all world Parliaments;

    iv.            Recommend to the House the formation of, and entry into, any new parliamentary grouping;

      v.            Ensure the maintenance of harmonious and productive relations with and in all International Parliamentary Associations such as Inter-Parliamentary Union (IPU), Commonwealth Parliamentary Association (CPA), Union of African Parliament (APU), ACP/EU;

    vi.            Co-ordinate national and international parliamentary exchanges, hospitality and courtesies on reciprocal basis;

  vii.            Make recommendations to the House as to the desirability of the House sending delegation to specific inter-parliamentary events;

viii.            Initiate the Organization of national and international conferences, seminars, workshops and other fora for the dissemination of parliamentary education and experiences;

    ix.            Represent the National Assembly in specific International Parliamentary Associations or groupings on terms agreed to between the House and the Senate;

      x.            Ensure good relationship between the National Assembly and State Houses of assembly;

    xi.            Ensure the execution of House Resolutions on Inter-Parliamentary Relations;

  xii.            Annual budget estimates for the Committee.

Sen. David Mark, Nigeria's Senate President

Though these functions are clear and valuable, it is not clear how the Committees are able to actualize the expectations from the conferences despite huge financial contributions of the National Assembly to the Conferences. The main Inter-Parliamentary Organizations the National Assembly participates effectively include but not limited to: Inter-Parliamentary Union (IPU), Commonwealth Parliamentary Association (CPA), Commonwealth Parliamentary Association (Africa Region), ACP-EU Joint Parliamentary Assembly, African Parliamentary Union (APU), Pan-African Parliament (PAP) and several Parliamentary Friendship Groups.

Impact of Inter-Parliamentary Conferences on Lawmaking in Nigeria

The National Assembly through the two Houses have consistently engaged in legislative actions that are in consonance with resolutions from various international organizations. For instance, the House Committee on Inter-Parliamentary Relations has incessantly contributed to Charters, Agreements and Pacts entered into by the House of Representatives. Under the Bankole led-leadership of the House of Representatives, the Committee worked assiduously with the Turkish Parliament to evolve the Turkish - Nigeria Charter which was subsequently presented on the Floor of the House of Representatives for approval by the erstwhile Chairperson of the Committee, Hon. Binta Masi Garba.

The impact of the resolutions arising from the meetings of international organizations is in no small measure beneficial to the socio-political development of a member state. In Nigeria, the Child Right Act of 2003, the National Poverty Alleviation Programme, National Agency for the Prohibition in Traffic in Persons Act 2004, The National Human Rights Commission (Amendment) Act 2010 and legislations on climate change, electoral matters, violence against women and children, arms proliferation and trafficking, peace and security as well as terrorism amongst others were all conceptualized from deliberations and resolutions of international parliamentary organizations.

It is arguable that the domestication of the policy which gave birth to the Child’s Right Act passed by the National Assembly and over 20 states of the federation is viewed to have received the most impact in Nigeria.

RT. Hon. Aminu Tambuwal, Nigeria's Speaker of the House of Representatives

Furthermore, the declaration of the Millennium Development Goals (MDGs) by the United Nations in 2000 saw most international parliamentary organizations like the IPU, ACP-EU Joint Parliamentary Assembly, APU and CPA pass resolutions to support the pronouncement. Accordingly, there is no gainsaying the fact that the issue of MDGs since then became topical in Nigeria, with the National Assembly and State legislatures affirming the resolutions of these parliamentary organizations and providing legislative activities aimed at realizing the achievement of the Goals by 2015. It is not in doubt that Members of the National and State Houses of Assembly who participate in Inter-Parliamentary Organizations have positively contributed to the process of lawmaking and governance in Nigeria. Such participation has also increased member’s legislative experience and knowledge in the growth of the legislature in Nigeria.

Challenges

Though members gain experience and knowledge from their interaction with their counterparts from other parliaments, it must be stated that implementing some of the decisions of the conferences have always posed serious challenge in Nigeria. Even though Nigeria belongs to certain organizations and are part of the decisions from deliberations of their meetings and for example naturally agrees to the guidelines that stipulate a 26 percent budgetary provision for education, the education sector budget in Nigeria has barely been more than 10 percent. Recently, a member of the House of Representatives, Hon. Bamidele Faparusi advocated the allocation of 30 per cent budgetary provision at all levels of government to education to address the decay in the sector; however the expected outcome of such proposal is yet to be seen.

Binta Garba, former Chairperson Inter-Parliamentary Relations

Sometimes the lack of political will manifests in undermining some of the actions contemplated by these resolutions. On the other hand, there are often institutional lapses in the organization and composition of Nigerian delegates as well as the process of attending the events of these organizations.  For instance there is no proper platform for Nigerian delegates to deliberate and resolve on the Nigerian position before attending these events and on return from these conferences or meetings, there is often lack of appropriate measures taken to translate these decisions into legislations or perhaps using these meetings as a means of gaining international exposure and knowledge. Thus, reports from deliberations of international parliamentary organizations are hardly presented on the floor of both Houses for consideration and further actions by delegates who attend these meetings or conferences. For example, in the last House of Representatives (2007 – 2011), the then Chief Whip of the House and current Deputy Speaker, Rt. Hon. Emeka Nkem Ihedioha led a delegation of the House of Representatives to attend a meeting of the Commonwealth Parliamentary Association (CPA) Africa Region. A resolution of the meeting centred on the provision of the CPA office in the National Assembly to specifically oversee matters concerning the CPA including the benefits from such organization. Regrettably, the efforts of the then Chief Whip in ensuring the implementation of this resolution never came to life. Many other resolutions have followed this direction which limits the impact of these resolutions on the National Assembly members and in the growth of the legislature.

Hon. Dimeji Bankole, former Speaker of House of Representatives

Conclusion

Having established the fact that countries all over the world do recognize that growth and development cannot be separated from partnership and cooperation, it should be emphasized that the legislature itself through the Committees on Inter-Parliamentary Relations and relevant departments should act appropriately and seriously in the guidance and direction of delegates to international parliamentary meetings especially in highlighting Nigeria’s position on topical issues of deliberations. It is important to also state that as a growing democracy and legislature, the National Assembly should rise up to the occasion, carrying the other legislative arms (state and local governments) along as time goes on. Hence, the impact of these resolutions from international parliamentary meetings and fora shall be adequately felt as the legislature in Nigeria continues to garner experience. This is why the resuscitation of the Conference of Presiding Officers in Nigeria which has not met in the past two years is imperative; to create a further platform through decisions reached at international organizations of the legislature would be discussed. This will not only help to strengthen the states legislatures but deepen our democracy and the growth of the Nigerian legislature.  

NIGERIA’S PARTICIPATION IN INTERNATIONAL PARLIAMENTARY ORGANIZATIONS

Since return to democratic rule in 1999, Nigeria has participated in several international parliamentary organizations. Prior to the return to democracy, Nigeria had been suspended from participating in these organizations since only countries practicing democracy with evident legislatures are admitted. The aims and objectives of these organizations are geared towards improving the status of member countries. Some of these organizations include but not limited to the following:

Inter-Parliamentary Union (IPU)       

The IPU is an international organization which brings together representatives from the legislature in the member states. While it shares the UN objectives, supports its effort and works in close relation with the organization, it also works to enhance peace and cooperation among peoples and for the firm establishment of representative institutions.

Membership of the organization as stipulated in Article of the IPU Statues states that; the Inter-Parliamentary Union shall be comprised of National Groups representing their respective Parliaments. It is presently comprised of 162 Member Parliaments and 10 Associate Members.

Following return to democracy in 1999, the Nigerian government applied for re-admission into the body. The Council of the IPU at its sitting during the 103^rd Conference held in Berlin, Germany resolved to approve the Nigerian request to re-affiliate with the Union as a National Group.

Subscription is mandatory for each National Group who may not be allowed to vote if they owe financial arrears equalling or exceeding the amount of its contribution for the preceding two full years.

Voting is done in a manner that only delegates present in person shall have the right to vote and every member-state is entitled to 10 votes and additional number of votes with regards to her population. Nigeria is entitled to 20 votes. It is interesting to note that any delegation that is composed with parliamentarians of same sex for 3 consecutive years shall have a minimum of 8 votes instead of 10.

The Association of Secretaries General of Parliaments (ASGP) is a consultative organ of the IPU made up of Clerks of Parliaments and Senior Parliamentary Officials. Since 1999, Nigeria has been an active player in the Organization and its delegation is usually led by the President of the Senate.

Commonwealth Parliamentary Association (CPA)

The Commonwealth Parliamentary Association (CPA) is an Association of Commonwealth Parliamentarians “who irrespective of gender, race, religion or culture are united by a community of interests, respect for the rule of law and individual rights and freedom, and by pursuit of the positive ideals of Parliamentary democracy”.

The CPA’s aims and objectives as stated in Article 1(1) and (2) of its Constitution are to “promote knowledge of the Constitutional, Legislative, economic, social and cultural aspects of parliamentary democracy, with particular reference to the countries of the Commonwealth of Nations”.

A country is accepted as a member of the Association upon written application by the Legislature to the Secretary General of the Association.

Nigeria’s participation in the CPA dates back to the post-independence Parliament of the Federal Republic. Nigeria hosted the Association’s Conference for the first time in 1962 in Lagos. Following Nigeria’s long years of military rule, Nigeria lost its membership of the Organization but was re-admitted in 1999 at the 45^th Commonwealth Parliamentary Conference held in Trinidad and Tobago. Membership fees are paid according to units of members in a country. In Nigeria, the National Assembly pays €39,690 annually as the membership fee while all the states who are members pay about €7,000 - €10,000. Thus, a country is suspended from the CPA if it owes membership fees of over 12 months in arrears. The Nigerian delegation to the CPA is usually led by the Hon. Speaker of the House of Representatives.

Nigeria has held the following offices since re-admission in 1999:

1.      Hon. Ghali U. Na’Abba -        Chairman CPA (Africa Region) August                                                         2001 - 2002.

2.      Hon. Mohammed Wakil  -        Member CPA Executive Committee                                                   September 2000 – June, 2003.

3.      Sen. Florence Ita-Giwa    -        Senior Representative, Commonwealth                                                         Women Parliamentarians (CWP)                                                                   September 2002 – June, 2003.

4.      Hon. Farouk M. Lawan   -        Member CPA Executive Committee June,                                           2003 – September 2003.

5.      Sen. Daisy Danjuma        -        Senior Representative, Commonwealth                                                         Women Parliamentarians (CWP) June,                                                                    2003 – September 2003.

6.      Hon. Aminu Bello Masari          -        President CPA 2005 – 2006

7.      Hon. Peter N. Jiya           -        Alternate Regional Representative 2005 –                                           2007

8.      Hon. Binta Masi Garba   -        Vice President, Commonwealth          Women                                              Parliamentarians (CWP), 2008 – 2010

9.      Hon. Francis Ada            -        Regional Representative CPA (Africa                                                  Region), 2013

10. Hon. Christina Alaaga     -        Vice President, Commonwealth Women                                             Parliamentarians (CWP), 2013  

Commonwealth Parliamentary Association (Africa Region)

The Commonwealth Parliamentary Association (Africa Region) is an organization of the National Parliaments and Provincial/ State Territorial Legislatures of member-countries of the Commonwealth on the continent of Africa. It became part of the CPA in 1948 and holds its Regional Plenary Conference annually.

Its aims and objectives are

·        To promote the interest of Africa into the Commonwealth and beyond

·        To promote knowledge and education concerning the constitutional, legislative, economic, social and cultural systems of member countries in the Region and beyond

·        To promote and maintain gender equality and emancipation of women

·        To promote respect for Human Rights and Freedom

·        To pursue the ideals of democracy and good governance.

Membership of the CPA (Africa Region) is open to National, Provincial, State or Territorial Legislatures of member-country in Africa. National Assembly pays $1,800 as membership dues to the organization. The Association currently has 19 members and 45 sub-national branches.

Hon. Daniel Reyenieju, House committee Chairman Inter-parliamentary Relations

Hon. Daniel Reyenieju from the House of Representatives of Nigeria is currently the Vice President CPA (Africa Region).

ACP-EU Joint Parliamentary Assembly

The ACP–EU Joint Parliamentary Assembly was created to bring together the elected representatives of the European Union (the Members of the European Parliament) and the elected representatives of the African, Caribbean and Pacific states (ACP countries) that have signed the Cotonou Agreement which invariably states the status of the organization

Following the return of democratic rule in 1999, Nigeria commenced the attendance of meetings and Conferences. Consequently, Nigeria hosted the 30^th Session of the ACP-EU Joint Assembly in Abuja in 2000.

The roles of the Joint Parliamentary Assembly as a consultative body include the following:

• promote democratic processes through dialogue and consultation;
• facilitate greater understanding between the peoples of the European Union and those of the ACP :States and raise public awareness of development issues;
• discuss issues pertaining to development and the ACP-EU Partnership;
• adopt resolutions and make recommendations to the Council of Ministers with a view to achieving the objectives of this Agreement.

The Joint Parliamentary Assembly meets twice a year in plenary session, alternately in the European Union and in an ACP State.

African Parliamentary Union (APU)

The African Parliamentary Union (APU) is an international parliamentary continental organization founded in Abidjan, Cote d’Ivoire, on the 13^th February 1976. Its Constitution was modified and adopted at the 22^nd Conference of the Union in Luanda, Angola, in 1999. The National Parliament of any African State is allowed to apply for membership of the organization. Upon admission each national parliament constitutes a national group. It is interesting to also note that it is mandatory that each delegation of a national group to the session of the organization should include at least one woman.

The main objectives of the Union are;

·        To bring together Parliamentary Institutions of all African States;

·        To encourage contacts among African Parliamentarians on one hand and between African Parliamentarians and Parliamentarians of other continents on the other hand.

·        To contribute to the strengthening of Parliamentary Institutions in Africa, the promotion of democracy and Human Rights, and the realization of the objectives of the Organization of African Unity (now African Union) for the establishment of durable peace.

At present, about 40 national parliaments are members of the APU including Nigeria.

Pan-African Parliament (PAP)

The PAN-African Parliament also known as the African Parliament is the legislative organ of the African Union. It was adopted by a Protocol during the OAU Summit in Lome, Togo in 2000 and was established in March 2004, by Article 17 of the Constitutive Act of the African Union, as one of the nine Organs provided for in the Treaty Establishing the African Economic Community signed in Abuja, Nigeria, in 1991.

The objectives of the Pan-African Parliament include:

·        Facilitate the effective implementation of the policies and objectives of the OAU/AEC and, ultimately, of the African Union;

·        Promote the principles of human rights and democracy in Africa;

·        Encourage good governance, transparency and accountability in Member States;

·        Familiarize the peoples of Africa with the objectives and policies aimed at integrating the African continent within the framework of the establishment of the African Union;

·        Promote peace, security and stability;

·        Contribute to a more prosperous future for the people of Africa by promoting collective self-reliance and economic recovery;

·        Facilitate cooperation and development in Africa

·        Strengthen Continental solidarity and build a sense of common destiny among the peoples of Africa;

·        Facilitate cooperation among Regional Economic Communities and their Parliamentary fora.

Membership of the Parliament comprises of 265 representatives elected by the Parliaments of 47 of the 54 African Union states.

Hon. Bethel Nnaemeka Amadi from the House of Representatives of Nigeria is the current President, Pan-African Parliament.

 

Parliamentary Friendship Group

In addition to the parliamentary organizations discussed above, the National Assembly also establish relationship ties with other countries under what is called Parliamentary Friendship Groups. Examples include the Nigeria – Saudi Arabia, Nigeria – France, Nigeria – Turkey, Nigeria Sao Tome & Principe etc. There are over 15 of such friendship groups currently existing in the National Assembly.

Conclusion

It is expected that Nigeria’s participation to these organizations is beneficial to the legislature in particular and Nigeria at large. However, evaluating such benefits may be another subject of discussion.