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The African Charter on Human and Peoples'

Rights: Some Preliminary Thoughts
Daniel C. Turack

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Turack, Daniel C. (1984) "The African Charter on Human and Peoples' Rights: Some Preliminary Thoughts,"
Akron Law Review: Vol. 17 : Iss. 3 , Article 2.
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 Turack: African Charter
THE AFRICAN CHARTER ON HUMAN AND
PEOPLES' RIGHTS: SOME PRELIMINARY THOUGHTS

by
DANIEL C. TURACK*

I. INTRODUCTION

G ENERALLY THERE Is a plethora of literature on human rights.' Recently

published research guides' are most helpful in assisting the researcher
and scholar who wants to be informed about this vital area of international
law. However, with regard to research into human rights in Africa, there are
some special problems3 to be encountered and a dearth of primary source
materials in libraries.
In reference to Africa, this focus is on the sub-Saharan states of the con-
tinent excluding the Republic of South Africa and Namibia. Before looking
at the Charter, it is important to look at how the African states have recogniz-
ed human rights and sought to provide the necessary protection, as well as their
record of compliance. It is not the author's intention, however, to catalogue
the various human rights recognized in international law. The rights to be ex-
amined briefly will be freedom from genocide and torture.
Upon achieving independence, the African countries copied their former Euro-
pean colonial powers by becoming parliamentary democracies; they embedded
protection and promotion of human rights and fundamental freedoms for their
citizenry in their new constitutions. Soon after independence, however, the
African leadership turned towards authoritarianism," and single-party5 systems
now dominate sub-Saharan states.
Most of the anglophonic and francophonic African States came into ex-

*Professor of Law, Capital University Law School; B.A. 1957, University of Toronto; L.L.B. 1960, Osgoode
Hall; L.L.M. 1961, S.J.D. 1969, University of Michigan.
'See Reynolds, Highest Aspirationsor BarbarousActs... The Explosion in Human Rights Documentation:
A Bibliographic Survey, 71 LAW LiB. J. 1 (1979).
'See Vincent-Daviss, Human Rights Law: A Research Guide to the Literature PartI: InternationalLaw
and the United Nations, 14 N.Y.U.J. INT'L L. & POL. 209 (1981); Part II: InternationalProtection of
Refugees andHumanitarianLaw, id., at 487; PartIII: The InternationalLabor Organizationand Human
Rights, 15 N.Y.U.J. INT'L L. & POL. 211 (1982), and other bibliographies mentioned therein.
'I am grateful to Corinne Nyquist, Associate Librarian, Sojourner Truth Library, State University College,
New Paltz, New York, for a copy of her draft paper entitled Library Resources and Research Problems
on Human Rights in Africa, presented at the Conference on International Human Rights: DILEMMAS OF
LIBERTY AND DEVELOPMENT IN AFRICA, May 7-8, 1982 at SUNY, Buffalo, N.Y.

'On the subject of authoritarianism in Africa see WA, Human-Rights in Sub-Saharan Africa in HUMAN
RIGHTS: CULTURAL AND IDEOLOGICAL PERSPECTIVES 115-144 (A. Pollis & P. Schwab eds. 1979).

'Of relevance is the Ir'LCOMM'N OF JURISTS, HUMAN RIGHTS IN A ONrE-PARTY STATE (1978).
[3651
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17 [1984], Iss. 3, Art. 2 [Vol. 17:3

istence with constitutions' containing provisions for the protection of funda-

mental freedoms. The Universal Declaration of Human Rights of 1948' had
a great influence on the new African constitutions. Many of the rights
enumerated in the Universal Declaration are embodied in these constitutions.
However, the constitution which brought the state into existence was usually
drafted by the departing colonial civil service and was imposed as a condition
for independence. 8 Thus, in essence these African constitutions have been of
marginal significance 9 when violations have occurred. The first formal atten-
tion given to a possible regional human rights convention in Africa arose due
to the initiative of a non-governmental organization, the International Com-
mission of Jurists. Under this body's auspices an African Conference on the
Rule of Law"0 was held at Lagos, Nigeria, during January 3-7, 1961. The 194
judges, practicing lawyers and teachers of law from twenty-three African nations
and nine countries from other continents explored the prospects of an African
convention on human rights. Their adoption of the resolution known as the
Law of Lagos states, inter alia:
That in order to give full effect to the Universal Declaration of Human
Rights of 1948, this Conference invites the African Government to study
the possibility of adopting an African Convention of Human Rights in
such a manner that the Conclusions of the Conference will be safeguard-
ed by the creation of a court of appropriate jurisdiction and recourse
thereto made available for all persons under the jurisdiction of the signatory
States. '
1
Between 1961 and 1979 other conferences and seminars were held " in Africa
'A. BLAuSTEIN & G. FLANZ, CONSTITUTIONS OF THE COUNTRIES OF THE WORLD (1971); SECRETARIAT OF
THE ASIAN-AFRICAN LEGAL CONSULTATIVE COMMITTEE, CONSTITUTIONS OF AFRICAN STATES (1972).
'G. A. Res. 217A, U.N. Doc. A/810, at 71 (1948). The text of the Universal Declaration can be found
in BASIC DOCUMENTS OF THE NATIONS 168 (L. Sohn ed. 1968) [hereinafter cited as UNIVERSAL
DECLARATION]; BASIC DOCUMENTS ON INTERNATIONAL PROTECTION OF HUMAN RIGHTS 30 (L. Sohn & T.
Buergenthal eds. 1973); BASIC DOCUMENTS ON HuMAN RIGHTS 21 (1. Brownlie ed., 2d ed. 1981).
'Seidman, Judicial Review and FundamentalFreedoms in Anglophonic Independent Africa, 35 OHIO
STATE L. J. 820 (1974); Seidman, ConstitutionsIn Independent, Anglophonic, Sub-SaharanAfrica: Form
and Legitimacy, 1969 Wis. L. REV. 83, 94.
'Paul, Some Observations on Constitutionalism, JudicialReview and Rule of Law in Africa, 35 OHIo
ST. L.J. 851, 852 (1974).
"'A report on the proceedings of the Conference was published by the International Commission of Jurists,
African Conference on the Rule of Law, Lagos, Nigeria (January3-7, 1961) (1971) [hereinafter cited as
Report]. A summary of what transpired at the Conference is presented by Rhyne, Law in Africa: A Report
on the Lagos Conference, 47 A.B.A.J. 685 (1961).
"Report, supra note 10, 11.
2
These conferences and seminars are briefly considered by T. ELIAS, NEW HORIZONS IN INTERNATIONAL
LAW 165-170 (1979); Weinstein, Human Rights in Africa: A Long-Awaited Voice, 78 CURRENT HIsT. 97
(Mar. 1980). For insight into the accomplishments of these seminars and conferences, see Robertson, A
Commission On Human Rights For Aftica?, 2 REVUE DES DROITS DE L'HOMME 696 (1969) (on the 1969
Cairo Seminar); Robertson, African Legal Process and The Individual, 5 REVUE DES DROITS DE L'HOMME
465 (1972) (on the 1971 conference on African Legal Process at Addis Ababa); Pump, A Report on the
United Nations Seminar on the Establishment of Regional Commissions on Human Rights With Special
Reference to Africa, Human Rights In Africa, Hearing before the Subcommittees On Africa and on Int'l
Org'ns of the Comm. on For.Affairs, 96th Cong. 1st Sess., Appendix 3 (1980) (on the 1979 Monrovia
Seminar).
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 Winter, 19841 Turack: African Charter
AFRICAN CHARTER

under the sponsorship of non-governmental organizations or the United Nations

in cooperation with host African governments. These conferences centered on
the themes of promotion and dissemination of knowledge about human rights,
decolonization, condemnation of apartheid and non-discrimination.
II. SOME EVIDENCE OF A POOR HUMAN RIGHTS RECORD

A. Genocide
The Genocide Convention' 3 has mobilized the conscience of mankind by
outlawing, under international law, the intentional destruction of racial, national,
ethnical, or religious groups. Genocide is a crime.'I From the language of the
Advisory Opinion of the International Court of Justice in Reservations to the
Genocide Convention, it may be inferred that basic obligations of the Genocide
Convention are binding on states as a matter of general international law.' 5
Hence, genocide is a crime when committed by persons in states that are not
parties to the Convention as well as by persons in states that are parties to
it. Moreover, the prohibition of genocide is also elevated to the status of jus
cogens. During the International Law Commission's drafting of the Vienna
Convention on the Law of Treaties, and during discussions on the concept of
jus cogens formulated in Articles 53 and 64, the prohibition of genocide 6
was
repeatedly mentioned as an example of a principle of jus cogens.'
During civil wars in Africa there have been allegations of genocide. In
1960, during the conflict between the Central Government of the Congo and
the Provincial Government of Katanga,' 7 the Secretary-General of the United
Nations referred to flagrant violations of elementary human rights that "have
the characteristics of the crime of genocide since they appear to be directed
toward the extermination of a specific ethnic groups, the Balubas."' 8 There

"The Convention on the Prevention and Punishment of the Crime of Genocide [hereinafter cited as "the
Genocide Convention"] was adopted by the United Nations General Assembly on Dec. 9, 1948, and became
effective on Jan. 12, 1951; 78 U.N.T.S. 277; 45 AM. J. INT'LL. 7 (Supp. 1951). For a general commentary,
see N. ROBINSON, THE GENOCIDE CONVENTION: A COMMENTARY (1960).
'Article In1(a) of the Genocide Convention.
I'M. McDOUGAL, H. LASSWELL & L. CHEN, HUMAN RIGHTS AND WORLD PUBLIC ORDER 355-56 (1980).
"Jus cogens is defined as "a peremptory norm of international law." See [1966] 2 Y.B. INT'L L. COMM'N
169, 247-49, reprinted in United Nations Conference on the Law of Treaties, Documents of the Conference
7, 67-68 (U.N. Doc. A/CONF. 39/ll/Add.2, (1971)). The Convention is found in 8 INT'L LEGAL
MATERIALS 679 (1969); 63 AM. J. INT'L. L. 875 (1969). See also, Schwelb, Some Aspects of International
Jus Cogen as Formulated by the International Law Commission, 61 AM. J. INT'L. L. 946, 953-56 (1967);
Whiteman, Jus Cogens in International Law with a Projected List, 7 GA. J. INT'L & COMP. L. 609, 625
(1977). For a review of the development ofjus cogens, see Schwarzenberger, International Jus Cogens?,
43 TEX. L. REV. 455 (1965); Tunkin, Jus Cogens in Contemporary International Law, 3 U. TOL. L. REV.
107 (1971); TUNKIN, THEORY OF INTERNATIONAL LAW 147-160 (1974).
"In connection with various legal aspects of the Congo conflict, see Miller, LegalAspects of the United
Nations Action In The Congo, 55 AM. J.INT'L. L. 1 (1961); McNEMAR, The Postindependence War in
the Congo, in THE INTERNATIONAL LAW OF CIVIL WAR 244 (R. A. Falk ed. 1971); Note, The Congo Crisis
1964: A Case Study In Humanitarian Intervention, 12 VA. J. INT'L L. 261 (1972).
"'15U.N. SCOR (896th mtg.) at 18 (1960); See also MCNEMAR, supra note 17 at 265-267, B. URGUHART,
HAMMARSKJOLD 438 (1972), as cited by Edwards, Contributions of the Genocide Convention to the
Development of International Law, 8 OHIO N.U.L. REV. 300, 302 (1981).
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was also the genocidal rampage against the Ibos"9 in Nigeria during the years
1966-1970, the period of the Biafran secession. "0
Official approval of genocide has existed even in the absence of civil war.
The boundary-making process in Africa was fraught with the potentiality of
conflict creation. Former colonial powers divided territories artifically22 and
at times without regard to tribal adversaries; therein lies partial responsibility
for the ensuing tribal massacres. This situation can be ascribed to what happened
in neighboring Rwanda and Burundi. Between 1959 and 1964 in Rwanda, the
Hutu massacred thousands2 3 of the Tutsi tribe and caused tens of thousands
to become refugees. 2 ' During 1972, in Burundi, the government under the control
of the minority Tutsi tribe tried to eliminate the entire majority, the Hutu
people.25 The international response to this savagery was practically
imperceptible.2" In May 1972, for example, Diallo Telli, the Secretary-General
of the Organization of African Unity (OAU) flew to Bujumbura and announced
"the total solidarity of the secretary-general of the OAU with President
Micombero," of Burundi. The next month when the OAU met at its annual
conference, that organization refrained from any public statement on the

"See Proclamation of the Republic of Biafra, 6 INT'L LEGAL MATERIALS 665, 667-8 (1967); L. C.
BUCHHEIT, SECESSION: THE LEGITIMACY OF SELF-DETERMINATION 166 (1978).
2
Other aspects of the Biafran attempted secession are reviewed in L. C. BUCHHEIT, supra note 19, at
162; C. AGUOLU, BIAFRA: ITS CASE FOR INDEPENDENCE (1969); J. OYNIBO, NIGERIA CRISIS AND BEYOND
(1971); A. KIRK-GREENE, CRISIS AND CONFLICT IN NIGERIA (1971); Nayar, Self-DeterminationBeyond the
Colonial Context: Biafra in Retrospect, 10 TEX. INT'L L. J. 321 (1975); C. OKEKE, CONTROVERSIAL
SUBJECTS OF CONTEMPORARY INTERNATIONAL LAW 158 (1974).
2
See Kapil, On the Conflict Potentialof Inherited Boundaries in Africa, 18 WORLD POLITICS 656-673
(1966). The boundaries imposed upon the newly emerged African states have given rise to conflicts involving
secession; See, e.g., U. UMOZURIKE, SELF-DETERMINATION IN INTERNATIONAL LAW (1972); Panter-Brick,
The Right to Self Determination:It Application to Nigeria, 44 INT'L AFFAIRS 254 (1968); Z. CERVENKA,
THE NIGERIAN WAR 1967-1970 (1971); L. C. BUCHHEIT, SECESSION: THE LEGITIMACY OF SELF-
DETERMINATION 162-176 (1978).
2
See S. TOUVAL, THE BOUNDARY POLITICS OF INDEPENDENT AFRICA 3-17 (1972). The status quo of these
boundaries was confirmed subsequently by the OAU at its First Ordinary Session of the Assembly of Heads
of State and Government, meeting in Cairo, United Arab Republic, in 1964; Resolution AGH/RES. 16(I)
states, inter alia, that "[c]onsidering further that the borders of African States, on the day of their
independence, constitute a tangible reality... [the OAU] solemnly declares that all Member States pledge
themselves to respect the borders existing on their achievement of national independence." OAU, Assembly
of Heads of State and Government, ResolutionsAnd Declarationsof OrdinaryandExtraordinarySessions
31-32. See also TOUVAL, supra note 22, at 82-98.
"See generally A. SEGAL, MASSACRE IN RWANDA (1964); R. LEMARCHAND, RWANDA AND BURUNDI (1970);
K. GLASER & S. POSSONY, VICTIMS OF POLITICS 142, 162, 284-5, 346, 528 (1979).
2
See Cowell, Rwanda's or Uganda's?45,000 Homeless People N.Y. Times, Jan. 21, 1983, § 1, at 5.
2
"MEISER, Holocaust in Burundi, 1972, 5 CASE STUDIES ON HUMAN RIGHTS AND FUNDAMENTAL FREEDOMS:
A WORLD SURVEY 225 (W. Veenhoven, ed. 1976); Lemarchand, Ethnic Genocide, 12 Soc, 50, 57 (Jan.-
Feb., 1975). Lemarchand, Selective Genocide in Burundi, Part I (Report No. 20 of Minority Rights Group,
London, July, 1974). U.S. Policy toward the genocide is discussed in InternationalProtectionof Human
Rights, Hearings before the Subcomm. on InternationalOrganizationsand Movements of the Comm.
on Foreign Relations, 93d Cong. 1st Sess. 65-86 (1974). The Carnegie Endowment published its analysis
of the American reaction in its pamphlet by M. BOWEN, G. FREEMAN and K. MILLER, PASSING BY: THE
UNITED STATES AND GENOCIDE IN BURUNDI 1972 (1973).
"'MEISLER, supra note 25, at 227; Leiser, Victims of Genocide, 8 OHIO N.U.L. REV. 315, 318 (1981); R.
FALK, HUMAN RIGHTS AND STATE SOVEREIGNTY 160 (1981). Professor Falk suggests the reasons behind the
lack of response. Id. at 153.
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 Turack: African Charter
Winter, 1984] AFRICAN CHARTER

massacres. 27
In the catalogue of genocidal atrocities, one cannot omit the name of Idi
Amin of Uganda. From 1971, when he overthrew the regime of Dr. Milton
Obote, through 1978, he targetted the Lango and Acholi tribes for annihilation. 2
Despite the blatant excesses of the "black Hitler of Africa," no one has held
him accountable29 and he is a free man to this day.
B. Torture
The prohibition of torture 0 may be regarded as an integal part of customary
international law, and it may be a peremptory norm of general international
law. 3 ' Torture is an international crime.32 As to what constitutes torture, one
need only to consider the definition which appears in Article 1 of the United
Nations Declaration on the Protection of All Persons from Being Subjected
to Torture and Other Cruel, Inhuman, or Degrading Treatment or Punish-
ment, adopted by the General Assembly in 1975.11

"'MEISLER, supra note 25, at 236.

"SeeNAUDIN, The Violation of Human Rights in Uganda, 5 CASE STUDIES ON HUMAN RIGHTS AND
FUNDAMENTAL FREEDOMS: A WORLD SURVEY 415 (W.A. Veenhoven, ed. 1976); INT'L COMM. OF JURISTS,
UGANDA AND HUMAN RIGHTS (1977); United States- Uganda Relations, Hearingsbefore the Subcommittees
on Africa, International Organizations,And InternationalEconomic Policy And Trade of the Comm.
on Int'l Relations, 95th Cong. 2d Sess. (1978). Also of interest is Uganda After Idi Amin, 137 America
50 (July 1977).
"Lieser, supra note 26, at 318.
"See generally Lippman, The Protection of Universal Human Rights: The Problem of Torture, 1
UNIVERSAL HUMAN RIGHTS 25 (1979).

"For example, Article 3 of the United States Declaration on the Protection of All Persons from Being
Subjected to Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment provides:
No State may permit or tolerate torture or other cruel, inhuman or degrading treatment or
punishment. Exceptional circumstances such as a state of war or a threat of war, internal political
instability or any other public emergency may not be invoked as a justfication of torture or other
cruel, inhuman or degrading treatment or punishment.
G. A. Res, 3452, 30 GAOR Supp. (No. 34) 91, U.N. Doc. A/10034 (1975).
The absolute character of Article 3 can be said to be another example of the jus cogens. Its counterpart
in the Universal Declaration of Human Rights is in Article 5, which reads: "No one shall be subjected
to torture or to cruel, inhuman or degrading treatment or punishment."
"See G.P.R., TortureAnd Other Violations Of Human Rights As InternationalCrimes, 17 REV. INT'L
COMM'N JuR 41 (1976). See also J.CAREY, U. N. PROTECTION OF CIVIL AND POLITICAL RIGHT 61-69 (1970).
"United Nations, G.A. Res. 3452; 30 GAOR Supp. (No. 34) 91, U.N. Doc. A/10034 (1975); BASIC
DOCUMENTS ON HUMAN RIGHTS 35 (I. Browniie, ed., 2d ed. 1981). Article 1 of the Declaration reads:
"1. For the purpose of this Declaration, torture means any act by which severe pain or suffering,
whether physical or mental, is intentionally inflicted by or at the instigation of a public official
on a person for such purposes as obtaining from him or a third person information or confession,
punishing him for an act he has committed or is suspected of having committed, or intimidating
him or other persons. It does not include pain or suffering arising only from, inherent in or
incidental to, lawful sanctions to the extent consistent with the Standard Minimum Rules for
the Treatment of Prisoners.
2. Torture constitutes an aggravated and deliberate form of cruel, inhuman or degrading treatment
or punishment."
For the Amnesty International definition of torture, see AMNESTY INTERNATIONAL, REPORT ON TORTURE
33 (1975). See also Klayman, The Definition of Torture in InternationalLaw, 51 TEM. L.Q. 449 (1978);
Ackerman, Torture And Other Formsof CruelAnd UnusualPunishment In InternationalLaw, I1 VAND.
J.TRANSNAT'L L. 653 (1978).
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This synopsis of the African record on the issue of torture reports that
it has been practiced blatantly in many countries for too many years. Amnesty
International, in its first international review 34 of the use of torture reported:
During their stuggle for freedom, the nationalist movements of various
African states were exposed to the use of torture on their militants, and
on persons suspected of being their sympathisers . . . Notwithstanding
the aspirations towards justice and the protection of the human person
from torture or humiliating treatment which are incorporated into the
constitutions 35 of most African states, the use of torture seems undeniably
to be employed by many of these countries, for a variety of motives and
in a number of different ways . . .36
To mention a few of the atrocities: First, in Equatorial Guinea between
1972-1979, during the regime of Francisco Macias Nguema, methods of tor-
ture used upon detainees in prison included "hanging prisoners in chains which
cut through their flesh, and pouring (gasoline) into open wounds"; 37 Second,
the rule of Jean Bedel Bokassa, the self-proclaimed emperior of the Central
African Empire (now Central African Republic), was a paradigm for severity
in the violation of human rights. His regime of brutality, which has been
documented, 8 included the massacre of more than 100 schoolchildren in April,
1979. Finally, there is President Mobutu of Zaire whose violations of the Zairean
constitution's prohibitions against the use of torture and arbitrary detention
were endemic. Between 1975 and 1979 "Kitawalistes" or Jehovah's Witnesses
were placed in detention for practicing their faith. Other detainees were held
without charge or trial, suffered amputation or other physical disfigurement,
or were starved to death. 9 For the most part, the OAU remained mute while
aware of these occurrences within its Member States.
Perhaps the turning point was the outrage of the killing of the school-
children in Central African Empire. Under the initiative of a summit conference
of Franco-African heads of state, an inquiry was ordered into the killings,
14AMNESTY INTERNATIONAL, REPORT ON TORTURE (1975). For details as to how Amnesty International
gathers its information and some of the factors which may influence a human rights report, see Human
Rights In Africa, Hearing before the Subcommittees on Africa and on International Organizationsof
the Comm. on ForeignAffairs, 96th Cong. 1st Sess. 34 (1980).
"See Ackerman, supra note 33, survey of world constitutions for provisions regarding or relating to torture
or other forms of cruel and unusual punishment at 691-702, and the categorization of countries by
constitutional provisions at 703-707.
"6AMNESTY INTERNATIONAL, supra note 34, at 117.

37AMNESTY INTERNATIONAL, REPORT 1979 17 (1979), cited by Weinstein, Human Rights in Africa: A Long-
Awaited Voice, 78 CURRENT HISTORY 97, 130 (Mar. 1980). Some of the new techniques of torture are
described by Lippman, supra note 30, at 33-35.
SAMFNsTy INTERNATIONAL, RECENT HuMAN RIGHTS VIOLATIONS IN THE CENTRAL AFRICAN EMPIRE, June
26, 1979; Publicationof InternationalCommission of Inquiry's Report on Events in Bangui (CentralAfrican
Empire), August 28, 1979, both cited by Weinstein, supra note 12, at 130; Human Rights In Africa, supra
note 34, at 8-9.
"Human Rights in Africa, supra note 34, at 29-31; See also PoliticalAnd Economic Situation In Zaire-
Fall, 1981, Hearing before the Subcomm. on Africa of the Comm. on ForeignAffairs. 97th Cong. 1st
Sess. 39-44 (1982).
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 Winter, 19841 Turack: African Charter
AFRICAN CHARTER

resulting in a report highly critical of that government's culpability. Significantly,

this is the first report concerning human rights problems made by African jurists
who were appointed by African heads of state. °
III. THE OAU CHARTER AND A CONCISE DRAFTING HISTORY
OF THE AFRICAN CHARTER

The Preamble of the OAU Charter' 1 includes both tangential and direct
references to human rights among its aims. Paragraph two of the Preamble
states: "[C]onscious of the fact that freedom, equality, justice and dignity are
essential objectives for the achievement of the legitimate aspirations of the
African people."" 2 The eighth paragraph reads: "Persuaded that the Charter
of the United Nations and the Universal Declaration of Human Rights, to the
principles of which we affirm out adherence, provide a solid foundation for
peaceful and positive co-operation among States. 41 3 Moreover, the OAU under-
takes "to promote international ccooperation, having due regard to the Charter
44
of the United Nations and the Universal Declaration of Human Rights."
As previously noted, the OAU has remained mute to some of the most
flagrant violations of human rights in modern African history. However, the
OAU has been responsive to other heinous human rights violations involving
racial discrimination 5 and breach of the right of self-determination4 6 in Southern
Africa. This inconsistent approach has led a number of writers to criticize4 "
"*Human Rights In Africa, supra note 34, at 36. Earlier, in 1976, the OAU did investigate the massacre
of Comorians in Madagascar and submitted a report that was highly critical of the Malagasy authorities;
Id. at 48.
"The Charter is reprinted in 58 AM. J. INT'L L. 873 (1964).
4 Id.

"The significance of these references is borne out when one considers the great care and time spent in
drafting the Preamble. According to T.O. Elias "almost half the time spent on considering the Charter
as a whole had been devoted to this preamble alone, so much store had been set by the African leaders
on the postulates enunciated in the preamble of the Charter." Elias, The Charterof the Organization
of African Unity, 59 AM. J. INT'L L. 243, 246 (1965).
"Article II(l)(e) of the OAU Charter, supra note 41.
"The OAU and the United Nations have been and are continually concerned with apartheid in Southern
Africa. As to the apartheid practiced in South Africa, see generally, J. DUGARD, HUMAN RIGHTS AND THE
SOUTH AFRICAN LEGAL ORDER 55 (1978); K. RosKAM, APARTHEID AND DISCRIMINATION (1960); H. VENTER,
APARTHEID (1960). Apartheid practices in Namibia are discussed by S. SLONIM, SOUTH WEST AFRICA AND
THE UNITED NATIONS: AN INTERNATIONAL MANDATE IN DISPUTE (1973); R. TAUBENFELD & H. TAUBENFELD,
RACE, PEACE, LAW AND SOUTHERN AFRICA (1966). There is a voluminous literature on the efforts of OAU
Membership and the UN to eradicate apartheid in Southern Africa; an excellent synopsis recently published
is found in M. McDOUGAL, H. LASSWELL & L. CHEN, HUMAN RIGHTS AND WORLD PUBLIC ORDER 532-560
(1980).
On the other hand the OAU was not responsive to Idi Amin's official racism against Uganda's Asian
population which culminated in their explusion in 1972; see Sharma & Woodridge, Some Legal Questions
Arising From The Expulsion Of The Ugandan Asians, 23 INT'L & COMP. L.Q. 397 (1974); AM. SOC. INT'L
L., PROCEEDINGS 122-140 (1973); HARRISON, UGANDA: THE EXPULSION OF THE AIANS, in 4 CASE STUDIES
ON HUMAN RIGHTS AND FUNDAMENTAL FREEDOMS: A WORLD SURvEY 287 (W. Veenhoven, ed. 1976).
"See Tiewul, Relations between the United Nations Organizationand the Organization of African Unity
in the Settlement of Secessionist Conflicts, 16 HARV. INT'L L.J. 259 (1975); Richardson, Self-Determination,
InternationalLaw and the South African Bantustan Policy, 17 COLUM. J. TRANSNAT'L L. 185 (1978).
"See, e.g., Hall, The Curious Blindspot of the OAU, 9 HUMAN RIGHTS 33 (No. 3, 1981); Aluko, The
Organization of African Unity and Human Rights, 283 THE ROUND TABLE 234 (1981).
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and try to explain the double standard.4 8

At the OAU 16th Ordinary Session of the Assembly of Heads of State
and Government in Monrovia, Liberia, during July 1979, it was resolved to
prepare an African charter on human and people's rights. The resolution 9 called
upon the Secretary-General to prepare a preliminary draft charter which would
provide, in particular, for the establishment of an organ for the promotion
and protection of human and peoples' rights. Dakar, Senegal, hosted the
meetings of experts during November 28-December 8, 1979. The preliminary
draft charter was to reflect the African concept of human rights and distinguish
it from other regional conventions5 ° on human rights. The draft charter was
then considered at two OAU Ministerial Conferences convened by the Secretary-
General of the OAU at Banjul, The Gambia, during June 9-15, 1980, in which
thirty-eight OAU Member States participated, and during January 7-19, 1981,
in which forty Member States took part. At the meeting in Nairobi, Kenya,
during June-July, 1981, the 18th Ordinary Session of Assembly of Heads of
State and Government of the OAU adopted the African Charter on Human
and Peoples' Rights.'
IV. HUMAN AND PEOPLES' RIGHTS AND DUTIES, AND STATE
DUTIES IN THE AFRICAN CHARTER

Part I of the African Charter, entitled "Rights and Duties," is divided

into Human And Peoples' Rights, and Duties. The contracting States are obliged
to "recognize the rights, duties and freedoms enshrined in this Charter," 2 and
to provide for their effectiveness within their territory through legislation or
other domestic measures." Every individual is guaranteed certain enunciated
rights without discrimination on any ground such as race, ethnic group, color,
sex, language, religion, opinion, national and social origin, fortune, birth or
other status.5 4 This appears to be a general guarantee of non-discrimination
on the basis of enumerated criteria.
The individual rights and freedoms enumerated for recognition and pro-
tection include: the right to equality before the law and equal protection of

"Mower, Human Rights In Black Africa: A Double Standard?, 9 REvuE DES DRorrs DE L'HOMME 39 (1976).
"'Reprintedin Weinstein, supra note 12, at 91.
"Such as th Council of Europe's Convention For The Protection of Human Rights And Fundamental
Freedoms, in force since Sept. 3, 1953, 213 U.N.T.S. 222; and the Organization of American States' American
Convention on Human Rights, in effect since July 18, 1978, O.A.S. T.S. No. 36 (1970).
"The African Charter on Human and Peoples Rights [hereinafter cited as "Charter"] is reprinted in 21
INT'L LEGAL MATERIALS 59 (1982); 27 REV.INT'L COMM'N JUR. 76 (1981). A concise drafting history of the
American Charter is reported by Gittleman, Organizationof African Unity: BanjulCharterOn Human and
Peoples' Rights, Introductory Note, 21 INT'L LEGAL MATERIALS 58-59 (1982). See also Gittleman, The African
Charteron Human and Peoples' Rights: A Legal Analysis, 22 VA. J. INT'L L. 667 (1982).
"Article 1, Charter, supra note 51.
"Id.
"Article 2, Charter, supra note 51.
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AFRICAN CHARTER

the law; 55 the right to life;56 the right to juridicial personality and protection
against torture, slavery and other inhuman or degrading treatment or
punishment;5" the right to personal liberty;5" the right to judicial protection,
a fair trial and freedom from ex postfacto laws;5 9 freedom of conscience and
religion;" the right to receive information and the right to expression; 6 ' the
right to free association; 2 the right of assembly;"3 the right to freedom of move-
ment and residence including asylum 64 (mass explusion of non-nationals is
prohibited);6 1 the right to participate in government;6 6 the right of property;6 7
the right to work; 68 the right to good health; 6 9 the right to education and to
participate in the cultural life of the individual's community;" and special
measures of protection for aged or disabled persons."
Peoples' rights include: the right of equality to other peoples;72 the rights
of existence and self-determination; 3 the rights of disposal of wealth and natural
resources; 4 the right to economic, social and cultural development; 5 the right
to peace; 76 and the right to a satisfactory environment.

In addition to the individual's rights, certain individual obligations or duties

are listed, namely: duties to the family, society, the State, legally recognized
communities and the international community;78 and a duty to respect other
persons. 9

"Article 3, Charter, supra note 51.

"Article 4, Charter, supra note 51.
"Article 5, Charter, supra note 51.
"Article 6, Charter, supra note 51.
"Article 7, Charter, supra note 51.
"*Article 8, Charter, supra note 51.
"Article 9, Charter, supra note 51.
"Article 10, Charter, supra note 51.
"Article 11, Charter, supra note 51.
"Article 12(1), (2) & (3), Charter, supra note 51.
"Article 12(5), Charter, supra note 51.
"Article 13, Charter, supra note 51.
"Article 14, Charter, supra note 51.
"Article 15, Charter, supra note 51.
"Article 16, Charter, supra note 51.
"Articles 17(1) & (2), Charter, supra note 51.
"Article 18(4), Charter, supra note 51.
"Article 19, Charter, supra note 51.
"'Article 20, Charter, supra note 51.
"Article 21(1) (2) (3), Charter, supra note 51.
"Article 22(1), Charter, supra note 51.
"6Article 23(1), Charter, supra note 51.
"Article 24, Charter, supra note 51.
"Articles 27 and 29, Charter, supra note 51.
"Article 28, Charter, supra note 51.
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No duties for peoples are listed. Each Member State party to the African
Charter undertakes the following duties: to promote and protect the "morals
and traditional values recognized by the community;" 8 to protect the health
and morals of the family; 8 ' to protect the rights of women and children as
stipulated in international declarations and conventions, and to eliminate
discrimination against women;82 to eliminate foreign economic exploitation;83
to act "individually or collectively, to ensure the exercise of the right to
development;""8 to prevent anyone given asylum from engaging in subversive
activities against his country of origin or against any other State party to the
African Charter. Moreover, there is an obligation not to allow their territory
to be used as a base for subversive or terrorist activities against the people of
any party State;8" to promote respect for the rights, freedoms and obligations
of the African Charter through teaching, education and publication and to make
certain of their being understood;8 6 and finally, to guarantee the independence
of the courts and to allow the establishment and improvement of national institu-
tions which will promote and protect the guaranteed rights and freedoms. 7
Having defined the rights and duties, the African Convention provides
for an international machinery in Part II, "Measures of Safeguard," to ensure
effective compliance. An African Commission on Human and Peoples' Rights
is to be established within the OAU.88 The African Commission will consist
of eleven members who are to possess the following qualitites: (1) African
descent; (2) the highest reputation; (3) high moral integrity; (4) recognized com-
petence in matters of human and peoples' rights. Preference is to be given to
persons with legal experience. Furthermore, the eleven members will serve "in
their personal capacity," and hence not as representatives of any government. 9
No two members may be nationals of the same State.90 Prior to the election
of the members of the African Commission, each State party may nominate
a maximum of two candidates but only one may be its national, whereas each
must be a national of a State that is a party to the African Charter."' At least
four months before elections, the Secretary-General of the OAU is to invite
the States party to the African Charter to nominate their candidates. He is
to draw up an alphabetical list of the nominees and communicate it to the Heads

"Article 17(3),, Charter, supra note 51.

"Articles 18(1) & (2), Charter, supra note 51.
"2 Article 18(3), Charter, supra note 51.
"Article 21(5), Charter, supra note 51.
"Article 22(2), Charter, supra note 51.
"Article 23(2), Charter, supra note 51.
"Article 25, Charter, supra note 51.
"7 Article 26, Charter, supra note 51.
"Article 30, Charter, supra note 51.
"Article 31, Charter, supra note 51.
"Article 32, Charter, supra note 51.
"Article 34, Charter, supra note 51.
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African Charter
CHARTER

of State and Government at least one month before the election. 9" The Assembly
of the Heads of State and Government will then elect the members of the African
Commission by secret ballot from this list of persons."
The members of the African Commission will hold office for six years,
and they may be re-elected. However, the term of office for four of the members
at the first election will be two years, while the initial term of the other three
members will be four years.' 4 Immediately after the first election, the Chair-
man of the Assembly will draw lots to determine those members of the African
Commission who will sit for four years and two years." Elected members will
' 9 6 and will hold
swear to "discharge their duties impartially and faithfully,'
office until a successor assumes office. 97 The African Charter sets out a pro-
8
cedure to replace a member who dies, resigns or fails to discharge his duties.'

To assist the African Commission in discharging its responsibilities, the

Secretary-General of the OAU will appoint a Secretary of the Commission as
well as staff and services, at OAU expense. 99 A procedure is set out for: (a)
election of the Commission's Chairman and Vice-Chairman; (b) a quorum;
and (c) voting. The Secretary-General of the OAU can attend the Commis-
sion's meetings without the right of participation."' The members of the African
Commission are to enjoy the diplomatic privileges and immunities set out in
the OAU's General Convention on the subject and will be paid out of the OAU's
regular budget. 1"'
V. THE COMMISSION'S MANDATE AND PROCEDURE
The functions and powers of the African Commission are to promote and
protect human and peoples' rights by engaging in research in the field,
disseminating information, organizing fora to discuss issues and problems, en-
couraging interested national and local institutions, and providing its view or
making recommendations to governments. This body is empowered to formulate
rules and principles to resolve related legal problems, and to cooperate with
other African and international institutions working within the field. It is
authorized to interpret the African Charter if requested to do so by a State
party, an institution of the OAU, or by any African organization recognized
by the OAU. The Commission can be entrusted with other tasks assigned to

"Article 35, Charter, supra note 51.

"Article 33, Charter, supra note 51.
"Article 36, Charter, supra note 51.
"Article 37, Charter, supra note 51.
"Article 38, Charter, supra note 51.
"Article 40, Charter, supra note 51.
"Article 39, Charter, supra note 51.
"Article 41, Charter, supra note 51.
'*"Article 42, Charter, supra note 51.
"'Articles 43 and 44, Charter, supra note 51.
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it by the Assembly of Heads of State and Government. It appears to have 02

a broad investigative capacity in that it may utilize any appropriate method
of investigation and may be contacted by anyone capable of enlightening it. 103
A. Inter-State Party Complaints
There are two ways in which the African Commission may be seized of
a case based on inter-State action. First, any State party may draw another
State party's attention to the latter's alleged violation of the African Charter
by written communication. The applicant State must give this communication
to the Secretary-General of the OAU and to the Chairman of the African
Commmission.
The alleged offending-State has three months in which to respond in writing
to the complainant-State.' 0 4 If the matter is not resolved to the satisfaction of
both States within three months from the date of the original communication,
either State may submit the matter to the African Commission through its Chair-
man and notify other States involved accordingly.'0 5 A second method, also
involving an inter-State complaint, suggests that the complainant-State may
approach the African Commission directly by lodging a complaint with the
Commission Chairman and also serving notice on the Secretary-General and
6
the alleged offending State.'1
Under either method, the Commission will not act until local remedies
have been exhausted;'0 7 when it does act it may request all relevant informa-
tion and have the concerned States appear before it in an attempt to reach an
amicable solution. 08 If a satisfactory solution cannot be found, the Commis-
sion is to transmit a report of the facts, findings, and any recommendations
to the Assembly of Heads of State and Government, with a copy of its report
on the facts and findings also going to the States concerned.'" 9

B. Other Complaints
The African Charter also provides for the African Commission to be con-
tacted directly by non-State parties through communications from individuals
or others. Before each session, the Secretary of the Commission will make a
list of any of these other communications and will submit the list to the Com-
" Article 45, Charter, supra note 51.
"'Article 46, Charter, supra note 51.
4
1° Article 47, Charter, supra note 51.

"'Article 48, Charter, supra note 51.

"*6Article 49, Charter, supra note 51.
"'Article 50, Charter, supra note 51. The rule of exhaustion of domestic remedies is well known to
international lawyers. For a discussion of this rule as it pertains to the international law of human rights,
see Trindade, The Burden Of Proof With Regardto Exhaustion of Local Remedies In InternationalLaw,
9 REVUE DES DROITS DE L'HoMME 81, 88 (1976); Trindade, Exhaustion Of Local Remedies Under The UN
Convenant On CivilAnd PoliticalRights And Its Optional Protocol,28 INT'L & COMP. L.Q. 734 (1979).
"'Article 51, Charter, supra note 51.
"'Articles 51 and 53, Charter, supra note 51.
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 Winter, 1984] Turack: African Charter
AFRICAN CHARTER

mission members, who will consider the communication if a simple majority

agree."' Article 56 of the African Charter sets out seven prerequisites which
must be met before the communication will be eligible for consideration by
the Commission:
1. Indicate their authors even if the latter request anonymity.
2. Are compatible with the Charter of the Organization of African Unity
or with the present Charter.
3. Are not written in disparaging or insulting language directed against
the State concerned and its institutions or to the Organization of African
Unity.
4. Are not based exclusively on news discriminated through the mass
media.
5. Are sent after exhausting local remedies, if any, unless it is obvious
that this procedure is unduly prolonged.
6. Are submitted within a reasonable period from the time local remedies
are exhausted or from the date the Commission is seized of the matter.
7. Do not deal with cases which have been settled by these States involv-
ed in accordance with the principles of the Charter of the United
Nations, or the Charter of the Organization of African Unity or the
provisions of the present Charter."'

Obviously, any communication addressed to the Commission should con-

tain statements to indicate that the criteria have been met. Before substantive
consideration of the communications, the Commission Chairman is obligated
to bring them to the attention of the concerned State." 2 If the Commission
finds a series of violations, evidence of massive violations, or an emergency
situation in any State, it must notify the Assembly of Heads of State and Govern-
ment, which in turn may order the Commission to provide it with an in-depth
study of the situation and make recommendations.' I3 Any cases or reports con-
sidered by the Commission, whether initiated by a party State, individual, or
others, are to remain confidential, as are Commission reports, until the Assembly
11
of Heads of State and Government decides that they should be published. 4
Also, Assembly permission is required" 5 for publication of the Commission
report on its activities which it will submit to each ordinary Session of the
Assembly. '6
VI. OF MAJOR SIGNIFICANCE

Perhaps most important is the Preamble of this significant document. A

"'Article 55, Charter, supra note 51.
"'Article 56, Charter, supra note 51.
"'Article 57, Charter, supra note 51.
"'Article 58, Charter, supra note 51.
"'Article 59(1) and (2), Charter, supra note 51.
"'Article 59(3), Charter, supra note 51.
"'Article 54, Charter, supra note 51.
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general reading of the Preamble shows that it was inspired by African legal
philosophy, desires and needs. It is intertwined with the OAU Charter which
stipulates that "freedom, equality, justice and dignity are essential objectives
for the achievement of the legitimate aspirations of the African peoples.'"I 7
It is cognizant of the values of African civilization and historical traditions.
The Preamble speaks in terms of total liberation of Africa, elimination of col-
onialism, neo-colonialism, apartheid, Zionism and aggressive foreign military
bases. It notes that peoples are still struggling for their genuine independence.
It is unique in that "the enjoyment of rights and freedoms also implies the
performance of duties on the part of everyone." I8I Moreover, the party States
pledge to "intensify their cooperation and efforts to achieve a better life for
the peoples of Africa.'"'
The African Charter raises a multitude of questions that will not be analyzed
at this time but are certain to ignite scholars who will bring forth a considerable
literature. In the future this instrument will be analyzed both as a legal docu-
ment and as a political document; it will be compared with its regional and
universal counterparts in the field of human rights, and comparisons will also
be made based upon the political ideology of the OAU Member States.

VII. SOME FINAL THOUGHTS

By becoming a party to the African Charter, the State not only under-
takes to abide by all of the rights and obligations inherent within the Charter,
but also reaffirms its adherence to the principles of human and peoples' rights
and freedoms contained in the declarations, conventions and other instruments
adopted by the OAU, the movement of non-aligned countries1 0 and the United
Nations.' 21 Indeed, the African Commission is to draw inspiration from the
international law on human and peoples' rights as found in other related African
international documents, the OAU Charter, the Charter of the United Nations,
the Universal Declaration of Human Rights, and international instruments on
the topic adopted by the United Nations and its specialized agencies, and by
African countries. The African Commission will use these other international
instruments, as well as African practices that are consistent with general inter-
national law, as susidiary sources to determine the principles of law binding
22
on the party States."

"'Preamble, 2, Charter, supra note 41.

'Preamble, 6, Charter, supra note 51.
"'Preamble, 3, Charter, supra note 51.
"'A brief sketch of the history of the movement of non-aligned countries is outlined by Justice Sowah,
Non-Aligned Nations, 13 CASE W. REs. J. INT'L L. 439 (1981). See also, Stojanovic, The Emergency of
the Non-Aligned Movement: A View From Belgrade, 13 CASE W. RES. J. INT'L L. 443 (1981).
"'Preamble, 9, Charter, supra note 51.
"'Articles 60 & 61, Charter, supra note 51.
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AFRICAN CHARTER

It has been difficult 23

' to obtain documentation surrounding the drafting

of the African Charter. Until the travaux prepartories'2 4 become available it

will not be possible to ascertain the reasoning for the use of certain language
in the document, nor to consider the competing factors offered by the negotiating
States in determining the meaning of the provisions as adopted by the party
States. What groups, for example, are encompassed by the term "people"? 2 5
What is the ambit of the phrase used in the Preamble's call to party States
"to dismantle aggressive foreign military bases." 1 2 ' Why does the Preamble
ask the party States to eliminate Zionism when it has never been present on
the continent?12 7 Does the "inalienable right to self-determination" mean
political self-determination alone, or is it expansive, meaning economic self-
determination and social self-determination as well? 2 ' Will self-determination
include the right of secession at some later date by the peoples who now make
up South Africa's "independent" homelands, and who currently enjoy some
form of quasi-independence? 2 9 What significance if any, is to be placed upon
the absence of a derogation clause' 3 ° in the African Charter?

The African Charter will become effective three months after a simple
majority of the OAU Member States, or twenty-six of the present fifty-one
Members, deposit their ratifications with the Secretary-General of the OAU. 13'
"I gratefully acknowledge the communication of January 28, 1983, from C. 0. Egbunike, Esq., Legal
Adviser, Organization of African Unity, and for the copy of the Report Of The Secretary-GeneralOn
The Draft African CharterOn Human An Peoples' Rights, OAU Doc. CM/l 149 (XXXVII), and Annexes
I, II & III, June 15-21, 1981.
'241 am grateful to the Solicitor General & Legal Secretary for the Republic of The Gambia for his letter
of March 2, 1983, in which he states that although Banjul hosted the Ministerial Conference, the OAU
had not yet forwarded any verbatim or summary record of the discussion held at the Conference.
"'The latitude of the term "people" is illustrated by M. McDouGAL & W. REiSMAN, INTERNATIONAL LAW
IN CONTEMPORARY PERSPECTIVE 788-962 (1981). See also Dinstein, Collective Human Rights of Peoples
and Minorities, 25 INT'L & COMP. L.Q. 102 (1976).
"'Preamble, 7, Charter, supra note 51.
"'Preamble, 7, Charter, supra note 51. The reference to "Zionism" is probably in concert with the
United Nations General Assembly Resolution 3379, 30 U.N. GAOR, (Supp. No. 34), U.N. Doc. A/10034
(1975); reprintedin 14 INT'L LEGAL MATERIALS 1520 (1975). This resolution characterizes Zionism as a
form of racism without defining what is meant by "Zionism." For background readings on Zionism,
see D. VITAL, THE ORIGINS OF ZIONISM (1975); J. TALMON, ISRAEL AMONG THE NATIONS (1970); T. HERZL,
THE JEWISH STATE (DER JUDENSTAAT) (H. Zohn, trans. 1970). There may also be a problem for party States
to the African Charger who are also party to the International Convention on the Elimination of All Forms
of Racial Discrimination; See, Coleman, The Problem ofAnti-Semitism under the InternationalConvention
on the Eliminationof All Formsof RacialDiscrimination, 2 HuMAN RIGHTS J. 609 (1969); Lerner, Anti-
Semitism as Racial and Religious Discriminationunder United Nations Conventions, 1 ISRAEL Y. B.
HUMAN RIGHTS 103 (1971).
"'Article 20(1), Charter, supra note 51.
'"See Richardson, Self-Determination, InternationalLaw and the South African Bantustan Policy, 17
COLUM. J. TRANSNAT'L L. 185 (1978); Dugard, South Africa's "Independent" Homelands:An Exercise
in Denationalization, 10 DEN. J. INT'L L. & POL. 11 (1980).
'A derogation clause enables a state to temporarily suspend its obligations, or breach its undertakings,
in circumstances of public emergency or war. In this regard see Hartman, DerogationFrom Human Rights
in Public Emergencies, 22 HARV.INT'L L.J. 1 (1981); H-iggins, Derogations Under Human Rights Treaties,
48 BRITISH Y. B. INT'L L. 281 (1978); Green, Derogationof Human Rights in Emergency Situations, 16
CAN. Y. B. INT'L L. 92 (1978).
"'Article 63(3), Charter, supra note 51.
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There is a view that by signing this multilateral treaty, Member States may
already be considered to be under an obligation not to thwart the object and
purpose of the treaty."' One recent episode is apropos. Nigeria, a signatory
of the African Charter, is also one of the fifteen signatories to the 1975 Treaty
of Lagos which created the Economic Community of West African States;' 3 3
perhaps in accomplishing one of the aims of this latter organization concern-
ing "the abolition as between Member States of the obstacles to the free move-
ment of persons," 3" perhaps Nigeria did not strictly enforce its immigration
laws so that the nationals of its neighbors illegally took up residence and employ-
ment in the country. The present global recession and economic stagnation as
well as political pressures in Nigeria' 35 caused its Minister of Internal Affairs
to announce on January 17, 1983, the expulsion of the illegal immigrants from
Benin, Chad, Ghana, Mali, Niger, Togo and Upper Volta, who were forced
to leave within two weeks.' 3 6 On February 14th, the Nigerian Minister of Internal
Affairs announced that under the expulsion order, 1.2 million West Africans
left the country. I" The African Charter specifically prohibits the mass expulsion
of non-nationals; 3 8 thus, Nigeria's actions are not in compliance with its com-
mitment or with the spirit of the African human rights movement.
Henkin has recently pointed out that "the universalization of human rights
is a political fact."' 3 9 Just as the universal human rights package of conven-
'Usually a treaty does not have legal effect before entry into force. However, Article 18 of the Vienna
Convention on the Law of Treaties provides:
"A state is obliged to refrain from acts which would defeat the object and purpose of a treaty when:
(a) it has signed the treaty or has exchanged instruments constituting the treaty subject to
ratification, acceptance or approval, until it shall have made its intention clear not to become
a party to the treaty; or
(1) it has expressed its consent to be bound by the treaty, pending the entry into force of the
treaty and provided that such entry into force is not unduly delayed."
U.N. Doc. A/CONF. 39/27 (1969), reprinted in 63 AM. J. INT'L L. 875 (1969). See also, Rogoff, The
InternationalLegal Obligationsof SignatoriesTo An UnratifiedTreaty, 32 ME. L. REv. 263, 272 (1980).
'"The Treaty of Lagos concluded on May 28, 1975 is reprinted in 14 INT'L LEGAL MATERIALS 1200 (1975).
See generally Zagaris, The Economic Community of West African States (ECOWAS): An Analysis and
Prospects, 10 CASE W. RES. J. INT'L L. 93 (1978).
'"Article 2, Charter. Article 27 of the ECOWAS Treaty states:
ARTICLE 27
Visa and Residence
1. Citizens of Member States shall be regarded as Community citizens and accordingly Member
States undertake to abolish all obstacles to their freedom of movement and residence within
the Community.
2. Member States shall by agreements with each other exempt Community citizens from holding
visitors' visas and residence permits and allow them to work and undertake commercial and
industrial activities within their territories.
See also, Chhangani, Legal Status of ECOWAS Citizens, NIGERIAN FORUM 948 (Jan. 1983).
'"See Dash, Nigeria'sEconomy FalteringAs Oil Prices Start to Slide, The Washington Post, Feb. 26,
1983, at 1; Bentsi-Enchill, The Nigerian Exodus:An African Genesis?, N.Y. Times, Feb. 15, 1983, § 1, at 29.
"'See N.Y. Times, Feb. 1, 1983, § 1, at 3; Feb. 3, 1983, § 1; Feb. 4, 1983, § 1,at 1; Feb. 5, 1983, §
1, at 3, and Feb. 7, 1983, § 1, at 1.
"'N.Y. Times, Feb. 15, 1983, § 1, at 5.
'"Article 12(5), Charter, supra note 51. Mass expulsions in any context violate general international law;
See de Zayas, InternationalLaw and Mass Population Transfers, 16 HARv. INT'L L.J. 207 (1975).
"'Henkin, Introduction in THE INTERNATIONAL BILL OF RIGHTS 1 (L. Henkin 3d. 1981).
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tions, covenants and declarations speak in terms of their recognition due to

"their preexistence in some other moral or legal order," 1 0 afortiorithe same
concept prevades regionally. Although the party States to the African Charter
are charged with duties concerning human rights, their failure to comply will
not negate their obligations to the other OAU Member States, nor to the world
community as a whole. An initial inspection of the African Charter may reveal
some frailty of language as compared to other international instruments con-
cerning human rights. However, the party States to the African Charter know
that "[t]o advocate human rights is to inform people about their violation,
to fortify the morale of certain resistance efforts, to create 'space' for human
rights concerns within and without the governmental apparatus, and to set in
motion a positive transnational momentum on behalf of peace and justice in
the world." I'

"'Id., at 15. See also Henkin, InternationalHuman Rights as "Rights," 1 CAIozo L. REV. 425 (1979).
"R. FALK, HuMAN RIGHTS AND STATE SOVEREIGNTY 3 (1981).
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