The Pan-African Parliament (PAP) convened a Workshop on Artificial Intelligence (AI) Governance for its Members of Parliament (MPs) from across the African continent from 27th to 28th September 2025 at its Headquarters in Midrand, Republic of South Africa, under the theme: “Building Parliamentary Capacity for AI Governance and Inclusive Digital Transformation,” reaffirming the centrality of parliaments in shaping policy frameworks on AI and ensuring inclusive digital governance across Africa.
The workshop, aimed at enhancing MPs’ understanding of AI opportunities, risks, and global trends and at validating the Pan-African Parliamentary Toolkit on AI Governance in alignment with Agenda 2063 and Africa’s Digital Transformation Strategy, was supported by the African Population and Health Research Center (APHRC), the European Parliament (EP), and the Inter-Parliamentary Union (IPU). It was convened in accordance with the Lusaka Declaration, adopted on 11 July 2025 in Lusaka, Zambia, a policy framework guiding Africa’s legislative and institutional response to digital transformation and outlining the roles of parliamentarians, the private sector, and civil society in advancing a continent-wide digital agenda.
The Workshop was officially opened by H.E. Chief Fortune Charumbira, President of the Pan-African Parliament, who emphasised the importance of AI governance in protecting Africa’s sovereignty, encouraging innovation, and strengthening democratic processes. The PAP President emphasised the transformative potential of AI to accelerate Africa’s development across key sectors, including healthcare, agriculture, democratic governance, and climate resilience. He noted AI’s role in enhancing agricultural productivity, promoting transparency in public services, and facilitating innovative tools for participatory democracy. At the same time, he cautioned against the growing risks associated with AI, particularly disinformation, mass surveillance, algorithmic bias, and exploitative data practices, which, if left unaddressed, could deepen inequalities and usher in a new era of digital colonialism. The PAP President emphasised the urgent need to strengthen the framework for AI governance by developing a continental Model Law on AI Governance to guide cooperation and standardisation. He also called for the swift finalisation of a Parliamentary Toolkit on AI Governance, aimed at equipping Members of Parliament with the knowledge and legislative tools necessary to balance innovation with ethics, inclusion, and the protection of rights.
The PAP President welcomed the strategic partnership between PAP and its partners—namely APHRC, EP, and IPU—in promoting peer learning, digital literacy, and strengthening the capacity of legislatures to shape the continent’s digital future through lawmaking, oversight, budgeting, and citizen representation, thereby enhancing public trust in AI. In alignment with the goals of Agenda 2063, the President urged PAP Members to serve as champions and guardians of Africa’s digital future, ensuring that no Member of Parliament is left behind in shaping the continent’s AI journey.
The PAP President outlined key priorities for Africa’s engagement with AI, stressing the need to harness the continent’s demographic dividend by equipping its youth—60% of whom are under 25—with the skills and opportunities to thrive in the AI era. He identified bridging the digital divide through targeted investment in infrastructure, digital literacy, and local innovation as essential for inclusive growth. He also highlighted the risks of data exploitation and external dependence, calling for data sovereignty, ethical oversight, and inclusive governance. Parliaments, he noted, play a vital role in ensuring ethical regulation, policy coherence, and citizen protection. The President urged greater regional harmonisation of AI policies and collaboration across countries, while underscoring the importance of inclusive implementation, particularly for marginalised communities. Ultimately, the President reminded participants that AI leadership begins not with tools or technology, but with strong parliamentary leadership.
In his welcome remarks, Mr Gali Massa Harou, Deputy Clerk of the Pan-African Parliament (PAP), outlined the Workshop’s objectives and highlighted AI’s transformative potential. She cautioned, however, that AI poses serious risks—including disinformation, privacy violations, and threats to democracy. Describing AI as a double-edged sword, he stressed the need to build parliamentary capacity to align with continental frameworks and position PAP at the centre of Africa’s AI-driven future. He reaffirmed PAP’s role in strengthening oversight and legislation to ensure AI adoption is ethical, inclusive, and aligned with Africa’s development goals.
The workshop featured a series of expert-led sessions that enhanced MPs’ understanding of AI’s applications, risks, and implications for public policy, health systems, and research capacity in Africa. The opening session, led by Dr. Anthony Francis Mveyange and Dr. Agnes Najjuko Kasirye Kiragga from APHRC, introduced the fundamentals of AI and its dependence on data as a strategic resource. The session prompted critical reflections on data sovereignty and emphasised the urgent need for African institutions to assert control over their data assets. Members identified critical infrastructure and regulatory deficiencies, emphasizing that over 700 million Africans—approximately half of the continent’s population—remain without internet access, and less than one-third have access to broadband connectivity. The absence of robust legal safeguards, fragmented governance architectures, and insufficient research capacity were cited as systemic impediments to the development and deployment of inclusive and ethical AI. This pronounced digital divide poses a substantial constraint on the scalability and effectiveness of AI solutions, particularly in underserved and marginalised regions. MPs expressed concerns over deepfakes, the misuse of surveillance, and the spread of disinformation, and collectively endorsed the development of a continental Model Law on AI Governance, as well as broader strategies to bridge the digital divide, promote data inclusion, and build citizen trust. The need to emphasise policies that promote data protection and ensure data sovereignty was also highlighted, including the need to guide investments in AI across different countries.
A second session, led by Dr. Florah Katanu Karimi of APHRC, focused on the application of AI to capacity strengthening initiatives. Drawing from APHRC’s Research and Related Capacity Strengthening (RRCS) experience, the discussion explored how AI enhances capacity strengthening endeavours within the African region. Significant emphasis was placed on the transformative benefits of AI across various domains, including virtual learning environments, content development, translation and education, research visibility, institutional linkages, and policy translation to support diverse population groups. However, key capacity-related challenges were also highlighted, such as the need for ethical AI use, transparency and disclosure, data privacy and security, bias and reliability concerns, and existing capacity gaps. The discussion further underscored the importance of building synergies to harness AI-driven opportunities, particularly in personalized learning, enhanced research and analytical capabilities, improved efficiency and productivity, knowledge sharing, and policy engagement, while maintaining a strong commitment to ethical AI practices.
During the third session, Mr. Henry Owoko of APHRC examined the integration of AI into public policy processes. MPs were introduced to tools like PolicyLens AI and how AI can improve policymaking, service delivery, citizen engagement, and monitoring and evaluation. The presentation highlighted the ethical and governance issues of integrating AI into public systems, including risks of bias, surveillance, and reduced accountability. Parliamentarians called for stronger data governance, greater capacity building for policymakers, and safeguards to ensure AI adoption is inclusive, transparent, and respects rights. They also emphasised the dual nature of AI—as a means of citizen empowerment or authoritarian control, depending on governance and regulatory decisions.
The fourth session, presented by Mr. Daniel Mwanga of APHRC, addressed the vital issue of data governance in the age of AI. The discussion highlighted the importance of aligning national data laws with regional and continental frameworks such as the AU Data Policy Framework and Malabo Convention. Weak enforcement, capacity gaps, and over-reliance on foreign infrastructure were identified as key vulnerabilities. Parliamentarians were encouraged to champion investment in digital infrastructure, raise citizen awareness of data rights, and support multi-stakeholder collaboration. The session concluded with a call for parliaments to act as ethical guardians of digital governance, ensuring strong legal protections, accountability, and cross-border cooperation in data and AI systems.
Mr. Andy Richardson of the Inter-Parliamentary Union (IPU) delivered a presentation on AI policy and the role of parliaments, referencing the IPU resolution on The Impact of Artificial Intelligence on Democracy, Human Rights and the Rule of Law, adopted in October 2024. The resolution urges parliaments to prioritise discussions on AI-related issues, recognising the technology’s transformative implications. It was noted that over 50 parliaments worldwide, including some from Africa — Egypt, Morocco, Nigeria, and Senegal — have undertaken initiatives on AI policy.
Mr. Andy Williams of the Inter-Parliamentary Union (IPU) delivered a presentation on the role of artificial intelligence in parliaments and the broader digital transformation of parliamentary institutions, emphasizing that the ultimate goal is to make parliaments more effective and accessible to citizens. He highlighted the IPU’s ongoing work in this area, including the development and promotion of knowledge tools such as the AI Guidelines for Parliaments, while noting that adoption is contextual and non-linear. He stressed that the effective implementation of AI requires more than the introduction of new technologies; it demands a comprehensive transformation of institutional culture, procedures, and processes. Understanding the implications of AI for parliaments necessitates a focus on key dimensions such as regulation, governance, and ethical use. He also underscored the importance of digital and information literacy as foundational to ensuring inclusive and meaningful engagement with AI. In conclusion, Mr. Williams called for structured and responsible AI governance in parliaments and encouraged enhanced inter-parliamentary cooperation and knowledge-sharing to strengthen collective capacity.
Hon. Brando Benifei, Member of the European Parliament (EP), noted that parliaments around the world, including in Africa and the European Union, are adopting similar approaches to AI governance, beginning with study committees to guide stakeholder engagement and identify effective policy pathways. He underscored the critical role of parliaments in regulating high-risk areas of AI, cautioning against overregulation while emphasising the importance of striking a balance between harm mitigation and fostering innovation to ensure fairness. Hon. Benifei called for stronger synergies between the EP and PAP, not only in the area of AI regulation but also in supporting the adoption of AI within parliamentary institutions to enhance their effectiveness. He further emphasised the need for deliberate investment in building technological capabilities across legislatures.
Across all sessions, Members of Parliament agreed on a shared vision: for Africa to lead in developing ethical, inclusive, and sovereign AI systems that support the continent’s development goals. Parliamentarians are committed to working together to promote responsible AI adoption through harmonised laws, parliamentary oversight, research investment, and public engagement. The workshop adopted the following concrete recommendations aimed at guiding African parliaments in shaping ethical, inclusive, and rights-based AI governance across the continent and underscoring the strategic role of legislators in securing Africa’s digital sovereignty and ensuring AI systems serve the continent’s development goals:
- Harmonise and Strengthen Legal Frameworks
Parliamentarians should support the development and harmonisation of national AI and data governance laws in line with regional and continental instruments such as the AU Data Policy Framework, Malabo Convention, and Agenda 2063. Countries are encouraged to ratify and domesticate these protocols and align national policies with global benchmarks such as the GDPR. This will promote legal coherence, facilitate cross-border collaboration, and ensure Africa’s data is protected and governed ethically.
- Build Institutional and Human Capacity
Participants called for sustained investment in capacity building at both institutional and individual levels. This includes funding for digital infrastructure, curriculum reform to incorporate data protection and AI ethics in public service training, and structured AI literacy programmes for Members of Parliament, parliamentary staff, and government officials. Enhancing institutional readiness is critical for effective legislative oversight and responsible digital transformation.
- Raise Public Awareness and Promote Data Rights
To build trust in digital governance, MPs recommended that governments and national institutions prioritise public awareness campaigns on data rights, privacy, and the ethical use of AI. Parliamentarians should collaborate with data protection authorities to strengthen citizen protections and promote accountability in data handling across sectors. Inclusive communication strategies, especially in local languages, were encouraged to ensure no community is left behind.
- Enforce Compliance and Accountability
Legislators urged the establishment of clear regulatory enforcement mechanisms, including performance indicators, audit trails, and sanctions for non-compliance with data and AI governance laws. Parliamentary oversight mechanisms must be institutionalised to ensure adherence to ethical standards and legislative mandates, particularly in high-risk sectors such as health, finance, and education.
- Promote Safe, Secure, and Inclusive Data Ecosystems
The Workshop highlighted the importance of adopting and enforcing best practices in data protection, including encryption, anonymisation, access controls, and informed consent protocols. Participants recommended prioritising investment in national data centres, especially in underserved regions, to reduce dependency on foreign infrastructure. Parliamentarians also supported the use of secure, AI-powered learning platforms, such as the Virtual Learning Academy (VLA), to scale technical capacity and civic education across the continent.
- Facilitate Strategic Partnerships and Regional Collaboration
Recognising the need for collective action, the Workshop called for enhanced cross-border collaboration and knowledge sharing among African countries. Parliamentarians should facilitate the creation of national and regional platforms to exchange good practices, align standards, and coordinate implementation efforts. These platforms should include stakeholders from civil society, academia, the private sector, and multilateral institutions.
- Advance Ethical and Inclusive Digital Development
It was strongly recommended that parliaments play a central role in ensuring digital transformation is inclusive and human-centred. This includes protecting labour rights in AI-driven sectors, promoting gender and youth inclusion in digital economies, and supporting locally relevant innovation that reflects African values and societal needs. Particular attention should be given to addressing digital exclusion in rural and marginalised communities.
- Ensure Cultural Representation and Language diversity
The workshop recommended the integration of African languages, values, and cultural contexts into global and regional AI systems to ensure inclusivity, safeguard Africa’s digital sovereignty, and preserve the continent’s cultural identity in the digital era.
- Promote Employment and Inclusivity
Parliamentarians urge the development of policies and frameworks to mitigate the potential negative impact of AI-driven automation on employment, particularly for youth and women. Member States should promote re-skilling and up-skilling programmes, while ensuring the active participation of youth and women in AI policymaking, governance, and implementation.
- SupportInnovation and Youth Participation
The Pan-African Parliament recommends increased investment in youth-led AI innovation through funding, enabling regulatory environments, and the establishment of AI start-ups and innovation hubs. Collaboration between governments, universities, and research institutions should be strengthened to position Africa as a creator and innovator in AI, rather than a passive consumer.
- Foster Evidence-Based Policymaking
Participants emphasised the role of data in strengthening policy design, budgeting, implementation, and monitoring. MPs were encouraged to undergo regular training in data literacy and AI tools to ensure that legislative and policy decisions are informed by credible evidence. Governments should institutionalise the use of data and research in public decision-making processes and create accountability mechanisms to discourage policy disregard of available evidence.
- Integrate AI Across the Policy Cycle
The Workshop recommended the systematic integration of AI throughout the policymaking process—from problem identification and design to implementation and evaluation. Tools such as PolicyLens AI were identified as valuable assets for enhancing legislative drafting, public engagement, and policy performance analysis. Participants also stressed the importance of maintaining human oversight in AI systems to uphold democratic values and public accountability.
- Promote African Ownership and Innovation in AI Governance
Finally, MPs reaffirmed that Africa’s AI future must be led by African institutions and aligned with the continent’s strategic priorities. This requires fostering local innovation, building policy leadership, and embedding principles of transparency, ethics, and inclusion in all AI governance frameworks. Participants called on PAP and national parliaments to serve as champions for African sovereignty in digital transformation.
- At the conclusion of the workshop, Members of Parliament received certificates of completion, symbolising their strengthened ability to lead Africa’s AI governance and digital transformation agenda and marking a milestone in the PAP’s journey to mainstream AI governance into Africa’s legislative, policy, and oversight frameworks, aligning with the aspirations of Agenda 2063 and the Sustainable Development Goals (SDGs).
Done at Midrand, Republic of South Africa, on 28th September 2025
