After the 2007 disputed presidential elections, violence broke out, leading to a political deadlock. Diplomatic efforts led to the establishment of a Panel of Eminent Persons comprising former UN Secretary-General Kofi Annan, former Mozambique and South African First Lady Graca Machel and former Tanzanian President Benjamin Mkapa to mediate the conflict between the two leading presidential candidates, President Kibaki and Raila Odinga, now the Prime Minister.

When a political deal was reached, the Grand Coalition Government was formed, with Kibaki as President and Odinga as Prime Minister. The mediators also recommended an inquiry into alleged irregularities and the causes of the election violence. A commission to inquire into the conduct of the 2007 election was formed and chaired by former South African judge Yohanne Kriegler. The commission had seven members and a secretary.