aFRICA October 2012 East and Southern Brief Africa Division Local public governance in western Africa: developing the countries from the grass-roots up

In western Africa, the problems linked Despite the fact that significant efforts are to the local authorities. This process led to food security are very often attrib- being deployed in the capitals of the Sa- in particular to the organisation of the uted to the capriciousness of the climate hel countries to maintain a certain qual- first communal elections in Burkina Faso and to meteorological factors. Even if ity of life, the situation is quite different (1995), in Mali (1999), and somewhat the decline in the amount of rain and in the communities situated in peripheral later in Benin (2002) and in Niger (2004). the phenomenon of global warming do areas. In fact, one finds a flagrant imbal- Henceforth, the mayors and other local indeed severely impact the situation of ance in the distribution of resources and authorities have become involved in the the men, women, and children, the re- wealth, often leading to difficult living management of public affairs. curring food crises in the Sahel region conditions in rural zones. However, it is are also to be explained by human fac- precisely in these areas that the majority Notwithstanding these reforms, several tors, factors which are often attributed of west-African populations reside. Why problems have emerged in practice. In with playing a merely secondary role. then is there such a marked imbalance? the first place, the local authorities do And yet, the armed conflicts, the poor The answer lies in the highly centralised not have enough funds at their disposal governance of agricultural land, the lim- structure of these countries. To a certain to fully assume their responsibilities. Fur- ited resources of farmers and livestock- degree a result of the colonial past, the thermore, they have no long-term expe- breeders confronted with strong popu- upshot is that public affairs have for a rience to draw upon in conducting com- lation growth, the lack of infrastructure long time been managed and adminis- munal affairs. Oftentimes, they lack the to meet the basic needs of the popula- trated from the centre. necessary competencies, hence the en- tions living in the cities, villages, and ru- suing difficulties or even outright failure ral areas: all of these are indeed factors Beginning in the 1990s, the west-African in implementing their mandates. And in that imperil the living conditions of the States began a process of decentralisa- a context as fragile as that of the Sahel region’s inhabitants. tion to attribute increased competencies region, any such obstacles to the good governance of communes can be heavy with consequences for the resident popu- lations. This is particularly the case during periods of drought. Therefore the chal- lenge is to better equip these areas of population both on the level of manage- ment tools and that of capacities.

With respect to the management of lo- cal affairs, Switzerland is often presented as a model. Taking advantage of this long tradition and the resulting know-how, the Swiss Agency for Development and Co- operation (SDC) is providing both techni- cal and financial support to Benin, Burki- na Faso, Mali, and Niger in the process of strengthening local communes. This sup- port has made it possible for cities and villages to better take care of themselves, to engage in a social and political dia- logue with the population, and to galva- nize a new socio-economic impetus. This Brief describes 4 projects on local public governance that are supported by the SDC in its 4 priority countries of western Africa.

The busy Sunday market of Fada N’Gourma.

africa BRIEF October 2012 Local public governance in western Africa: developing the countries from the grass-roots up 1 The market therefore makes a substantial The role of the market in local contribution to the town’s budget. Women in the running of local public management: the case of affairs: example of Benin Fada N’gourma Salient features of the Fada N’Gourma market For the SDC, reducing gender inequali- An endless variety of spices, traditional Although Fada N’gourma’s central mar- ties is an important element of the fight multi-coloured clothing and vegetable ket stands out from the other markets in against poverty. The SDC aims to involve oil of abundant virtues, all beneath the the region, not least because of its size men and women on an equal basis in the shade of the arcades, which shelter cus- and economic potential, the SDC’s in- management of public and domestic af- tomers from the blistering heat of the geniousness is not limited to the physical fairs to enable both sexes to benefit sun. At first glance, the decor resembles construction itself. Indeed, such markets from development. Local bodies offer that of any bazaar in North Africa or the have been an integral part of the Burkina- interesting examples of the involvement Middle East. However, the scene is ac- bé landscape for a very long time. What of women in public affairs. tually in an average-sized town right in makes the market at Fada N’gourma dif- the middle of the Sahel, specifically Fada ferent is the way in which it is run. The In Benin, the participation of women in N’gourma in Burkina Faso. management board is comprised of rep- political life is still weak. This is the case resentatives of the local town hall, mer- in large parts of Africa and is illustrated The marketplace was built thanks to a chants and trade unions. Local public by the small number of women occupy- partnership between the Swiss Agency for management takes the form of regular ing positions of responsibility in public Development and Cooperation (SDC) and management board meetings where the institutions. For some years however, the Burkinabè Government to support the various stakeholders discuss how the there have been some encouraging signs town of Fada N’gourma. This partnership, market is to be run. of a growing desire by women in Benin which began in 1997, served as the basis to work in the service of their fellow citi- for a local development project to build What makes Fada N’gourma truly unique, zens. The results of the latest municipal merchant stands. Inaugurated in 2001, however, is the way in which market in- elections, in 2008, provide proof of this: the Fada N’gourma Central Market has come is used. Essentially, the profits gen- 66 women succeeded in being elected to become an important source of income erated from sales are directly reinvested municipal councils throughout the coun- for the town, and is a major trading point in community projects. This ingenious try in comparison with 45 in 2003. Even if for the whole of eastern Burkina Faso. system is based on a simple principle: this increase is not insignificant, it must merchants pay a monthly rental fee to be kept in mind that the level of repre- Correlation between the mar- use market stalls. A portion of this rental sentation of women in these bodies is ket and development income is used to pay off the market’s growing only slowly (from 3.75% in 2003 In a region where most activities revolve construction costs and maintain the to 4.64% in 2008). around agriculture, rural inhabitants need site (repairs, cleaning, etc.). Some of this to be able to sell and distribute their prod- rental income is also used to cover the Nevertheless, the simple fact of occu- ucts. By bringing producers and custom- town hall’s operating costs. The remain- pying a seat in one these institutions is ers together, the central market serves as der is put into the Communal Develop- not necessarily enough to enable these a vital outlet for agricultural production in ment Support Fund (FADEC) and is used newly elected representatives to exercise the region. The sales generated here are a to finance projects that directly address an influence on political projects. They precious source of income for many rural the needs of local inhabitants. In Fada also have to be adequately equipped to dwellers and their families. This income N’gourma, the FADEC has been used for carry out their mandates. Although the enables them to continue working the soil four major socioeconomic and commu- large majority of these women decided to and tending livestock while providing the nity projects: get involved in political life to contribute town’s inhabitants with locally produced to the development of their communi- food. Given the harsh and unpredictable • Laying over 3 km of municipal roads; ties and to counter the prejudices held climatic conditions to which Sahel coun- • Building a school for six classes; against them, most of them also consider tries are exposed, food security in the • Building houses in a local village, that they do not have the tools they need region is directly dependant on a high • Building a parking area for commercial to exercise their new responsibilities. level of productivity in rural areas. This is vehicles. why it is important for rural inhabitants, Aware of the gap between the will and cattle breeders and farmers to be part of By investing in markets, the SDC has em- the ability to act, the SDC has developed the value chain of economic activity. And powered the local authorities in Fada a strategy of accompanying women mu- here, the central market plays an essential N’gourma to direct their town’s develop- nicipal councillors in Benin as an integral role. ment and enjoy greater autonomy. The part of ASGOL (Appui Suisse au renforce- resulting local public management is ment de la Gouvernance Locale / Swiss The central market is a major source of particularly beneficial to local inhabitants support for strengthening local govern- employment in Fada N’gourma: 1,311 since they are able to use services that ment). The strategy aims to strengthen merchants (341 of whom are women) meet their actual needs. the capacities of elected women to carry currently work there. Each year, the mar- out their roles and responsibilities more ket generates a turnover of roughly CHF effectively and efficiently. Following con- 160,000 a year, which amounts to around sultations to identify their specific needs, CHF 50,000 in municipal tax revenues. the SDC set up a training plan for newly

africa BRIEF October 2012 Local public governance in western Africa: developing the countries from the grass-roots up 2 elected women to rectify their shortcom- ings. A total of 23 training modules were organised, specifically in developing writ- ing and rhetorical skills, the rights and duties of women, managing the munici- pal budget, developing micro-projects and their follow-up, the code of public markets and the application texts, devel- opment planning, etc.

The results of the support for women mu- nicipal councillors in Benin are promis- ing, especially in the municipalities of the department of Borgou (a priority region of SDC action in Benin). This department, which is situated in the east of the coun- try, has the largest number of elected women officials in the country (16 of the 66 municipal councillors in Benin come from there). With the SDC’s technical and financial support, elected women officials The SDC support to elected women meets a genuine political will to take part to the local political in Benin, together with their homologues affairs. in two other departments (20 elected women officials in all) have carried out 15 micro-projects that contributed to raising Cooperation (SDC) has devoted consider- the incomes of 372 woman members of Local public management and able resources to rural hydraulics in Niger, woman village groups active in market drinking water: the case of especially around Gaya and in the regions garden production and the transforma- Niger of Maradi and Tillabéri. The SDC has been tion of agricultural products. These pro- running programmes of this sort since jects also began with the promotion of In Niger, the economy is mainly rural- 1979. In the year 2000, the SDC adopted schooling for children, including girls. In based, contributing 52% to the coun- a new approach to local development, rural and disadvantaged areas, 967 nurs- try’s gross domestic product. Moreover, using two complementary instruments: ery school children were able to benefit rural dwellers account for 82% of the the Local Investment Support Fund (LISF) from educational games and equipment, total population. These figures indicate and the Local Governance Support Pro- and young girls who worked well were that a very large majority of Nigeriens gramme (LGSP). The LISF provides local rewarded for their good results. Through live in small or medium-sized communi- authorities with the funding needed to these small projects, which often gener- ties. Unfortunately, not all settlements make public goods available, in particular ate income for women and thus have a have adequate infrastructure to meet water infrastructure. The LGSP helps au- direct impact on alleviating poverty, the needs of local inhabitants. The man- thorities to manage these public goods. elected women officials were able to as- agement and distribution of drinking These two instruments are applied sert their leadership roles and credibility. water is an example of this. through a well-developed procedure. Communities make their needs known to Even though there is still much to be done Although Nigerien local authorities play the local mayor, who discusses the mat- to achieve better representation of wom- an important role in managing drinking ter with the town council before applying en in political bodies, these women mu- water supplies, the lack of technical and for funding from the LSIF. Approved re- nicipal councillors in Benin have shown financial resources hampers their efforts quests give rise to a call for tenders and a a desire to participate actively in the to build the necessary infrastructure. In contract is signed with the company that development of their communities and rural areas, only 48% of drinking water makes the best offer. The mayor and LSIF a strong interest in public affairs. With a needs are covered, as opposed to the of- administrators then ensure supervision rapidly growing population and very high ficial 100% coverage rate in urban areas. of the commissioned project. While this birth rates, the participation of women in This flagrant disparity explains the diffi- process might seem straightforward, it is decision-making bodies and their politi- culties that local authorities have encoun- important to remember that the country cal influence can certainly play a decisive tered in their attempts to improve basic does not have extensive experience with role in development activities and in im- rural services. However, limited access to local public management (see box). proving the living conditions of all wom- water can have dramatic consequences, en in Benin. especially in a country such as Niger, Over the past 10 years, the SDC has used which periodically experiences drought, this approach with 396 water projects, waterborne diseases and a lack of food which have provided around 157,000 peo- security. ple with access to water for drinking and sanitation. Starting in 2012, LISF funding Aware of the risks posed by this situation, will be used exclusively for rural hydrau- the Swiss Agency for Development and lics. Between now and 2015, 75,000 more

africa BRIEF October 2012 Local public governance in western Africa: developing the countries from the grass-roots up 3 people should enjoy the benefits of these ritories in the north, SDC’s partners con- of users associations and made it possi- services. By delegating the management tinued their support in the other two ble to train them to manage and service of water infrastructure to the local au- priority regions. the construction works. The territorial thorities, the SDC enables them to play communes that backed these projects an important role in running their local Despite the difficult context, Mali can signed agreements with these users asso- affairs, especially with regard to such a pride itself on some interesting examples ciations delegating the projects to them, precious resource as water. The result- in the management of local affairs. This is along with their subsequent exploitation ing installations should also encourage for instance the case with Koutiala, a city and the management of the infrastruc- citizens (including women) and elected and a circle1 situated in the centre of the tures. Moreover, the 36 communes and officials to discuss everyone’s needs and country, which represents one of the are- the “Mother” city of Koutiala formed a how these needs can be met. The par- as where the Programme for Urban Social communal group to better coordinate ticipation of local inhabitants also serves Development (PUSD) is being implement- economic development activities among to raise awareness of the importance of ed. Launched by the Malian State and themselves. Farmers and live-stock water conservation and sanitation. In supported by the SDC, the programme’s breeders organized themselves into co- times of drought, the importance of the objective is to improve the living condi- operatives to better defend the interests techniques and knowledge acquired be- tions in cities like Koutiala and its neigh- of their peripheral rural area. come immediately apparent. At the same bouring communes. To succeed, it was time, the local authorities become better necessary to invest in the infrastructures In the end, these projects made it possi- equipped to deal with the effects of un- destined to stimulate the local economy. ble to better attune rural production to predictable rainfall patterns. the requirements of urban households, At the beginning, studies were carried out thus creating employment and income to determine the projects which were to for the local populations. Socio-economic Small communities but major fulfil the basic needs of the local actors, activities made a significant leap, just as challenges for elected officials and to identify the potential areas for the did both agricultural production and pro- economic development of the city and ductivity. All of this had positive effects In Niger, local elections are a recent phe- its hinterland. The studies revealed insuf- on food security and the local economy. nomenon, having only started in 2004. ficient links between the city of Koutiala Close to citizens, elected mayors enjoy and the 36 communes of its circle both on Several key Malian partners gave their greater legitimacy and are better placed the level of special planning and on that backing to this national programme, to identify problems in their community. of economic activities. whose leverage effects on aspects such However, in a country where basic public as infrastructure, fiscal receipts, and ad- services have always been managed by With this in mind, the SDC began sup- ministrative/financial management are civil servants in the capital, local authori- porting several projects of spacial plan- not to be disputed. The SDC is counting ties are not always able to take over these ning and improvement of access and on utilizing its experiences in Koutiala to responsibilities. In some cases, mayors in connection to the outside, so as to bet- strengthen local development in other Niger lack the competences and financial ter connect the “Mother” city of Koutiala regions of Mali. means needed to carry out the new du- and its rural peripheral areas. One can ties given to them. The LISF and the LGSP cite a long list of examples like the inter- are intended to bridge this gap so that communal lane Pessoba – Karangana local authorities can build their capacities Mallé – N’Tossoni 17km in length, the and become more effective. realization of a sewage drainage system more than 8km long, the construction of a cattle stockyard complex covering 3ha in N’Togonasso, micro-dams in the com- Between political instability munes of Fakolo and Kapala, commercial IMPRINT and climate insecurity: local infrastructures in Koutiala, etc. public governance in Mali Publisher The social and citizen mobilization that Swiss Agency for Development and Just like with its activities in the other accompanied this process of creating in- Cooperation SDC countries of western Africa, the SDC frastructures facilitated the organization West Africa Division has made enormous investments in East and Southern Africa Division strengthening local actors in Mali. Ac- Freiburgstrasse 130, CH-3003 Bern tive in the regions of Sikasso, Mopti, and Mail: [email protected] Timbuktu, its programmes aim at the www.sdc.admin.ch emergence of local development with institutions and civil society capable of 1 Similar to the canons of Switzerland, the Photographs delivering quality public services. Al- circles concentrate a large number of communes SDC though last March’s coup d’etat caused and villages within their area. The city of Koutiala a temporary interruption in the SDC’s is the capital of the circle which bears its name. Bern, October 2012 activities, it nonetheless did not bring The circles have been part of Mali’s administrative the whole programme in Mali to a halt. configuration since 1999. There are 49 circles in This publication is also available in French and Outside of Timbuktu and the other ter- the country. German

africa BRIEF October 2012 Local public governance in western Africa: developing the countries from the grass-roots up 4