ST/ESA/PAD/SER.E/64
Department of Economic and Social Affairs
Division for Public Economics and Public Administration
Governance in Africa: Consolidating the Institutional Foundations
United Nations • New York, 1999 Notes
The designations employed and the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or area, or of its authorities, or concerning the delimitation of its frontiers or boundaries.
The designations “developed” and “developing” economies are intended for statistical convenience and do not necessarily imply a judgement about the stage reached by a particular country or area in the development process.
The term “country” as used in the text of this publication also refers, as appropriate, to territories or areas.
The term “dollar” normally refers to the United States dollar ($).
The views expressed are those of the individual authors and do not imply any expression of opinion on the part of the United Nations.
Enquiries concerning this publication may be directed to:
Mr. Guido Bertucci Director Division for Public Economics and Public Administration Department of Economic and Social Affairs United Nations, New York, NY 10017, USA Fax: (212) 963-9681
iii Please note that the publications on Public Administration and Development now appear under the symbol ST/ESA/PAD/SER.E/.... This is a continuation of the series of publications formerly issued under the symbol ST/TCD/SER.E/....
iv FOREWORD
It is expected that efforts to consolidate governance called for an acceleration of the democratic institutions throughout Africa will be rewarded by process, for which the national institutional the fruits of social stability and economic well- framework can be, at best, well grounded, catalytic being. While remarkable strides have been made in and sustainable. Within the United Nations system some circumstances, substantial gaps persist in and the global community, a series of recent countries which are still grappling with the issues activities have highlighted the importance of of civil strife, political instability and poverty. governance issues in Africa. Many of these gaps can be attributed to the In June 1995, the Organization of African Unity continued existence of fragile political, social and (OAU) adopted the Cairo Agenda for Action, economic institutions. Strong and dependable designed to relaunch Africa’s economic and social institutions provide frameworks within which development. The OAU members recognized that people can work jointly towards positive common “democracy, good governance, peace, security, futures. Strong institutional frameworks in social stability and justice are among the most essential and economic governance will provide the enabling factors in African socioeconomic development”, environment for development when they can ensure and committed themselves to “ensure the speedy foresight, strategies and implementation follow- promotion of good governance, characterized by through to meet the challenges of diverse regional accountability, probity, transparency, equal appli- situations and a turbulent global economy. These cation of the rule of law and a clear separation of frameworks extend beyond the civic society fabric powers, as an objective and a condition for rapid and the legal basis to include institutions, such as and sustainable development in African society.” creative think tanks, strong operational ministries, robust court and police systems and lively In March 1996, the Secretary-General of the community and civil society processes. United Nations launched the United Nations systemwide Special Initiative for Africa, as the Through increased capacity-building and manage- operational arm of the United Nations New ment improvement, both the State and private Agenda for the Development of Africa in the sectors, as well as civil society institutions, can 1990s. As part of this special initiative, a focused gain the respect and trust of the people. National subprogramme emerged, entitled the Special institutions, such as the constitution, the parlia- Initiative on Governance in Africa, which recog- ment, the judiciary, the public service and local nized that sound institutions and a productive governments, can be strengthened and, where interface with civil society provide a solid foun- appropriate, their actions can be coordinated. Their dation for transparent, responsible and effective products and services can be surveyed and governance. improved. Their processes can be made more relevant, transparent and accountable. The various In April 1996, the resumed 50th session of the sectors can be linked and coordinated for maxi- United Nations General Assembly on Public mum growth and dynamism. This strong national Administration and Development, the first General institutional framework represents a consolidation Assembly session in United Nations history of the foundations for good governance in Africa. focusing on the role of public administration and development, issued resolution 50/225, which In 1990, for example, the Addis Ababa Declara- reaffirmed that “transparent and accountable tion by African Heads of State and Governments governance and administration in all sectors of
v society are indispensable foundations for • How can the State strengthen the “rule of law” development.” and the relationships among state powers and institutions, including legislative, executive and In July 1997, the First African Forum on Gover- judiciary? nance, held in Addis Ababa, organized by the United Nations Development Programme’s • How to nurture a functional and mutually Regional Bureau for Africa and the United Nations beneficial relationship between citizens and Economic Commission for Africa, brought state institutions? and together a select number of African governments to • How to enhance the public service in its role to review their national governance programmes. The facilitate economic and social development? Global Conference on Governance, organized by the Management Development and Governance The Conference was divided into two parts. The Division of the United Nations Development first two days were devoted to a roundtable of emi- Programme, in cooperation with the United nent persons drawn from within and outside Africa Nations Department of Economic and Social with relevant experience in societal and governance Affairs, provided a valuable platform for the transformation. An additional 75 other distin- exchange of international experiences in improving guished conference participants, representing state governance practices. institutions, local governments, non-governmental organizations, academicians, women's organiza- Many international nongovernmental organizations tions, professional associations and the press, have also held dialogues on governance issues. The attended the roundtable as observers, and then Global Coalition for Africa provides a framework continued their discussion during the three-day for donor and recipient countries to discuss future workshop that followed, focusing on elaborating directions of development assistance. the strategies suggested by the roundtable Achieving sustainable human development and participants. A number of multilateral and bilateral economic growth requires initiatives built on: (1) organizations also attended the workshop as firm institutional foundations; (2) a commitment of observers and cosponsors. all actors to principles that will facilitate the After an initial plenary discussion, the workshop judicious exercise of power; (3) adherence to participants divided into three working groups: professionalism and ethical behaviour in public service; and (4) an active and responsible civil • Modalities for strengthening the rule of law and society interacting with state institutions interrelations between key governance constructively. institutions (legislative, executive, and judiciary); place and role of the constitution; Contributing to this dialogue, the United Nations and legal and legislative framework; Department of Economic and Social Affairs and the United Nations Economic Commission for • The role of the public service; and Africa jointly organized the “Conference on Gover- • Configurations of the public service/civil nance in Africa: Consolidating the Institutional society interface, including building “social Foundations.” The Conference made recommenda- capital.” tions on how to strengthen governing institutions and maintain a dynamic balance between them in This report includes the main points raised at the order to create an appropriate foundation for good Conference. governance. To this end, the conference delibera- tions addressed the following thematic areas: Guido Bertucci Director Division for Public Economics and Public
vi Administration Department of Economic and Social Affairs
CONTENTS
Foreword ...... iii
Message of the Secretary-General of the United Nations, Mr. Kofi Annan ..... 1
Keynote Address by Dr. Julius K. Nyerere, Former President of the United Republic of Tanzania and Chairman of the South Centre ...... 3
Summary of the Conference Deliberations ...... 9 Introduction ...... 11 Governance and Institutional Development ...... 12 The Public Service and Development ...... 16 The Role of Civil Society in Governance ...... 18 Key Recommendations ...... 20
Annexes
Annex I. Opening Statement by Mr. K.Y. Amoako, Executive Secretary of ECA ...... 25
Annex II. Address by Mr. Guido Bertucci, Director, DPEPA/DESA, United Nations ...... 27
Annex III. Address by Mr. Yasuhiro Hamada, Ambassador of Japan to Ethiopia ...... 30
Annex IV. Address by H.E. Mr. Woredewolde Wolde, Minister of Justice of Ethiopia ...... 32
Annex V. Address by Mr. Salim Ahmed Salim, Secretary-General, Organization of African Unity ...... 34
Annex VI. List of Participants ...... 40
vii Annex VII. Working Papers ...... 53
viii
MESSAGE OF THE SECRETARY-GENERAL OF THE UNITED NATIONS MR. KOFI ANNAN
It gives me great pleasure to convey a message to Governments are adapting to globalization, liberal- this important gathering, which brings together izing their economies and integrating themselves representatives of Governments, private sector into the global marketplace. They are pursuing enterprises and civil society groups to discuss an political and economic reforms which can strain issue of critical importance for African peace and services and entail considerable sacrifice. development. Civil society, for its part, is an increasingly robust I would like to thank everyone involved for their and important force, nationally and internationally. contributions: The Governments of Ethiopia and Indeed, the growth of civil society, and expanding Japan; the Commonwealth Secretariat; His partnerships between Government, the business Excellency Mwalimu Julius K. Nyerere and the community and private investors, has helped Mwalimu Nyerere Foundation; and my United nations boost their productivity and register gains Nations colleagues in the Department of Economic in other basic economic indicators. Civil society and Social Affairs and the Economic Commission groups have been instrumental in encouraging for Africa. democratic transfers of power, and they have accelerated the movement towards participatory In my address to the Organization of African Unity governance and organized activity by non-state last year in Harare, I spoke of three waves of actors. momentous change in modern Africa. The first, of course, was the period of decolonization and the These changes are both welcome and necessary. struggle against apartheid. The second, in the The promise of equitable, sustainable development immediate post-colonial period, was marked all too is predicated on transparent, accountable often by civil war, the tyranny of military rule and governance. Good governance and sustainable economic stagnation. A third wave, I said, was development are indivisible; the former provides now in prospect: an era of democracy, human the foundation for the latter. That is why it is vital rights and sustainable development. for the fundamental prerequisites of good gover- nance to be elaborated and refined. But for the third wave to take hold, it must be rooted in strong political, economic and social In the days ahead you will explore the central institutions with a solid foundation. African institutions of governance and ways of ensuring nations – individually and collectively, with the that they function effectively, efficiently and support of the United Nations and other partners – judiciously. These indispensable elements include need to build the governance structures, systems the constitutional framework and measures needed and frameworks so that Governments can do what to safeguard the rule of law; the role of civil their publics expect of them: facilitate economic society and how to enhance its capacity to interact growth; protect individual and group rights; and with government; and, finally, the public service balance the differing interests in a society. and the need to build sound relationships with the political leadership and civil society. We live in an era of rapid and profound trans- formation. One of the most positive changes of It is my sincere hope that this Roundtable and recent years has come in the relationship between Workshop will produce a fruitful exchange of government and the governed. views and lessons, and lead to innovative ideas on
1 how to consolidate the institutional foundations for working with you to propel the continent forward. good and effective governance in Africa. The In that spirit, please accept my best wishes for the United Nations system stands ready to continue success of your deliberations.
2 KEYNOTE ADDRESS BY DR. JULIUS K. NYERERE FORMER PRESIDENT OF THE UNITED REPUBLIC OF TANZANIA AND CHAIRMAN OF THE SOUTH CENTRE
A few years ago I attended a meeting of the Global developed and very poor nations. However, the Coalition for Africa in Harare, Zimbabwe. It was quantity of this “official” charity being chaired by President Masire of Botswana and increasingly inadequate to meet the most obvious attended by a substantial number of African Heads needs, one of the criteria for a nation being classi- of State. From outside Africa, it was attended by fied as among the world’s “deserving poor” came the two cochairmen of the GCA, Robert to be having “good governance” as defined by the McNamara from the United States and Ian Pronk donor community. from the Netherlands, and a large number of In practice, that phrase means that those countries officials from the donor community. At a certain have multiparty systems of democracy, economies point in the course of the discussion, the question based on the principle of private ownership and of good governance in Africa came up. But it came international free trade, and a good record of up as a condition of giving aid to African human rights – again, as defined by the industri- countries. The manner of the discussion and the alized market economy countries of the North. It fact that this was an exchange between African was in this context that we in Africa first heard Heads of State and officials from wealthy about “good governance”; and this was the manner countries were deeply disturbing. in which it was brought up at the Harare meeting It reminded me of the social history of Great to which I have referred. Britain before the advent of the welfare state. The It was this aid-related discussion of good extremes of individual or family poverty within governance, a matter between aid-givers and aid- that country were dealt with through the philan- seekers, and the arrogant and patronizing manner thropy of rich persons to whom such human misery in which it was raised by the aid-givers that discre- was unbearable. But their charity was given only dited the whole subject in the eyes of many of us in to those they regarded as the “deserving poor.” Africa and other parts of the South. When used in This, in practice, meant that it was given only to this manner, good governance sounded like a tool those people regarded by the philanthropist as for neocolonialism. We have therefore tended to having demonstrated an acceptance of the social despise the concept even as, out of necessity, we and economic status quo – and for as long as they try to qualify under it. did so. I am very far from being alone in rejecting neo- As the world’s powerful nations have not (as yet) colonialism, regardless of the methods adopted to accepted the principle of international welfare, they bring it about, or to enforce it or to describe it! Yet apply the same ‘deserving poor’ notion to the we cannot avoid the fact that many of our reality of poverty outside their own countries. problems in Africa arise from bad governance. I “Aid” and noncommercial credit are regarded not believe that we need to improve governance as springing from the principles of human rights or everywhere in Africa in order to enable our people international solidarity, regardless of national to build real freedom and real development for borders, but as charity extended as a matter of themselves and their countries. I allowed myself to altruism by richer governments to the less be persuaded to be a “convener” of this Conference
3 on Governance in Africa because I believe that it be the ultimate objective of good Marxists. Today provides an opportunity for us to understand more the weakening of the State is the immediate about our past political and economic policy objective of free-marketeers! mistakes and see how we can improve the In advocating a strong State I am not advocating management of our affairs as we grope towards the an overburdened State, nor one with a bloated Twenty-first Century. bureaucracy. To advocate a strong State is to We have been provided with some excellent papers advocate one which, among other things, has to help the Conference in its work, and I would like power to act on behalf of the people in accordance to thank the authors and the organizers for them. with their wishes. And in a market economy, with Not only did they contribute to my own education, its law of the jungle, we need a State that has the but they also make it unnecessary for me to do capacity to intervene on behalf of the weak. No more than emphasize certain points which are State is really strong unless its government has the elucidated in those papers. full consent of at least the majority of its people; and it is difficult to envisage how that consent can Governments bear the final responsibility for the be obtained outside democracy. So a call for a state of the nation – its internal and external peace, strong State is not a call for dictatorship either. and the well-being of its people. It is the distinction Indeed, all dictatorships are basically weak between the words “government” and because the means they apply in governance make “governance” which draws attention to the reality them inherently unstable. that, despite its enforcement agencies, government (in the sense of the executive authority) is not the The key to a government’s effectiveness and its sole determinant of whether those responsibilities ability to lead the nation lies in a combination of are fulfilled. For there are always other forces three elements: first, its closeness to its people and within a country which, in practice, can help or its responsiveness to their needs and demands; in hinder the effectiveness of a government, and other words, democracy; secondly, its ability to which it therefore ignores at its peril. This point is coordinate and bring into a democratic balance the well made in a number of the papers which have many functional and often competing sectional been produced for this Conference. institutions which groups of people have created to serve their particular interests; and thirdly, the Government is an instrument of the State. Today efficiency of the institutions (official and unoffi- there is a call, emanating from the North, for the cial) by means of which its decisions are made weakening of the State. In my view Africa should known and implemented throughout the country. ignore this call. Our States are so weak and anemic already that it would almost amount to a crime to It goes without saying that all of the institutions weaken them further. We have a duty to strengthen must be rooted in and appropriate to the society to the African States in almost every possible respect; which they are applied. The machinery through one of the objectives of improving the governance which a government stays close to the people and of our countries is to strengthen the African States the people close to their government will differ and thus enable them to serve the people of Africa according to the history, the demographic distri- better. One result of weakening the State can be bution, the traditional culture (or cultures), and the observed in Somalia. There are many potential prevailing international political and economic Somalias in Africa if we heed the Northern call to environment in which it has to operate. Democracy weaken the State. In any case, dieting and other means much more than voting on the basis of adult slimming exercises are appropriate for the opulent suffrage every few years. It means, among other who overeat, but very inappropriate for the things, attitudes of tolerance and willingness to emaciated and starving! Incidentally, the world has cooperate with others on terms of equality. changed indeed! The withering of the State used to
4 An essential ingredient in democracy is that it is difficult to see how subsequent presidents can based on the equality of all the people within a honour the new restriction. Furthermore, if the nation’s boundary, and that all the laws of the land provision of a limited term of office irks one apply to all adults without exception. The nation’s president or prime minister, another provision of constitution must provide methods by which the the constitution could irk another president or people can, without recourse to violence, control prime minister. We might then expect the con- the government which emerges in accordance with stitution of the country to be changed after every it and even specify the means for its own general election. This is a point which in my view amendment. In short, the constitution itself must be needs much emphasis. No respect for the consti- based on the principles of the rule of law. tution leads to no basis for the rule of law. It is inevitably the government which is responsible About the nature of government machinery, as for upholding the rule of law within the State. vitally important as that is to the maintenance (or This, together with the making of laws, is one of establishment) of peace, justice and the people’s the most important of its responsibilities to the well-being, I need say little. Several of the previ- people. But the government itself is subject to the ously circulated papers provide an excellent basis constitution. All heads of state swear to honour for serious consideration of this topic and its mani- and protect the constitution. This is as it should be, fold implications for good governance. However, I for the constitution is the supreme law of the land. would like to emphasize one or two related points. We cannot respect ordinary state laws if we do not All the institutions and processes of democracy and respect the constitution under which they were democratic administration cost a great deal of promulgated. A scrupulous respect for the money to establish, maintain and operate. That constitution is the basis of the principle of the rule applies equally to official and spontaneous unoffi- of law. cial institutions and to cooperation among them. It seems to me that some of us tend to forget that Further, to be effective, all such structures rely logic. Presidents, prime ministers and sometimes heavily upon the existence of a politically con- all members of a government seek to amend a scious civil society, which is active, organized and constitution in their own favour, even when they alert. Such a civil society will have a good under- come to office through and because of the provi- standing about the existence and functions of the sions of a constitution which they have sworn to various institutions, and about both their powers honour. and the constitutional limits to their power. Dicta- tors generally prefer an ignorant and passive or Too often, for example, we have seen presidents malleable population. It is easier to manipulate seeking to lengthen the number of terms they serve, such a population and parade the result as people’s despite the limit laid down in the constitution. This participation. practice is wrong. It cheapens the constitution of the country concerned. If and when experience Yet Africa is at present poverty-stricken. I am the shows that the restriction laid down in the first to admit that a country does not have to be constitution is too restrictive and needs to be rich in order to be democratic. But a minimum changed, (which in my view should be very, very amount of resources is needed in order to meet rare), the change should not lengthen the term of some minimum requirements of good governance. the current officeholder, who is bound in honour to In Africa today, even the high echelons of the civil observe the restriction under which he or she was service receive salaries which are inadequate to elected in the first place. More importantly, the keep a family for a month, and the minimum wage first president to be elected under a restricted term is derisory. All salaries (especially of teachers and of office must never change the constitution to health workers) are frequently delayed. Nor have lengthen that term. If he or she does it, it is the people in general been the beneficiaries at any
5 time of a well-organized education system directed Bokassa and Mobutu are Africans, whereas at enlarging public understanding of and active Franco, Hitler and Mussolini were Spanish, participation in modern democratic institutions and German and Italian, and Africa had nothing to do processes. with their rise to power. Poverty is an enemy of good governance, and Rather than conduct a post-mortem, this confer- persistent poverty is a destabilizer, especially if ence should try to help Africa and African coun- such poverty is shared in a grossly unequal manner tries to move forward from where we are now by or is widely regarded as being unfairly distributed, addressing the central issue of building and as the few who are relatively rich indulge in strengthening the institutional framework of our conspicuous consumption. Known or suspected continent and its countries. In doing so, the confer- corruption among political leaders often makes the ence has to face the realities of Africa – all of problem worse, and corruption throughout the them: the internal ones, where our theoretically society more difficult to overcome. Good wages or sovereign nations find that their freedom to act is salaries will not stop bad people from being obstructed by the depth of our poverty and corrupt, but miserable wages and salaries are not technological backwardness; and those external to conducive to rectitude. Political instability, real or us and beyond our control, in relation to which we imagined, can be a source of, and is often used as are like a collection of pygmies in a world where an excuse for, bad governance. giants stalk, and from where modern and con- stantly changing technology floods outwards over To say this is very different from saying that the world like an irresistible tide. because Africa is poor, Africans do not deserve good governance. This continent is not distin- Still, none of these things justify despair. As the guished for its good governance of the peoples of conference analyses the problems faced by Africa Africa and their affairs. Poverty may be a problem, and tries to work out pratical solutions to all the and I believe that it is a problem, as we try to obstacles facing our countries, I believe it can take establish the conditions for good governance comfort and gain strength from what has been throughout Africa. But without good governance, achieved thus far, despite everything. Let me we cannot eradicate poverty, for no corrupt mention some of the encouraging factors. government is interested in the eradication of Most African countries are now, once again, poverty. On the contrary, as we have seen in many “coping” with the worst of their economic prob- parts of Africa and elsewhere, widespread corrup- lems, and some are making good progress towards tion in high places breeds poverty. better living conditions for their people. We hear Nor in saying this am I asking this conference to little about such difficult triumphs over adversity accept the widespread belief that Africa has more in the context of international recessions and corrupt, more tyrannical and more power-hungry violent changes in primary commodity prices, for elites than other continents, either now or histori- example. cally. While avoiding the living and naming only a Most of our countries are now living in a state of few of the dead, it is surely easy to see that in the internal peace, a peace which is deepening. We do past 75 years alone, Mobutu, Bokassa and our not hear about such peace unless it is broken. military coup leaders can be compared to Franco, Despite the artificial and often unclear national Mussolini, Hitler, and the military juntas of borders of Africa, our States have largely avoided Europe and elsewhere. In all European countries violent conflict among themselves. Despite the where the term of office is not limited by the histories of other continents, that accomplishment constitution, my fellow politicians there pride is ignored – even within Africa. Although this themselves on how long, not on how briefly, they important success has been achieved largely remain in power. The trouble is that Amin,
6 through the work of the Organization of African confident that African States, individually and in Unity (which African States themselves estab- cooperation with one another, can step by step and lished), the media and the international community in an orderly fashion, move towards “good generally refer to the OAU with derision, if at all. governance”. That is the last point I wish to make to you today. Our children’s expectation of life, and all that those statistics imply, has greatly improved, except The OAU exists and assists in the maintenance or where countries became direct or indirect restoration of peace and cooperation within Africa, surrogates in cold war conflicts, or were for even if it is too severely weakened in action and special reasons among the countries involved in capacity by its lack of resources. Some subregional prolonged civil strife. organizations are making limited but useful contributions to stability, peace and economic Africa now has a core of highly educated and progress in their respective areas. I hope that, as internationally recognized experts in various fields. the conference considers how African States can Your presence here and the quality of the papers improve their governance, it will also take into you have produced is proof of that. Given the consideration the advantages to them of moving number of technically and professionally educated towards cooperation and unity of action within and Africans in our countries at independence, and the across our continent. paucity of secondary or tertiary educational institutions at that time, the number of high calibre The machinery of government and of unofficial experts in Africa is now much larger than could institutions within African States can facilitate or reasonably have been expected after this lapse of hinder movement towards greater intra-African time. Perhaps we are misusing them, but they are cooperation. In addition, all-African institutions, as here now. At independence, some of our countries well as those working on a subregional basis, may had no trained people at all. well be able to benefit from the conference’s deliberations, provided the latter bears in mind the Finally, for better or worse, the first generation of prospective importance of the role these that these our leaders is fast being replaced by the second or intra-African institutions can play in strengthening even the third. Most of them are better educated, us all. relatively free from the mental hangovers of colonialism, and have had the opportunity to learn Mr. Chairman, I thank you and the other from the mistakes and successes of their conference participants for your patience. I wish predecessors. you fruitful discussions. With the help of work done at this conference I am
7
SUMMARY OF CONFERENCE DELIBERATIONS
INTRODUCTION
The Conference entitled “Governance in Africa: and nearly 100 observers from the international Consolidating the Institutional Foundations,” was community and the United Nations. The five-day convened in Addis Ababa, Ethiopia from 2 to 6 meeting was composed of two tiers: a Roundtable March 1998. It was jointly organized by the United of a dozen eminent persons from within and Nations Department of Economic and Social outside of Africa, which took place during the first Affairs (DESA) and the United Nations Economic two days, followed by a three-day Workshop for Commission for Africa (ECA), with the assistance distinguished practitioners from around the of the Government of Japan. continent. The overall objective of the meeting was to provide a forum where participants could share During the opening session, conference views on how best to strengthen state institutions participants heard a message from the United and derive implementable initiatives and strategies Nations Secretary-General, Mr. Kofi Annan; to facilitate the consolidation of the institutional welcoming remarks by His Excellency, framework for good governance in African Mr. Woredewolde Wolde, Minister of Justice of countries (see annexes VI and VII for the list of the Federal Democratic Republic of Ethiopia; and participants and background working papers). a keynote address by the convener, former President Dr. Julius K. Nyerere. The Secretary- The conference was greatly energized by the General’s message, which was read by the United seminal contribution of former President Nyerere Nations Under-Secretary-General and Executive to the debate on governance in Africa. From the Secretary of the United Nations Economic keynote address to his interventions in later ses- Commission for Africa, Mr. K.Y. Amoako, sions, the convener set the tone for the overall reaffirmed the commitment of the United Nations discussion on strengthening the institutional system to work with African countries in foundations of good governance in Africa. Relying advancing the cause of good governance and to heavily on his past experience as a Head of State propel the continent forward. and on his vast knowledge of African politics, Dr. Nyerere showed how many of Africa’s problems The Director of the Division for Public Economics arose from bad governance, and delighted the and Public Administration, Mr. Guido Bertucci, participants with memorable examples of past made opening remarks on behalf of Mr. Nitin political and economic policy mistakes. At the Desai, Under-Secretary-General of UNDESA. As same time, he felt that rather than conducting a representative of the host country, H.E. Mr. post-mortem, the Conference should help Africa Woredewolde Wolde shared with the participants move forward with new ideas and innovative the lessons of Ethiopia’s experiment in the strategies for building and strengthening the devolution of power from the center to the local institutional framework of governance. Rejecting level, and wished the conference great success. In externally imposed definitions of governance and his opening remarks, the Ambassador of Japan to notions of a minimalist State, he insisted on the Ethiopia, Mr. Yasuhiro Hamada, stated that the need and the duty to strengthen the African State in output of the conference would be fed to the order to enable it to serve the people better. Dr. forthcoming Tokyo International Conference on Nyerere was so persuasive and his views so African Development (TICAD II) (see statements influential that many of them emerged as in annexes I-V). conclusions from the conference deliberations. The Conference brought together 66 participants
11 Conference participants were also privileged to governance, the nature and role of the state, key hear from another distinguished African speaker, governance institutions (the constitution, the the Secretary-General of the Organization of legislature, the judiciary and the executive, African Unity (OAU), Dr. Salim Ahmed Salim. including the public service) and civil society, as Speaking on “Governance in Africa: Lessons well as related issues of the military, elections, the Learned from the Past,” the Secretary-General of opposition, women, decentralization and the media. the OAU affirmed that “the fundamental principles In addition to examining these issues in detail, the of democracy and good governance are universal,” conference debated the question of how to manage and that on the basis of the African experience political transitions in a manner that facilitates the over the past several years, “the process of achievement of good governance. In this regard, democratization on the continent is irreversible.” there was a clear recognition of the need to The OAU has played and will continue to play a strengthen the role of civil society organizations as supportive role in this process, he indicated, so that integral players in the transition process. Great good governance might assist efforts at addressing emphasis was placed on the need to enhance the the critical issues of peace, security, stability and effectiveness and legitimacy of the State as a economic development in Africa. Like those of Dr. necessary condition for economic development and Nyerere, many of the points made by Dr. Salim the strengthening of good governance. Emerging can be found in the conclusions emerging from the from the roundtable and workshop discussions roundtable and workshop discussions. were a number of recommendations for possible follow-up action. The following summary of the As expected, the conference deliberations touched conference deliberations presents analytical on a wide range of issues relevant to the consoli- conclusions for each of the three major themes of dation of the institutional foundations of good the conference, and a summary of key governance in Africa. These included the funda- recommendations. mental issues of the nature and objective of good
GOVERNANCE AND INSTITUTIONAL DEVELOPMENT
The first theme of both roundtable and workshop responsibility for steering national affairs lay discussions was governance and institutional primarily with the public sector, it was agreed that development. The debate on this theme revolved this must be done in partnership with civil society. around the three traditional branches of govern- Where there is no partnership, there is no ment (legislature, judiciary, and executive), with consultation. Experience shows that lack of greater emphasis on the need to strengthen the effective consultation leads to poor governance. legislature (including the electoral process) and the Poor or bad governance was identified by par- judiciary. There was a shared view that the ticipants as a source of many of the problems executive branch in most African countries was facing the African continent and the root cause of disproportionately strong and what was needed its institutional crisis. By the same token, good was a rerationalization of roles and governance is essential to the design and imple- responsibilities. mentation of economic and social development as Nature and objective of good governance well as to peace and security. And, in the reverse, poverty is inimical to good governance – a mini- Participants were reminded of the Greek origin of mum level of economic and social well-being is the word “governance”, which relates to “steer- necessary to sustain democracy and good gover- ing”. While there was a recognition that the nance. Poverty cannot be eradicated without good
12 governance, and alleviation of human misery is mediate between conflicting claims and interests, central to the problem of governance in Africa. the State must be stronger rather than weaker. And this is essential for purposes of formulating and Conference participants also dealt with some of the implementing economic policy. For some underlying conditions of good governance. A very participants, a central question for African compelling case was made that the fundamental democracies is the capacity to set up viable principles of democracy and good governance are economic systems. For a democracy without food, universal, but their applicability to a specific con- clean water, schools and other basic necessities of text like Africa is a function of historical circum- life cannot be sustained. stances and cultural realities. The idea that demo- cracy was not applicable to Africa, was rejected. In addition to the NGOs, the State as a central For the ethnic, religious and other cleavages of locus for action is challenged by the international African societies are not fundamentally different community, particularly with respect to economic from social cleavages elsewhere. To succeed, policy. Are policy decisions made internally or democracy and good governance require a strong imposed from the outside? Can African States commitment to the values of equity, equality, follow the example of the Asian countries to indus- tolerance, inclusiveness and the rule of law. The trialize their economies? These and related Indian Ocean island of Mauritius was singled out questions were discussed with reference to the role as an African success story with respect to of the State in the economy and the prerequisites inclusiveness and good governance. As a for sustainable economic growth like good multiracial and multi-ethnic society, Mauritius has governance and political stability. endeavored to ensure that minorities do not feel left How the State meets the challenge of economic out of the system. growth will depend on several factors, including its Nature and role of the State legitimacy, effectiveness and the level of insti- tutional development. Legitimacy and effectiveness The specific nature of the State as a set of gover- are interrelated, where legitimacy refers to the nance institutions and its economic and social role State’s acceptance by the people and effectiveness in contemporary Africa were discussed in con- to its capacity to accomplish what it promises to nection with good governance in Africa. There was do. When a government is effective, it builds legiti- widespread agreement that the externally driven macy; and when it is legitimate, it can count on idea of a minimalist State, or the notion of popular support to enhance its effectiveness. This, shrinking the State to the benefit of nongovern- however, is a function of the level of institutional mental organizations (NGOs), was not desirable. It development, which, it was noted, remains low in was argued that Africa should ignore the call for most African countries. weakening the State, as the continent is already beset by too many weak States. There is a need to Low institutional capacity was seen as being inte- strengthen the African State in order to make it grally tied to the problem of legitimacy and the serve the people better. manner in which the State is perceived by most people in Africa. So long as the masses see the Participants, however, noted that a strong State is state as a means of access to riches for rulers and not necessarily an overburdened one nor one with a their entourage, the tendency will be to distrust bloated bureaucracy. It is, on the contrary, a State state institutions. For the State to overcome this that has the power or capacity to act efficiently in lack of legitimacy and be perceived as a set of meeting the interests and needs of the people. In a impartial institutions, a great deal of institution- market economy dominated by the rich, the State building and commensurate awareness-building has to intervene on behalf of the poor. In order to must take place. This is critical to creating the appropriate perception and trust.
13 Legal foundations and key governance ture, the main issues were twofold. institutions First, there was the question of institutional Much of the conference debate revolved around the capacity-building for Parliament and its subunits, central or key institutions of governance, the or legislative committees, to fulfill their missions linkages and relationships between them, and their of making laws, controlling the executive and interface with civil society. The crucial role of the responding to the aspirations and demands of the constitution as the fundamental law and basic people. expression of the rule of law was affirmed. There Second, there was the need for training (i.e., skills is no democracy without the rule of law, and all the development, knowledge enhancement, and attitude institutions of government must respect the change) the legislators and their assistants or constitution. In Africa, new and very good consti- technical personnel to be more productive and tutions are being adopted. Although the population effective in their work.This implies developing is usually consulted through the referendum, skills for making laws, including drafting bills, greater effort is needed to build a culture of respect improving investigative methods and techniques, for the constitution among both the general public and fulfilling all the other oversight functions in a and political leaders. This is all the more necessary competent manner. Capacity-building for parlia- in view of the fact that constitutions have not only mentarians may be achieved through national been violated by those sworn to uphold them, but training programmes, exchange programmes with have been amended to suit incumbent regimes. other parliaments, and participation in study One of the constitutional requirements of good missions, brainstorming workshops and major governance is the clear definition of the roles and conferences. powers of the three traditional branches of gov- With respect to the judicial branch, the central ernment: the legislature, the judiciary and the issue involves reinforcing the independence, executive. Good governance demands that each integrity and competence of the judiciary. power be called to task if it violates the rules or Participants agreed that the independence of the interferes with the work of the other two. Partici- judiciary should be enhanced by its financial pants debated, among other issues, the extent to autonomy. Other issues discussed included the which checks and balances are respected in the real procedure for appointing judges; improving the functioning of African political institutions; the career and working conditions of judges; and need to make legislatures more answerable to their improving the quality of judges, magistrates and electorates than to the wishes of the ruling party, judicial services, through continuous training and i.e., the executive; and doing away with the retooling. The problem of lower courts was also personality cult, nepotism, clientelism and personal debated, but it was difficult to develop a consensus rule in the executive branch. Questions were raised on the issue, given the great variety in the experi- about the appropriateness of power sharing as a ences of these courts, including traditional or principle of governance in multiparty systems and customary courts operating on bases other than about term limits for executive officeholders. It written law. However, it was agreed that as law was felt that these and related questions deserve enforcement agencies, these courts and their more scrutiny as part of Africa’s search for the officers should be trained to observe and respect most appropriate and stable institutions of good the basic rights of the people who appear before governance. them. Much of the discussion on the key governance The question of the abuse of authority and viola- institutions centered on the institutional develop- tion of human rights by the courts, the police and ment of the legislature, the judiciary and other law other law enforcement agencies figured promi- enforcement agencies. With respect to the legisla-
14 nently in the conference deliberations on capacity- for university graduates and aspiring middle building for legal framework and enforcement. classes, as public service salaries and benefits were Although much of the debate centered on the police increasingly inferior to those in the private sector. and corruption, the institutional strengthening of In this context, the reform effort with respect to all law-enforcement agencies, including the public improving the quality of policy-making, manage- prosecutors and prisons, and of the entire legal ment and service delivery calls for greater part- system and community, was deemed essential to nership between political authorities and the public the promotion of the rule of law and good service; an inclusive rather than exclusive or governance. Participants were concerned that the authoritarian leadership style; a performance-based existing low levels of remuneration for public reward system in the public service; and servants generally, judges and other law- enforce- appropriate mechanisms of service delivery involv- ment officers in particular, continued to undermine ing the strengthening of local governments and the effectiveness of the judiciary and create community groups, including NGOs. Other reform conditions conducive to corruption. strategies mentioned that could be of potential Overall, the participants emphasized the centrality benefit to the political transitions in Africa include of the constitution in national affairs and advo- a clearer definition of the role of government in cated that constitutions should be translated into society, together with the most appropriate and indigenous languages so that the vast majority of affordable programmes; reinvigorating the public the people can have better knowledge of their service through risk-taking approaches to problem- rights and responsibilities under the law. solving; and strengthening the legislative and judicial branches of government by providing them Political transitions in Africa with their own budgets. The debate on the various issues related to gover- An important dimension of the current political nance in Africa pointed to the conclusion that transitions in Africa is the role that women can and constitutions and institutional structures in them- do play in the process. Participants were reminded selves are not enough to ensure good governance. of the need to recognize the contribution of women In addition, active involvement of the people in as central actors in governance and in the local and national affairs is essential. Recognizing promotion of peace and conflict resolution in the tremendous developments in Africa in the last Africa. The gender dimension of governance few years in creating conditions for stability and should be actively promoted at all levels of economic development, the participants generally decision-making and in all the institutions of the agreed that the democratization process is now State, civil society and the private sector. It is irreversible. There was recognition that snags, therefore necessary to infuse public policy and bottlenecks, and other interruptions may occur, but strategy with gender sensitivity, as in India, where these would be short-lived. gender balance is pursued through appropriate The participants discussed extremely useful statutory provision. There was a strong view that experiences on governance institutions in Asia, the the contribution of women in the structure for Caribbean, North America, and South Africa. freedom and democracy was neither adequately Much of the discussion centered on the public acknowledged nor rewarded. service and the relationship between the senior Unlike the other developing regions of the world, public service and political authorities. In the where civilian control over the military is fairly developing countries and regions examined, it was well established, military coups d’état remain a noted that the crisis of the State was an important real threat to the transition from authoritarianism dimension of the overall crisis of development. The to democracy in Africa. If there was widespread State was no longer a place for upward mobility consensus that no military intervention against
15 democratically elected governments should be has yet to achieve a high level of credibility. Even allowed, questions were raised about what to do where independent electoral commissions do exist, should an elected government become corrupt people are still skeptical about the fairness of the and/or dictatorial. The political culture of the process, and losers have yet to accept their defeat military was noted as a significant factor in the as being part of the democratic process. A third decision to intervene. The politicization of the reason is the role that money plays in electoral army in Tanzania after the 1964 mutiny, and the outcomes. Dealing with electoral corruption contrast between Burundi in 1993 and South remains a major challenge of the democratization Africa in 1994 following major elections, were process in Africa. shown as important case studies in political culture Consistent with the issues of power sharing and the and civil-military relations in Africa. The fairness of the electoral process, it was suggested participants also noted the valuable role that that there is need for Africa to rethink the role and regional groupings, such as the Economic Com- value of political opposition. Is it necessary to have munity of West African States, can play in fore- an European-type opposition? What accounts for stalling the perpetuation of military regimes. the immaturity, the weakness and the opportunism Elections and the role of the opposition in a of much of the opposition in Africa today? No democracy were two other issues discussed in consensus emerged on this subject at the confer- connection with the political transitions in Africa. ence. However, the ideal of maintaining an open It was noted that voter registration remains low, dialogue between the ruling party and the opposi- and that in recent times there has been a low tion was emphasized. The Botswana practice, turnout of registered voters at the polls. Although whereby all political parties are brought together at voter apathy is not limited to Africa, it is a matter an annual conference to discuss policy options, of concern in a continent where free and fair was cited as a positive example of how hostilities elections are still an unfulfilled demand of the between political parties can be diffused. Including democracy movement. Part of the reason for voter members of the opposition in leadership positions apathy is the fact that the vast majority of the in the standing committees of Parliament should population is still not involved in the political also help consolidate the institutional foundations debate. Another reason is that the electoral process of good governance.
THE PUBLIC SERVICE AND DEVELOPMENT
The second major area of focus for the Conference and strengthening the institutional foundations for was the executive branch, with particular emphasis good governance in Africa. on the public service, its role in governance, and its Nature of the public service and its role in contribution to development goals. Issues of particular interest included the question of how to governance measure the performance of the public service; the The discussion on the public service began with problem of corruption and how to deal with it; and exercises in definition. After a fruitful exchange of the current preoccupation with public service views, participants distinguished between the reform through institutional development and notion of civil service and public service and capacity-building for economic and social agreed to focus on the latter, as it was more development. Building capacity, together with inclusive, referring to all agencies of public promoting the professionalism of the service and administration, including parastatals and law enforcing a code of ethics for its agents, was seen enforcement agencies. The latter definition has the as central to the whole question of consolidating
16 advantage of situating the public service at the goals, the choice of indicators, whether qualitative intersection of a network of relations between or quantitative, is often controversial. The norms administrative, political and economic structures. of the evaluation, the identity of the evaluators and And it is this point of convergence that helps the manner in which the evaluation itself is carried explain the role of the public service in governance out are also subjects on which agreement is not and its contribution to economic growth and easy to establish. In spite of these constraints, development. supervision, control and monitoring of public service performance are part and parcel of the Since decolonization, African countries have functions of the executive, the legislative and the sought to establish development administration judicial branches of government, respectively. systems to serve the people in meeting their basic Independent commissions such as the Office of the needs and aspirations for economic and social Ombudsman and citizen review boards or panels development. To a large extent, this goal was not can also play the monitoring role so that the public met, as the capacity built up in the wake of inde- service may remain faithful to its mission of pendence was eroded by the combined effect of serving the people. institutional decay and persistent economic crisis, resulting in a diminished ability to perform both Professionalism and ethics in the public routine and developmental tasks in a satisfactory service manner. How to correct this situation with a lean and yet competent and effective public service that Corruption is one factor that affects public service would motivate individual agents and reward performance in an adverse manner. Participants merit, figured prominently in the discussions. discussed the issue and its causes at length, and However, much of the debate revolved around two noted things such as low salaries; the absence of an questions: measuring public service performance effective system of control; a culture of impunity in and the problem of corruption. the public sector; lack of political support for anti- corruption programmes; and the lack of pro- Measuring public service performance fessionalism and ethics in the public service. To deal with the problem, a long list of remedies was The question of measuring public service per- proposed, the following among others: to promote formance is basic for good governance in the sense the values of rigour, integrity and transparency in that the administration must be held accountable public affairs; fight against practices that are con- for its acts. Assessing what is accomplished trary to the general interest; simplify and publish against the objectives or operational goals of the working manuals with information on the nature of public service, should help not only with services provided by the State and what is required accountability, but also with establishing a system to benefit from them; establish public assistance of monitoring continuous improvement in perfor- and complaint services; require the wearing of mance. It was noted that the objectives are gener- name tags by public servants; improve financial ally fixed with reference to the missions or policy management and promote financial accountability; goals of the administration. Very often, there is a and implement a programme of capacity-building marked discrepancy between the expectations of in administrative management. users and the actual services rendered. Moreover, some of the objectives are difficult to measure in It was noted that corruption and the decline of the short term, and most administrations in Africa professional ethics in the public service took a turn have not shown much interest in what their clients for the worse at the end of the 1970s, when the think of their work. economic and political situation began to deteriorate in most African countries. In many If performance evaluation consists in measuring instances, programmes such as structural adjust- results against the defined objectives and policy ment and the exigencies of the globalization
17 process have had negative economic impacts on priorities, and involve all categories of public large segments of society. This, in turn, has servants. The skills that need to be developed and adversely affected the motivation of many public reinforced should include collaborative leadership, servants. Improving the national political climate teamwork, and better information management and the economic conditions of public sector through the electronic media. employees is an important requirement for raising Participants agreed that in addition to training, the the level of professionalism and ethics in the public reform effort must deal with the restructuring of service. In addition, for there to be a truly the public service and better remuneration and professional public service, meritocracy must be working conditions for its employees. They further established and adequately rewarded. felt that the public service of the future, at both Capacity-building in the public service local and national levels, should be lean, competent and flexible in its operation. It ought to make itself On the basis of the preceding discussion, public accessible to the general public, seek to satisfy the service reform must imply the creation of linkages needs of its clients and strive for a higher quality of between capacity-building and institutional performance in its work. Public servants should be development as a means of reinforcing the role of retained, promoted and rewarded on the basis of the public service in governance and in economic performance, rather than simply because of length and social development. The thrust of this effort is of service. Restructuring was also seen as human resources development, including in-service potentially useful in improving salaries and training of public servants for a more effective benefits, as it would result in removing from the performance of their tasks. The training itself payroll large numbers of ghost employees. should correspond to institutional needs and
THE ROLE OF CIVIL SOCIETY IN GOVERNANCE
The third and last major theme of the Conference sphere of human activity involving organizations was the role of civil society in governance. As a outside of the state sector which, nonetheless, partner in governance alongside the State and the interact with the State to serve the needs of the private sector, civil society is actively involved in people. CSOs include human rights groups, media expanding the political space and in making state groups, NGOs, professional associations, student institutions more responsive to the people in associations, trade unions and women’s groups. Africa. After attempting to define what civil society is and describing how civil society organi- Capacity-building of civil society zations (CSOs) build their capacity, participants organizations (CSOs) discussed at length a number of key issues per- Participants were challenged to examine the taining to their increasing role in governance, with process of capacity-building in CSOs by develop- particular emphasis on the relationship between ing a consensus on two interrelated issues: (1) civil society and the public service and on strength- what is meant by capacity-building; and (2) the ening the role of CSOs in the current political role of domestic and international organizations, transitions. both public and private, in building the CSOs’ Civil society capacity. Taken together with a third issue on classifying CSOs according to their principal area The definition of civil society proved elusive. What of activity, the discussion on this question did was common to nearly all the proposed definitions bring out a number of helpful conclusions on how was the affirmation that civil society refers to that CSOs build their capacity.
18 Most CSOs are voluntary associations created to Key issues in the increasing role of civil achieve stated objectives. As autonomous entities society in governance that do not owe their existence to an act of Parlia- ment, an executive decree, or any other external Consistent with the definition of civil society and agency, their approach to institutional capacity- its organizations, participants underscored the fact building must be unique or different from organi- that CSOs are not created as a result of govern- zations that are part or creations of either the State ment charity. They are established as part of the or business enterprises. They thus take respons- inherent right of people to organize themselves in ibility for building and strengthening their own order to promote their interests within a legal capacity, and they do so through actual involve- framework. It was agreed that civil society is ment in the activities for which they exist. It is playing an increased role in governance in Africa, therefore in doing the work for which they were through an increased ability to influence policy and created that CSOs develop their expertise and their in strengthening a partnership with the State ability to grow and improve their performance. through the democratization process. Although human and financial resources are indis- Although participants acknowledged that a key pensable to the success of CSO activities, they are objective of the partnership between the State and no substitute for practical involvement in the pro- civil society in governance is the devolution of motion of their cause as a necessary condition of power to regional and local authorities, there was a institutional capacity-building. general agreement that within the African context, It was agreed that the mobilization of resources to such devolution of power was not, at this time in strengthen capacity can create problems for CSOs the development of the continent, a key priority. and their credibility in Africa. The fact that many Emphasis, they argued, should be on the streng- CSOs rely on external funding from foreign gov- thening of the central government with a view to ernments, foundations and international organi- making it more efficient, effective and accountable zations raises questions as to what extent their in the exercise of its power. There was a strong activities might be driven by externally defined view that decentralization and devolution of power agendas rather than their own. Competition for and authority to subnational entities should be funds from a single donor or limited sources may carried out with care and as part of a long-term also create an unfavorable climate as groups and strategic plan, taking into consideration the individuals may fight each other to win the prize. availability of human and financial resources and At the same time, it was noted that rurally based overall national concerns. CSOs like cooperative societies seem to rely more In advocating the strengthening of the central on their own resources. This helps them focus government, participants argued that this should be more on issues that are important to them and not done with the involvement of civil society through on those that the donor community deems NGOs, professional organizations and other important. special interest groups. They expressed the view that the establishment of good governance was not an exclusive task of the government. On the other hand, they warned against the simplistic view of regarding NGOs as “good” and the state as “bad”, as this could lead to a permanent rupture in the relationship between the State and NGOs. The concern, it was argued, should be on how best to build an effective and mutually beneficial partner- ship between the State and civil society. In this regard emphasis was put on the need to establish
19 appropriate mechanisms for effective communica- frequently mentioned in the discussions. tion between civil society and the central govern- Strengthening the role of civil society ment. Such regular communication would, on the one hand, help in reducing tensions and antago- organizations in the political transitions nisms by providing ways of airing grievances and Finally, a key issue in the increasing role of civil concerns before they explode while, on the other society in governance is the role of CSOs in on- hand, it would encourage and facilitate going political transitions in Africa. What exact transparency and accountability in the management role has civil society played in these transitions, of state affairs. and how can it be strengthened in a manner con- The particular role of professional associations sistent with the promotion of good governance and such as law societies, women’s organizations, the consolidation of its institutional foundations in human rights groups and the media in promoting Africa today? Participants debated these questions the rule of law and equal rights was discussed. The with a view to understanding what is at stake in the media as an institution was singled out as a major current transition and the role of CSOs in factor in the creation of an enabling environment promoting the culture of democracy and the rule of for increasing civil society role in governance. For law. civil society is strong when it is well informed. The The current transition was defined as involving a emergence of an independent press that, in spite of fundamental political change from authoritarianism its excesses and limitations, plays a positive role in to democracy. In this narrow sense, the transition the democratization process, was also noted. Given would be deemed complete once the change took the poor quality of the information provided, place, although temporary reverses such as strengthening the capacity of the media is military coups d’etat against democratically elected indispensable. The need to train media specialists governments cannot be ruled out everywhere. At in a way conducive to fair treatment of issues and the same time, a major and more fundamental a more responsible role, was underlined. aspect of the transition involves a paradigm shift Participants were informed that the OAU has put from a vision of the State as the property of rulers this issue on its priority agenda. and their entourage, to one in which the State is Civil society and the public service perceived as a set of impartial institutions before which all persons are equal and entitled to equal Three dimensions of the relationship between civil protection of the law. society and the public service were discussed at the conference. Partnership, the first dimension, has Civil society organizations have played a major already been mentioned. This involves all aspects role in educating the public to make this paradigm of collaboration between the State and civil shift. They have been involved in major campaigns society, including the subcontracting of social for political change such as the mass democratic services for delivery by NGOs. The second and movement in apartheid South Africa and the third dimensions are interrelated. They involve the national conferences of Central and West Africa. role of CSOs as watchdogs of public service Having built their capacity through their involve- performance generally, on the one hand, and the ment in social, political and economic activities, involvement of civil society in establishing and CSOs are now in a position to strengthen their role operating various official mechanisms for trans- in the political transitions in Africa through parency, accountability and participation, on the alliances with other democratic forces. A major other. Independent electoral commissions, the objective of the democracy movement is to defend Office of the Ombudsman, public media the right of people to rise up against dictatorship commissions, and citizens monitoring panels such and authoritarian rule in order to establish as civilian police boards, were among those governments that reflect their aspirations and serve
20 their interests. Should the current transition institutional foundations of good governance in produce such governments, civil society will have Africa. played a historic role in strengthening the
KEY RECOMMENDATIONS
Following are the key recommendations that tioning and legitimacy of state institutions. To emerged from the Conference deliberations: achieve this goal, financial resources are also needed for nationwide campaigns of education for 1. A consensus needs to be developed on the democracy, including the culture of peace, definition of good governance as a starting point tolerance and respect for diversity. for appropriate strategies for strengthening the institutional foundations of good governance of 6. Governments must make sure that minorities respective countries in Africa. are not excluded from the political process nor discriminated against with respect to access to 2. Institution-building is essential to the state resources and services. consolidation of good governance. Although the process must begin with state institutions, the 7. Training programmes are needed to strengthen centrality of the State should not exclude other the institutional capacity of parliament and its actors. Both the state and civil society need legislative committees, enabling them to play their institutional development, and local governments, checks and balances role effectively, and to NGOs and other civil society actors must be enhance the skills of legislators and their technical included in the strategies for strengthening good staff in legislating, investigating wrongful behavior governance. by public officials, and controlling government spending. Strong and well-equipped research units 3. Good governance and sustainable economic are also needed to provide parliamentarians with development are interrelated. Governments must adequate, timely and current information necessary create an enabling environment for economic for decision-making. growth and development, and this should include: (a) a well-educated and trained work force; 8. Parliamentarians should work in close con- (b) a strong private sector; (c) political stability; sultation with their constituents. This should (d) the right investment environment with respect include regular meetings within their communities to legislation and the infrastructure; and to listen to people’s concerns and policy (e) people’s involvement in the developmental recommendations. process. 9. The independence of the judiciary should be 4. Constitutions must not only reflect the wishes enhanced by its financial autonomy. The judiciary of the people, but also be made through a process should have its own budget, independently of the of wide consultation with them. It is only through executive branch. such involvement and/or through education that 10. To ensure the independence of the judiciary, people can learn and retain respect for the con- the executive should not have the power to remove stitution. To familiarize ordinary people with their judges from office. The most appropriate system of constitutions, financial resources are needed to appointment is a three-tier system in which a translate them into indigenous languages. judicial service commission recommends names of 5. Constitutionalism and the rule of law also prospective judges to the executive, which submits require a politically aware, tolerant and involved them for parliamentary approval before citizenry, one that can ensure the effective func- appointment.
21 11. Judges and all the staff in the judiciary need legal instruments are now gender-sensitive, there is continuous training and a good work environment a strong need for policy to implement gender in terms of equipment, logistics, and a secure recognition in decision-making bodies. information storage and retrieval system. 18. Capacity-building for electoral systems to 12. Institutional development and capacity- enhance their ability to organize free, fair and building in the judiciary is most needed at the transparent elections, is essential for consolidating lower level, where the credentials, remuneration the institutional foundations of good governance in and working conditions of magistrates must be Africa. improved. District and other lower-court clerks 19. Building Parliament and its committees as also need training to enhance their skills. effective organs of legislative oversight, as well as 13. Better linkages are needed between modern independent regulatory bodies, such as electoral courts of law and traditional/customary courts, commissions, the Office of the Auditor General, whose judges must be trained to respect human the Office of the Ombudsman and others, also rights and to abandon arbitrary decisions. The requires the kind of financial resources that most latter courts should be fully integrated into the African States cannot mobilize on their own. The judicial system to allow people to have access to contribution of the international community is higher courts when they are not satisfied with the indispensable in this respect. judgments of the traditional/customary courts. 20. The ruling and opposition parties should stop 14. Creating a lean, competent and effective regarding each other as enemies. Workshops and public service implies the institutionalization of meetings designed to narrow differences between meritocracy, the end of impunity, the establishment them, and other collaborative mechanisms designed of anti-corruption mechanisms, greater promotion to enhance the national interest should be actively of professionalism, and the enforcement of a promoted. rigorous code of ethics. These control measures 21. To enhance the media’s educational role and should be complemented with better salaries and its contribution to democratic values, training working conditions, and this may be easier to programmes with emphasis on fairness, respons- attain once ghost or fictitious employees are ibility and objectivity are needed. removed from the payroll. 22. Governments should be pro-active in 15. Financial management should be improved in removing obstacles to collaboration with civil order to enhance accountability in the executive society by taking measures to create a genuine branch of governance. Improved financial manage- partnership between state institutions, including the ment is also essential for combating corruption in public service, with civil society organizations. the public service. Regularly held meetings and consultations between 16. The international community should refrain the State, civil society and the private sector should from recognizing military governments established be encouraged for a frank and open discussion of by soldiers who overthrow democratically elected all issues of concern to all parties. governments. 23. Mechanisms should be created for measuring 17. The role of women in governance should be the performance of the public service and involving actively promoted at all levels of decision- making civil society organizations in monitoring this and in all institutions of the State, civil society and performance, and that of other state institutions. the private sector. Although constitutions and other
22 ANNEXES
ANNEX I
OPENING STATEMENT BY MR. K. Y. AMOAKO EXECUTIVE SECRETARY OF ECA
Your Excellency Mwalimu Julius Nyerere, of good governance; and Convener of this important Conference, Your • Propose implementable strategies that will assist Excellency Mr. Worede Wolde, Minister of Justice Africa to overcome these constraints and of the Federal Democratic Republic of Ethiopia, consolidate the gains achieved to date. my dear friend and colleague Dr. Salim Ahmed Salim, Secretary-General of the Organization of We all know too well that weak professional and African Unity, Mr. Seigi Hinatu, Deputy Director- institutional capacity is at the heart of Africa’s General, Middle Eastern and African Affairs development challenge. And poor governance, in Bureau, Ministry of Foreign Affairs, Government turn, is the root cause of Africa’s capacity prob- of Japan, distinguished guests, ladies and lems. Yet, what is exciting today is that the wave gentlemen, of democratization, as well as the opening of political systems to greater citizen participation, Welcome to Addis Ababa, to the Economic now offer us an opportunity to rethink the role of Commission for Africa and to the United Nations the capable state, the importance of accountable Conference Center. and transparent systems of economic management, We at ECA firmly believe that good governance is the inviolability of the rule of law and fundamental an essential ingredient for democracy and for human rights, and the urgency to institute lasting sustainable economic development in the continent. democratic structures. The Commission therefore considers it a privilege These opportunities and the accompanying efforts to extend a special welcome to the eminent are critical to ensure that enduring sound gover- personalities and distinguished participants who nance practices are in place to underpin the are here today because of their deep commitment success of the economic transformation and to the development of democratic, peaceful and political liberalization underway in the continent. just societies on our continent. Most particularly, I But, as I pointed out in this very Conference hall would like to wholeheartedly thank His Excellency on the occasion of the May 1997 ECA and UNDP President Julius Nyerere for agreeing to convene co-sponsored NGO Consultation on Governance in the Roundtable of eminent personalities. Africa, these opportunities should not be taken for The objective of the Conference is to provide granted. Indeed, they can easily slip by unless we participants a forum for reflecting on issues of are ready to exert vigorous and dedicated efforts to good governance as they relate to Africa’s political ensure that the process of change would be and economic transformation. Specifically, the irreversible. That, I believe, is what this meeting is Conference agenda is designed to: all about. • Facilitate dialogue on how best to strengthen Before calling on the distinguished speakers, I state institutions as a critical condition for good might add that the issues for this Conference were governance; also brought out by the findings of the many country reports presented at the First African • Identify obstacles constraining the consolidation
25 Governance Forum co-sponsored by ECA and to synthesize and discuss in depth the Roundtable UNDP in July 1997. These reports reaffirmed that deliberations and develop concrete to sustain good governance, the entire range of recommendations. institutions of governance – the economic and I would like to express my appreciation to the administrative capability of the State, the legis- Government of Japan for its partnership and lature, the judiciary, political parties, human rights generous support, without which the convening of commissions and other monitoring organs within this Conference and the follow-up Workshop civil society – must be improved. The agenda of would not have been possible. I would also like to this Conference and the background papers pre- thank the United Nations Department of Economic pared for it, are rightly focused on how this can be and Social Affairs for its active role in co- achieved, drawing on country experiences in and sponsoring this event with ECA. outside Africa. It is now my pleasure to call upon Mr. Guido I am confident that the Roundtable discussions, Bertucci, representing Mr. Nitin Desai, United today and tomorrow, will yield useful insights as to Nations Under-Secretary-General for Economic how we can strengthen the institutional foundations and Social Affairs, who unfortunately could not be for good governance in Africa. The three-day here with us today, to deliver his statement. Workshop that will follow with the expected participation of about 75 participants is designed
26 ANNEX II
ADDRESS BY MR. GUIDO BERTUCCI, DIRECTOR DIVISION FOR PUBLIC ECONOMICS AND PUBLIC ADMINISTRATION DEPARTMENT OF ECONOMIC AND SOCIAL AFFAIRS, UNITED NATIONS
Mr. Chairman, your excellencies, distinguished befitting that he also be leading this meeting, which participants, forms part of a series of gatherings organized cooperatively by ECA, DESA and UNDP in the It is a privilege for me to welcome you to this very area of governance. important gathering, which is going to address an issue of critical importance to the future develop- I also want to express my gratitude to the ment of Africa. I am gratified to note that the par- Government of Japan for providing support to the ticipants to this Conference have been drawn from Conference; to the Government of Ethiopia for a cross-section of government, the private, sector having us in this beautiful country with a long and and civil society. Such a mixture will undoubtedly rich history; and to our collaborating partners, the bring tremendous value to the discussions, as the Commonwealth Secretariat and the Mwalimu issues will be considered from multiple Nyerere Foundation. perspectives based on real-life experiences. Many societies, governments and institutions in I am particularly delighted to welcome the former Africa and throughout the world are in the midst of President of Tanzania, H.E. Mwalimu Julius rapid and profound transformation. It is rapid on Kambarage Nyerere, who in his role as Convener, account of the process of globalization, which has will be steering the deliberations of the Conference. an irreversible momentum of its own. It is I know that Mwalimu Nyerere will enrich this profound because it touches the core of the State’s Conference, not only because of his long raison d’être, as well as its traditions, modes and experience as Head of State, but also because of forms of operation. This has contributed to posi- his extensive involvement in global issues as tive political and economic change in most cases. Chairman of the South-South Commission and However, in some cases, it has also caused some most recently as the regional Mediator in Burundi dislocation, due to unintended and complex out- and in the Great Lakes region generally. comes involved in global change. I am most grateful to Mr. Amoako, Executive One area of positive transformation has been in the Secretary of ECA, for the support he has per- relationship between government and the governed. sonally offered for the holding of this meeting, and The growth of civil society during the past decade for the cooperation provided by his staff. It is has generated some very promising results in terms under Mr. Amoako’s leadership that the United of productivity and basic economic indicators. It Nations is carrying out a number of initiatives has also accelerated a proliferation of democratic focused on African development in general and on transfers of power and overall movement toward governance in particular. It is therefore quite participatory governance and organized activity by
27 non-state actors. These changes are most welcome society interacting with the State and its public and necessary. The promise of equitable, servants to bring equity, justice, fairness and social sustainable development is predicated on and economic development. transparent, accountable governance. However, to Throughout the world today, there is an urgent achieve it will test every available resource, every need to reaffirm the principle of democratic structure and all the skills that government policy- governance and to restore not only the State, but makers and practitioners can muster. Thus, it is also civil society to their rightful places. However, keenly important that the fundamental prerequisites this pressing task of raising the prestige and for governance be elaborated and refined. credibility of government cannot be accomplished The objectives of this conference are to explore the overnight. It cannot be done without concerted central institutions of governance and how to efforts to enhance both the capacity and overall ensure that they function effectively, efficiently and performance of government institutions. Last, but judiciously. These key elements include: the not least, strengthening civil society is a necessary constitutional framework and the related measures process that entails institution-building and to safeguard it and adhere to the rule of law; the training. role of civil society and how to enhance its capa- Experience demonstrates that raising the per- city to interface with government responsibly and formance of the institutions of government, a effectively; and finally, the public service and the process so important for democratization and need to build constructive, productive relationships socio-economic development, is largely predicated with the political leadership and civil society. on a strong, well-informed and proactive civil When we see children listen attentively and ask society. Only effective non-state actors can ensure questions in a rural classroom; women attend that government policies respond to the functional literacy classes in an urban neighbor- expectations and needs of private citizens. Only hood; men and women launch small businesses; effective non-state actors can prevent the abuse of mothers take their babies for well-baby clinics; power and protect the indivdual against the risks of villagers and slum-dwellers, who have been trained an overbearing, insensitive and inefficient in entrepreneurial skills and granted low-interest bureaucracy. loans, attend counselling sessions with local A key feature of these particular meetings is the advisers; community residents engage in strategic emphasis being placed on linkages and relation- planning for social and economic advancement; ships in the governance arena. Most commonly, businesspersons, who are receiving loans and technical assistance programmes have focused on creating jobs, compete to lower prices for national specific institutions, which have been the target of consumers and increase revenues from export activities, funded both by government budgets and products, thereby contributing to national other donors. But, realistically speaking, few development, we see images of activities and governance successes rest on the capacity of one outcomes in a State where “governance” institution alone. Rather, linkage concepts, such as institutions are stable and civil servants focus on coordination, transparency and accountability, can providing services and positive outcomes for their ensure that efforts are focused on results rather clients. than on bureaucratic imperatives. Thus, trans- When we see environmental advocacy groups parency reminds us that decisions taken in the petitioning the State to hold hearings on the site of open, in the sight of all stakeholders, are more new landfills and power plants, or we see residents likely to be fair and credible. Coordination and planning improvements in their housing and accountability remind us of the need for coop- petitioning landlords and government agencies for eration and a balance of power among institutions action and funding, we see the images of civil of the State and civil society.
28 Just as governments and their citizens should join I look forward to your fruitful discussions during together in partnership, let us, the participants in the coming days and to a successful conclusion to this United Nations workshop, join together to your deliberations. learn from each other and to develop innovative Thank you, Mr. Chairman. mechanisms for governance in African societies.
29 ANNEX III
ADDRESS BY MR. YASUHIRO HAMADA AMBASSADOR OF JAPAN TO ETHIOPIA
Dr. Amoako, distinguished guests, ladies and stressed at the Ministerial-level Meeting of the gentlemen, United Nations Security Council on the Situation in Africa, last November, that “peace and It is a great honour and pleasure for me to be given development are two sides of the same coin. this opportunity to speak on behalf of the Govern- Without development, the cause of conflict will not ment of Japan at the opening ceremony of this be eliminated and without peace, the conditions for Conference on Governance in Africa, co-organized development will not be met.” by ECA and DESA. The Government of Japan welcomes the convening of this Conference and “Good governance” is indeed a key guiding prin- finds it particularly timely. Promoting “good ciple that can encompass and bridge these two governance” is one of the most important agenda sides of the coin, as it provides transparency, items for Japan as a country strongly committed to efficiency, accountability and participatory making every effort to support African develop- development, on which we can build solid and ment, along with our African and other partners. accountable institutions, which are indispensable for both stability and development. Let me start by emphasizing that it is truly encour- aging to see that in the nineties a new wind of So much has already been said, and a lot of com- promise, based on the spirit of “ownership”, is mitments, advice and suggestions have been made gaining strength in Africa, which, like other parts about “good governance”. As governance is a of the world, has gone through dramatic changes of notion that can be extremely extensive and multi- environment. Although this wand may still be faceted, the argument can sometimes become very described as only a “breeze”, we feel that every abstract or theoretical. In this connection, I am day this breeze brings in fresh air and brightness. particularly happy that one clear and tangible key In this encouraging environment, “good gover- word, “institution”, has been set at this Conference nance” has been attracting more attention than ever to enable us to analyze more objectively and as a very important guiding principle and an discuss more constructively this difficult theme. indispensable driving force for implementing I would like to commend the organizers of this “ownership”. Conference for two more reasons. First, this Despite this hopeful trend, we should also recog- Conference is being organized in a manner that nize that there remains a lot to be done to achieve will give legitimate attention to the diverse development, as well as stability, which is a pre- situations of African countries. Second, the requisite for the former. Looking ahead to the 21st organization of this meeting will allow participants century, we have to accelerate our efforts to realize to have frank and in-depth debates by combining stability and development in Africa and thereby “roundtable discussions” and “workshops”, which include this continent in the process of globaliza- will make it possible to share and learn from tion, which is becoming prominent in every aspect mutual experiences and generate common basic of our society. denominators of “good governance”. Mr. Keizo Obuchi, Japan’s Foreign Minister, Regarding the first point, I would like to stress that
30 we cannot emphasize too much that in order to African development forward. In this context, I am respect the spirit of “ownership”, “good gover- pleased to say that the outcome of this Conference nance” should be promoted through initiatives will be a significant input to the discussions at the taken by individual countries on the basis of their Second Tokyo International Conference on African unique political and economic circumstances. As Development (TICAD II) to be held in October by for the second point, we should not forget that the Government of Japan, the GCA and the United “good governance” needs continuous efforts to Nations. At its Preparatory Conference last ensure openness in listening to the comments from November, governance was identified as one of the outside and flexibility in learning from the major areas to be included in the Agenda for experiences of others. It is from this viewpoint that Action towards African Development to be Japan thinks highly of the initiative of ECA and discussed at the Plenary, this October, with DESA in providing this meaningful forum. African representatives and international partners. Mr. Chairman, With these remarks on the importance of contin- uous efforts and longer-term perspectives for I am convinced that with your able guidance and promoting “good governance”, let me conclude by the participation of prominent figures, including wishing for very successful and fruitful H.E. Mwalimu Julius Nyerere, this Conference discussions. will be a great success with good results, to be followed up by every actor interested in moving Thank you.
31 ANNEX IV
ADDRESS BY H.E. MR. WOREDEWOLDE WOLDE MINISTER OF JUSTICE FEDERAL DEMOCRATIC REPUBLIC OF ETHIOPIA
Your Excellency Mwalimu Julius Nyerere, former not affected by the quality of governance that a President of Tanzania and Convener of the Con- society enjoys. It should not therefore be a source ference, Your Excellency Dr. Salim, Ahmed Salim, of surprise that this Conference is being organized Secretary-General of the Organization of African by ECA, whose mandate is strictly speaking Unity, Your Excellency Dr. K.Y. Amoako, UN economic. But whether it is economic challenges Under-Secretary-General and Executive Secretary we face, or social, security or other public and civil of ECA, Your Excellency Mr. Guido Bertucci, challenges, the fact that the quality of governance distinguished participants, we have and enjoy has a vital bearing on all these is absolutely undeniable. I am very pleased and honoured to participate at the opening session of this important Conference. I Without good governance and the institutional would like to join His Excellency Dr. Amoako in framework that underpins it, it is impossible to talk welcoming you all to Addis Ababa to take part in about economic progress, social harmony, political this Conference, which I have no doubt will be an stability and peace. exceedingly valuable exchange of views on a We all recognize the fact that here in our continent, subject which is critical for Africa and our people. most particularly within the framework of the I would like to express my appreciation to Dr. OAU, it has been since 1990 that we have begun to Amoako and the ECA for having taken the talk with the required level of transparency and initiative to organize the Conference and to openness about the challenges of governance that Mwalimu Julius Nyerere for having agreed to African faces. I wish to take this opportunity to convene the meeting. pay tribute to H.E. Dr. Salim Ahmed Salim for It would, of course, be remiss of me if I failed, at having taken the initiative in 1990 to prod the the opening session of a Conference on a subject OAU to focus on this issue. such as this one, to pay tribute to Mwalimu No doubt, the situation has changed in Africa over Nyerere for the example he has been, and con- the past few years and the noticeable improvement tinues to be, for integrity, honesty and for com- in the economic area since 1994 must be attribut- mitment to principles which, no doubt, makes all of able partly to the progress we have been making in us proud. It is indeed very fitting that he is the the quality of governance in a growing number of Convener of this Conference because there are few African countries. in our continent who are as deserving as he to speak on the challenges of governance in our But this is not the time for self-congratulation and continent with the requisite credibility and undoubtedly we have a long way to go before we conviction. can claim to have in place in Africa the kind of governance in all areas that would ensure econo- There is virtually no aspect of public life which is mic progress, social harmony and security.
32 Most of all, the serious constraints that we have people. In this regard, we are indeed encouraged by with regard to the institutional foundations that the progress we have made over the past six years should underpin quality governance based on in all these areas. But we have a long way to go, grass-roots participation are challenges that can particularly in the area of institution-building and hardly be addressed in a day. Commitment by consolidation. leaders to democratic principles and to good Progress in achieving good governance is not the governance, although critical to progress in this responsibility only of leaders and of those in posi- sphere, is obviously far from being sufficient to tions of authority. Those in civil society have the ensure that African societies are provided with responsibility to play a critical role in assisting the good governance. Accordingly, it appears to me development of a culture of tolerance and con- that the focus of this Conference, which is the structive debate and of a healthy dialogue as well institutional foundation for consolidating gover- as in contributing to the building, strengthening nance in Africa, is most fitting and most and consolidation of institutions of good gover- appropriate. nance and structures for effective and meaningful We here in Ethiopia are of the firm conviction that democracy, relevant to the vast majority. along with genuine devolution of power from the I would like to conclude by saying how happy I am center to the local level, grass-roots participation to take part in the opening session of this Con- by the people in economic, political and social ference, whose outcome will be awaited with keen decisions that affect them directly, the existence of interest by all those who are committed to the appropriate and effective institutions of governance regeneration of our continent and who long for an and their strengthening is critical for the objectives Africa which will make its people proud. that we have set for ourselves to ensure economic progress, democracy and durable peace for our I thank you.
33 ANNEX V
ADDRESS BY DR. SALIM AHMED SALIM SECRETARY-GENERAL ORGANIZATION OF AFRICAN UNITY
Your excellencies, distinguished participants, We are convinced that without adopting this ladies and gentlemen, approach we may not be able to effectively address the critical issues of socio-economic development I should like, at the outset, to express my apprecia- on the continent. tion to the organizers for the kind invitation extended to me to participate in this important Indeed, good governance in Africa plays a catalytic Conference. I am particularly grateful that this role in the design and implementation of a viable Conference is devoted to an issue which is crucial strategy for economic recovery and development to our continent and which constitutes one of the and for addressing peace, security and stability on priority concerns of our organization. Indeed, the continent. Such governance must be at the reflecting on the state of governance in Africa at a center of Africa’s development policies and time when we are preparing to usher the continent strategies. This is particularly so because good into the next millennium is a very timely exercise. governance is and must remain an integral part of our agenda for peace and development in Africa. It Occasions like this give us an opportunity to draw provides the enabling environment for economic lessons from the past, to take stock of our past transformation and development as it also gives achievements and failures and to prepare Africa to Africa the necessary latitude and possibility for assume its rightful place within the community of addressing the scourge of conflict prevailing on the nations. Indeed, democracy, governance, the continent and building peace. promotion and protection of human rights, as well as respect for the rule of law, conflict management We, at the OAU, have and will continue to deploy and resolution are increasingly becoming the labels efforts aimed at providing the democratization that sum up the political context of the current process throughout the continent. We have taken preoccupations of the people on this continent. this as one of the major challenges for our con- tinental organization in the years ahead. We are We, at the OAU, have since the adoption in 1990 more than convinced that the challenge facing of the Declaration on Fundamental Changes in the Africa at the end of the twentieth century is to World and Their Impact on Africa taken these forge ahead with the democratization process, issues more forcefully and have increasingly strengthening the institutions of good governance, deployed efforts aimed at ensuring that they are the building of peace and the promotion of socio- kept at the center stage of our overall agenda for economic development. Needless to say, all these peace, security, stability and development. We issues are interrelated. have done so with the full knowledge and con- viction that the process of democratization that is I have been requested to speak on the subject taking place on the continent will contribute to the “Governance in Africa: Lessons Learned from the continental efforts directed at strengthening the Past”. I would like to preface my remarks by institutions of democracy and good governance. asserting that based on the experience of most of
34 our countries over the past several years, it is continent will lead to good governance and good manifestly clear that the process of democratiza- governance will ensure the sustainability of democ- tion on the continent is irreversible. Indeed, the racy in Africa. In this regard, good governance concepts of democracy and good governance are must be seen as a generally accepted process that gradually but steadily gaining root on the conti- recognizes the centrality of the people in decision- nent. The OAU has been a witness of this trend making at all levels. Good governance must allow and was invited to observe over sixty elections in for the full participation of the people in national Member States. Indeed, there is evidence to sug- development endeavors. gest that our leaders and our peoples are deter- There are clear lessons in Africa to demonstrate mined to give democracy a chance to succeed. that the people must be allowed to lead and To do so, they need the support of our partners and manage the process of development. In this regard, friends in the international community. However, it is important that the government and the people these friends and partners should have the humility share common values and aspirations and not to prescribe recipes for democracy in Africa. collectively address their common challenges. Their role should be one of supporting Africa’s Indeed, governance in Africa must entail a process efforts at democratization based on local realities within which the people are empowered and have and circumstances. sufficient latitude to set out priorities for their This is why we, at the OAU, have been working on socio-economic, political and other developmental the assumption that while the fundamental needs. principles of democracy and good governance are Experience has also shown that governance in universal, their application varies from country to Africa must be addressed in the context of state country. On this understanding, African countries power and authority. This is essentially because are entitled to determine the application of demo- the manner and style in which the authority is cratic government on the basis of their socio- exercised and managed defines the nature and cultural values, taking into account their specific scope of state power in relation to the governed. In realities. Indeed, the dimensions of cultural values this regard, the executive branch is key in building and historical experiences are relevant in the appli- democracy and good governance. That is why it is cation and consideration of democracy in our important to recognize that, in the context of the societies. Africans as much as other people aspire executive as an institution of democracy, for liberty, human dignity, equity and socio- governance in Africa must be seen within the economic progress. But, while these are universal framework of the totality of the exercise of power values, which are a common heritage of humanity, in the management of a country’s affairs. This there are no ready-made recipes for democracy and must comprise the complex mechanisms, processes governance. Each society should generate its and institutions through which citizens and groups home-grown modalities for forging ahead in articulate their interest, exercise their legal rights democracy and good governance on the basis of and mediate their differences. these universally recognized principles. In this regard, any rational debate on governance in Let me now attempt to reflect on the lessons Africa should be predicated upon the basic value learned from the past. To us, the issues of democ- of the need for the executive and other political racy and governance in Africa are inseparable. We factors to recognize the limits of power. In a are cognizant of the fact that the “new wind” of democratic State, there cannot be life Presidents or democracy blowing across the continent both feeds leaders who hold power forever. In a true our hope for the future and presents us with democratic State there is no one with absolute formidable challenges. It is my strong conviction power. This is in line with the old saying that that the on-going democratization process on the power corrupts and absolute power corrupts
35 absolutely. In a democratic State, it is recognized acceptable to the State. and accepted that moderation and compromise During this period the legislature in some parts of provide room for a culture of tolerance to evolve Africa had little latitude for action, precisely among the people. This, in fact, is a fundamental because of the nature of the electoral process and basis of a political bargaining. There are, indeed, the manner in which members of the house of lessons that Africa has learnt over the last thirty- legislature were selected. This does not necessarily five years of independence, especially on the need suggest that the one-party-state democracies which to promote a culture of peace and tolerance as well were predominant during this period were wrong. I as politics of inclusion rather than exclusion. am not trying to pass a verdict on the experience of Beyond these lessons of the past, for democracy the one-party system in Africa. Significantly they and good governance to flourish, there must be a provided the opportunity to the newly emerging commitment to live with and support plurality in African governments to experiment with a new social and political life. Moreover, the notion of system different from the colonial one. In fact, the democracy has always contained the notion of requirements for the struggle for independence equality. Equality, not in the sense of statistics of generally favored the emergence of a dominant income or wealth, but equality of opportunity to all single party or mass movement. This was in most without consideration of ethnic, religion or political cases carried into the post-independence structures affiliation, to realize one’s human capacities as a one-party system, or at least as what is called through generally acceptable means. Therefore, as a system of single-party dominance, where one we discuss governance in Africa, let us explore party has an overwhelming legislative majority and how best to promote these values and norms uses its legal, political and coercive power to among our governments and people, for it is clear restrict the competition of other parties. that democracy is here to stay. Over the last years the legislature in African In Africa the struggle for democracy was a strug- countries has undergone fundamental changes, gle for freedom from colonialism and freedom to especially with the shift from dominant single- independence and national sovereignty. It was also party or mass movement to multi-party politics. a struggle for freedom for the people of Africa to It has been recognized that if democracy is the rule decide their own destiny. But as Africa moved or power of the people, then the legislature must from colonial rule to self-government, the post- reflect and defend the will of the people. independence struggles changed both in form and It therefore deprives itself of its moral authority if content. In some parts of Africa, the institutions it does not recognize the indivisible will of the designed to promote and strengthen democracy and people. good governance became by and large integral We cannot wish away certain historical facts of instruments of the state power, legitimizing what our continent. In Africa there were, and still are, the State wanted legitimized and constraining tribal, religious or ethnic divisions which have people’s legitimate concerns about the nature of stood in the way of an overriding sense of national their State and government. The governors community, thereby complicating the process of separated themselves from the governed and by so multi-party politics and with this, the functioning doing they alienated the people. In other words, the of the legislature. Indeed, these divisions have governors lost their moral authority to govern as given rise to the proliferation of conflicts in Africa they failed to respond to the demands and as they have given rise to opposing political parties aspirations of the people. But they never accepted based on tribal, ethnic or religious differences. The to relinquish power. These institutions, supposedly notion that a system of competing national parties of democracy, sometimes proclaimed right what is the sensible and most beneficial way of choosing the State wanted and wrong what was not and authorizing governments is something Africa
36 must pursue. whole circuit of the opinion-forming process. Democracy has often been described as the con- It is often said that electoral power per se is the sumers’ sovereignty. The voters buy what they mechanical guarantee of democracy, but the sub- want with their votes. Democracy in the broad stantive guarantee is given by the conditions under sense requires not just equality, but also freedom which the citizen gets the information and is from starvation and ignorance. A strong democ- exposed to the pressure of opinion-makers. Ulti- racy should not create antagonism and hatred mately, the opinion of the governed is the real between winners and losers. Indeed, in a democ- foundation of all government. If this is so, elections racy winners must accept losers and losers must are the means to an end, the end being a respect winners. One must ensure that political government that is responsive to and responsible institutions are sufficiently strong and they can toward public opinion. We often say that elections generate the participation and power necessary to must be free. This is true, but it is not enough, for hold the various institutions accountable. opinion too must be in some basic sense free. Free elections with unfree opinion is an exercise in vain. At this stage, let me try to draw lessons from We say that the people must be sovereign. But an Africa’s experiences in the electoral process. empty sovereign who has nothing to say, without Politics in Africa and elsewhere ultimately hinges opinions of his or her own, is a mere ratifier, a on the relationship between governors and the sovereign in pro-forma. governed. Often, the governors and the governed cannot be mingled. But, if we proceed from the Experience on this continent has clearly premise that in order to have democracy we must demonstrated that while elections constitute a have, to some degree, a government of the people, crucial stage in the democratic process, they do not the question we might want to ask is when and how by themselves provide sufficient conditions for do we know that the people are governing? We can building democracy and good governance. only know that the people are governing when they Elections per se are not the panacea for democracy speak with their votes. Indeed, the democratic and good governance. In other words, the existence process in Africa and elsewhere is encapsulated in of political parties, the conduct of free and fair elections and electing. elections and the performance of the legislature under the leadership of an elected government do It is generally accepted that elections verify not always turn governance into a democratic consensus and do away with presumed or system. Beyond the electoral process, which is fraudulent consensus. However, we must crucial, we need to build institutions to sustain remember that elections are a discontinuous democracy and promote good governance. performance and are not an end in themselves. Between elections the people’s power remains We must accept that our legislative systems are largely quiescent, and there is also a wide margin still fragile and weak. They need to be streng- of discretion, let alone discrepancy, between broad thened, especially through capacity-building. We electoral choices and concrete governmental need to ensure that our members of the legislative decisions. Further, elections register the voter’s branch are properly represented on the basis of decisions, but how are these decisions arrived at? constituencies that have a national character and Elections compute opinions, but where do these are not based on ethnicity or religion. Legislature opinions come from and how are they formed? can only be strong if the members of the legislature What is the genesis of the will and opinion that are elected from strong parties with a sense of elections limit themselves to recording? Indeed, commitment to the nation. We need to strengthen voting has a pre-voting background. While we the quality of our political parties, especially those must not downgrade the importance of elections, of the opposition, so as to strengthen the qualities we cannot isolate the electoral event from the of the members of the legislature. We also need to
37 provide support to the work of the legislature. Our systems which can guarantee the respect of the law representatives must be people of impeccable and render justice in accordance with the law. integrity. They should vigorously pursue a national Clearly, one of the fundamental prerequisites for agenda and not an agenda that works after their such a reliable and dependable judiciary is its own narrow and selfish interests. incorruptibility. The various committees of the legislature must Since freedom of expression is a major factor in a also be strong with the necessary technical back- democratic State, an independent and responsible stopping to address national issues. In the African media should emerge as a strong institution and context, the question is whether members of the assume the function of a watch-dog interfacing legislature have the requisite resources to vigo- between the government and the people. The media rously engage in a debate on the national issues, should be on the forefront and make a special ranging from politics, to economics, security and effort to champion the cause of popular national defense. The question we might ask is participation and, indeed, provide access to whether it is not possible for the members of the information and educational programmes on legislature to rely more on the knowledge base of democracy and governance. We need an indepen- the institutions of higher learning and research. dent but responsible media whose task is not only Otherwise, resources must be provided for mem- to inform as accurately as possible and to serve as bers of the legislature to seek the information a critic to the government but also to educate the which is necessary to make national decision and population on their rights. policies. How often do members of the legislature Good governance also requires high standards of make their presentations on the basis of well- integrity and efficiency in the civil service. A civil researched facts? Our representatives must have a service that is over-staffed, underpaid, corrupt or certain level of education in order to digest the ethnically composed will not be able to optimally issues before the legislature. play the role of promoting democracy and good The independence of the judiciary is crucial in governance. The civil service must be professional, building good governance. Most judicial systems, competent, neutral and nationally committed. especially those in the areas of conflict, have been Building good governance on the continent requires destroyed almost beyond redemption. We need to also that we focus on the areas of education and rebuild our judicial system and strengthen its capa- public awareness. Our people must be informed of city to effectively discharge its responsibilities. We their constitutional rights. They should be helped must ensure that the judicial system is efficient, for to understand the constitution as a major institution justice delayed is justice denied. The relationship of democracy. The time has come when we must between police, security and judiciary must be consider translating the constitution into the properly scrutinized. Arbitrary arrests and extra- various languages to help the people understand judicial killings must stop. We should avoid their rights. politicizing the judiciary, for this is the only way we can guarantee its independence. Again, experi- We need to develop teaching manuals for civic ence has shown that a strong judicial system education. Our people must be informed and clearly provides the necessary framework and understand the major institutions of democracy and strong foundation for good governance. Such a how they can influence the working of these system, representing one of the major democratic institutions. I am convinced that education and institutions, needs to be strengthened to function public awareness are crucial in ensuring popular more directly and effectively towards promoting participation of the people in decision-making as a good governance. We need to build in our coun- major ingredient in democracy and good tries independent, efficient and strong judicial governance.
38 Finally, I wish to submit that the challenge of good disturbing, as the rights of the citizens are often governance is one of implementing the laws and violated and undermined. regulations of a nation and translating them into I sincerely believe that the challenge of good concrete and practical acts. In all our countries, we governance is one of reconciling the laws and have wonderful constitutions. These constitutions regulations as they exist and their application in provide for the equality of the citizens before the the field. This has to do with the attitude of office- law, and yet this is not always the case. They holders and other leaders. It has also to do with the provide for equal opportunity for employment habits inherited from the past which have proved regardless of the ethnic, religious or political difficult to get rid of. This requires that committed background of an individual. Yet the reality is Africans both from state institutions and the public often different. The constitutions do not allow for at large assume their responsibilities. I have domination by any group of national institutions. always considered fora like this one as important Yet the reality on the ground might be different and opportunities to promote the cause of good we have a lot of examples on our continent. governance among the largest groups in the Our constitutions are as good as any other consti- continent. But the challenge of good governance tutions in the world. Our laws are equally sound. also requires the active involvement of the people The judiciary is supposed to be independent and and their organizations within the civil society, for the police fair and accountable. In most of our no right can be taken for granted. Our people must countries, the laws and regulations provide for fight for their rights and the application of these equal access to land and resources. Yet we know rights. The challenge of good governance is that in some cases, groups and individual affinities therefore one of building partnerships between prevail over the general interest. We do have committed Africans and the ordinary people of the institutions for control, such as constitutional continent in forging a strong constituency for courts, ombudsmen and other appeal courts and democracy and good governance. commissions. Yet the situation in the field is quite
39 ANNEX VI
LIST OF PARTICIPANTS
Convener H.E. Dr. Julius Nyerere Former President of the United Republic of Tanzania c/o Mission of the United Republic of Tanzania to the United Nations 205 East 42nd Street, 13th floor New York, N.Y. l0017 Tel. 255-51-113-431 Fax 255-51-112-790
ROUNDTABLE PARTICIPANTS
Dr. Amedou Ould Abdallah M. Abdoulaye Bathily Executive Secretary Ministre de l’environnement et Global Coalition for Africa de la protection de la nature 1750 Pennsylvania Ave. N.W., Suite 1204 Building Administratif Washington, D.C. 20006 B.P. 4055 Tel. 202-458-4338/4272 Dakar, Sénégal Fax 202-522-3259 Tel. 221-821-12-40 221-276-937 home Congressman Washington Abdala Fax 221-822.21.80 Palacio Legislativo 221-274-300 Montevideo, Uruguay Tel. 598-2-709-0860 Mr. Gordon Draper Fax 598-2-924-172 Member of Parliament Block B3, Flagstaff Hill Dr. Mazlan Ahmad Port of Spain, Trinidad and Tobago Director General Tel. c/o UNDP Public Service Department Kuala Lumpur, Malaysia Dr. Peter Harrison Tel. 603-293-8573 Privy Council of Canada Fax 603-292-8609 80 Wellington Street Ottawa, Ontario K1A OA3 Canada Tel. 613-837-9040 Fax 613-837-8287
40 Sir Ramesh Jeewoolall E-mail: [email protected] Speaker of the National Assembly Government House Hon Vernon Johnson Mwaanga Port Louis, Mauritius National Assembly Tel. 230-464-5371 P.O. Box 31299 Fax 230-212-8364 Lusaka, Zambia Tel. 260-1-223133/222664/222118 Prof. Walter J. Kamba Fax 260-1-220529/238397 University of Namibia Dean, Faculty of Law Mr. Cyril Ndebele Private Bag 13301 Speaker of Parliament Windhoek, Namibia Harare, Zimbabwe Tel. 264-61-206-36220 Tel. 263-4-700-181 Fax 264-61-206-37030 Fax 263-4-795-548 e-mail: [email protected] Ms. Ruth Perry Mr. Yazew Assefa Liben Former President of Liberia Former President of the Supreme Court Perry’s Drive Addis Ababa, Ethiopia Monrovia, Liberia Tel. 251-1-122-347 Tel. 231-227-082 c/o Fax 251-1-51-95-48 (USA) 1-614-265-4696 Fax 1-614-265-4825 M. William A. Eteki Mboumoua Chairman of Red Cross Mme. Elisabeth Pognon Yaounde, Cameroon Présidente de la Cour Constitutionnelle Tel. 237-20-25-92 Cotonou, Bénin Fax 237-23-15-96/22-41-77 Fax 229-30-06-36 or 229-30-33-15 Ms. Florence Mugasha Tel. 229-315-992/873-8287 Member of Parliament Parliamentarian Ave. Mr. Nallepilly Ramakrishnan Ranganathan P.O. Box 7178 9th Street, Dr. Radhakrishnan Road Kampala, Uganda Mylapore, Madras 4, India Tel. 256-41-234-340/6 Tel. (91-22) 854 9212 Fax 256-41-231296/245889 Fax (91-22) 204 1772
Prof. Rwekaza Symphoriani Mukandala Dr. Salim Ahmed Salim University of Dar es Salaam Secretary General Department of Political Science and Organization of African Unity Public Administration Addis Ababa, Ethiopia P.O. Box 35042 Dar es Salaam, Tanzania Tel. 255-51-410-395 Mobile. 255-0812-780-694 Fax 255-51-43-078/43-395
41 WORKSHOP PARTICIPANTS
Benin Cameroon Mr. Robert S. M. Dossou Mme Pauline Biyong Honorary Dean of Faculty of Law Président University of Benin Réseau Africain pour la réduction P.O. Box 1204 de la pauvreté Cotonou, Benin B.P. 12166 Tel. 229-31-44-11 Yaoundé, Cameroun Fax 229-31-42-09 Tel. 237-22-40-01/30-81-93 Fax 237-22-40-01/23-14-53 Mr. Amadou Ousmane Diallo Permanent Secretary Cape Verde Observatoire des Fonctions Publiques Mr. Onésimo Silveira Africaines Mayor of St. Vincent 04 B.P. 0595 St. Vincent, Cape Verde Cotonou, Bénin Tel. 238-324-088 Tel. 229-30-33-68 Fax 238-313-783 Fax 229-30-31-99 Ethiopia Botswana Mr. Berhanu Kebede Dr. Margaret Nasha Director General Minister of Local Government International Organizations Private Bag 0060 and Economic Cooperation Gaborone, Botswana Ministry of Foreign Affairs Tel. 267-354-182 P.O.Box 393 Fax 267-352-82/352-384 Addis Ababa, Ethiopia Tel. 251-1-51 32 01 Mr. Stephen Tariro Kokerai Fax 251-1-51 43 00 Legal Office (Adviser) Southern African Development Mr. Gabriel Negatu Community (SADC) Secretariat Forum of African Voluntary Gaborone, Botswana Development Organization Tel. 267-351-863 1511 K. Street, NW Fax 267-272-848 Washington, D.C. 20005, U.S.A. Tel. 1-202-387-7275 Burkina Faso Fax 1-202-393-7070 Mme Françoise Ouedrago Directrice Générale de la Modernisation Mr. Tameru Wondm Agegnehu de l’Administration Former Vice President of the B.P. 7006 Supreme Court of Ethiopia Ouagadougou 03, Burkina Faso Consultant and Attorney-at-Law Tel. 226-301-958; fax 226-314-155 Addis Ababa, Ethiopia Tel./Fax 251-1-51-95-48
42 Ms. Kelly Seifu Yohanes Monrovia, Liberia Executive Director Tel. 226071/227604 Hope for Women P.O.Box 1509 Malawi Addis Ababa, Ethiopia Dr. Vera Mlangazna Chirwa Tel. 251-1-16 26 40 Member of Parliament Fax 251-1-51 00 64 c/o Malawi Centre for Advice, Research And Education on Rights (CARER) The Gambia Blantyre 3, Malawi Ms. Zahra M. Nuru Fax 265-636-007 Resident Representative United Nations Development Programme Mali Banjul, The Gambia M. Ousmane Sy Conseiller spécial du président Mr. Tamsier Demba M’Bye de la République Secretary-General Chef de la mission de décentralisation et Office of the President and Head of Civil Srvice des réformes institutionnelles Banjul, The Gambia B.P. E 1420 Tel. 220-228-339 Bamako, Mali Fax 220-227-034 Tel. 223-240-680 Fax 223-240-700 Kenya Mr. Ludeki Chweya Mauritania University of Nairobi M. Ahmed Salem Ould Bouboutt P.O. Box 30197 Professeur Nairobi, Kenya Université de Nouakchott Tel. 254-2-334-244 Nouakchott, Mauritanie Fax 254-2-336-885 Tel. 222-254-994 222-251-300 Mr. Peter Wanyande Fax 222-253-146 University of Nairobi Nairobi, Kenya Mozambique Tel. 254-2-334-244 Ext.28171 Justice Luis A. Mondlane Justice of the Supreme Court Lesotho Supreme Court of Mozambique Dr. A. M. Maruping P.O. Box 278 Governor Maputo, Mozambique Central Bank of Lesotho Tel. 258-1-43-10-02/423-306 Maseru, Lesotho Fax 258-1-42-06-97 Tel. 266-314-281 Fax 266-30051/30557 Dr. Brazão Mazula Rector of the University Liberia Universidade Eduardo Mondlane Ms. Gloria Scott Praça 25 de Junho Chief Justice Maputo, Mozambique Supreme Court Tel. 258-1-427-851
43 Fax 258-1-426-426 NGO Secretariat for Beijing Email: [email protected] Women’s National Coalition P.O. Box 3977 Nigeria Johannesburg, South Africa Prof. L. Adele Jinadu Tel. 27-11-331-5959 Direct Lagos State University Tel. 27-11-426-5440 262B Corporation Drive Fax 27-11-331-5957 Direct LSDPC Dolphin Estate Fax 27-11-426-3690 Osborne Road, 1 Koyi Lagos, Nigeria Mrs. Nomonde Keswa Tel/Fax 234-1-2694413 Chief Director Tel. 234-1-688-296 Corporate Services Eastern Cape Provincial Government Rwanda South Africa Mme Jacqueline Muhongayire Tel. 27-401-99-25-25 Vice-Présidente de l'Assemblée Nationale Fax 27-401-99-25-66 Assemblée Nationale de la République Rwandaise Cellular. 27-82-574-3582 B.P. 352 Kigali, Rwanda Swaziland Tel. 250-849-20 /839-80 Ms. Fikile Dlamini Fax 250-839-75/862-75 P. O. Box 578 Mbabane, Swaziland Sao Tome and Principe Tel. 268-44301/2 (Off.); 20764 (Res.) Mme. Angela de Barros Lima Directrice du Cabinet du Ministre de la Uganda Justice, du Travail et de l’Administration Publique Dr. John Mary Kauzya Sao Tomé, Sao Tomé et Principe Deputy Director Tel. 239-12-22-055/22-318 Uganda Management Institute Fax 239-12-22-256 P.O. Box 20131 Kampala, Uganda Senegal Tel. 256-41-256-176/259-722 M. Babacar Sine Fax 256-41-259-581 Directeur Institut africain pour la démocratie United Republic of Tanzania B.P. 1780 Mrs. Venus B. Kimei Dakar, Sénégal Tanzania Non-governmental Organization Fax 221-8235-721 (TANGO) P.O. Box 31147 Mr. Souleymane Nasser Niane Dar es Salaam, Tanzania Directeur de la fonction publique Tel. 255-51-114-014 Ministère de la Modernisation de l’État Dakar, Sénégal Mrs. Rhoda Lugano Kahatano Tel. 221-823-5841 Box 31655 Dar es Salaam, Tanzania South Africa Ms. Mohau Pheko Mr. Joseph W. Butiku
44 Executive Director Dar es Salaam, Tanzania The Mwalimu Nyerere Foundation P.O. Box 71000 Mr. Simon Mohamed B. Dar es Salaam, Tanzania Conseiller Tel. 255-51-119-216 P.O.Box 9000 Fax 255-51-112-790 Dar es Salaam, Tanzania
Ms. Lucie Andrew Luguga Mr. Jacky Mugendi Zoka Assistant Resident Representative P.O.Box 9000 United Nations Development Programme Dar es Salaam, Tanzania Dar es Salaam, Tanzania Tel. 255-51-112-799/112-801 Mr. Kingunge Ngomeale Mwiru Fax 255-51-113-272 Prime Minister's Office Dar es Salaam, Tanzania Mr. Emmanuel Shayo Tel. 255-51-117269 Conseiller P.O.Box 9000 Zambia Dar es Salaam, Tanzania Justice Lombe Chibesakunda Human Rights Commission Mr. Noyce Tnrewa P.O. Box 33812 Conseiller Lusaka, Zambia P.O.Box 9000
RESOURCE PERSONS
Dr. Ahmed Sakr Ashour Fax 1-212-832-1586 Director-General Arab Administrative Development Ms. Rameline Kamga Organization (ARADO) President, COFINA Cairo, Egypt 10101 Grosvenor Place Tel. 202-417-5410 North Bethesda, MD. 20852, U.S.A. Fax 202-417-5407 Tel. 1-301-493-5042 Fax 1-301-493-2562 Dr. Meheret Ayenew Addis Ababa University Mr. Tebogo Job Mokgoro Faculty of Business and Economics P.O. Box 188 Addis Ababa, Ethiopia Rooigrond 2743 Tel. 55-3900/11-72-78 South Africa Tel. 0140-873040 Mr. Peter Burgess (UK) Fax 0140-873293 VP COFINA/Change Institute 1173A Second Av. #221 Dr. Bruno Mukendi New York, N.Y. 10021, U.S.A. Washington International Management Institute Tel. 1-212-772-6918 1050 17th Street
45 N.W. Suite 600 Tel. 1-301-847-3477 Washington, D.C. 20036 Fax 1-301-847-7497 Tel. 1-202-776-0647; fax 1-202-463-0909 Mr. Peter Quennell (New Zealand) Dr. Fasil Nahum President Addis Ababa, Ethiopia The Change Institute 7004 Boulevard East #33 Prof. Georges Nzongola-Ntalaja Guttenburg, New Jersey 07093, U.S.A. Howard University Tel. 1-201-869-2931 13702 Colgate Way, #1044 Fax 1-201-869-0813 Silver Spring, MD 20904, U.S.A.
OBSERVERS
Government Officials
Angola Embassy of the Republic of Congo Ambassador Toko D. Serao Addis Ababa, Ethiopia Embassy of Angola Tel. 251-1-51-41-8857 Addis Ababa, Ethiopia Egypt Mr. Khaled Elbakly Cameroon Embassy of the Arab Republic of Egypt Ambassador Jean-Ailaire Mbea Mbea Addis Ababa, Ethiopia Embassy of Cameroon Tel. 251-1-55-30-77 Addis Ababa, Ethiopia Eritrea Dr. Churchill Ewumbue-Monono H.E. Ambassador Girma Asmeron Second Counsellor Embassy of Eritrea Embassy of Cameroon Addis Ababa, Ethiopia Addis Ababa, Ethiopia Mr. Salih Omer Mr. Samuel Roger Zang First Secretary Embassy of Cameroon Embassy of Eritrea Addis Ababa, Ethiopia Addis Ababa, Ethiopia Fax 251-1-518-434 Tel. 251-1-51-28-44 Fax 251-1-51 28 44 Congo Mr. Casimir Mpiere Ethiopia Chargé d’affaires Mr. Assefa Damtew Embassy of the Republic of Congo First Secretary P.O. Box 5639 Ministry of Foreign Affairs Addis Ababa, Ethiopia P.O. Box 393 Addis Ababa, Ethiopia Ms. Marie Mboundzi Tel. 251-1-15-06-45/51-73-45 First Counsellor
46 Dr. Zewdineh Beyene Embassy of Japan First Secretary Addis Ababa, Ethiopia Ministry of Foreign Affairs Tel. 251-1-51-10-88 P.O.Box 393 Addis Ababa, Ethiopia Mr. Akio Odani Tel. 251-1-15 89 29 Third Secretary Fax 251-1-51 43 00 Embassy of Japan Addis Ababa, Ethiopia Gabon Tel. 251-1-51-10-88 Mr. Emmanuel Mendoume-Nze Ambassador of the Gabonese Republic Ms. Minako Ishihara Addis Ababa, Ethiopia Embassy of Japan Addis Ababa, Ethiopia Mr. Gnangon Miembet Counsellor Prof. Kazuyoshi Aoki Embassy of the Gabonese Republic Nihon University P.O. Box 1256 c/o Japan Embassy Addis Ababa, Ethiopia Addis Ababa, Ethiopia Tel. 251-1-61-10-75 Fax 251-1-51-13-50
Guinea Prof. Hideo Oda Mme. Kadiatou Diallo Keiai University Embassy of the Republic of Guinea Japan Addis Ababa, Ethiopia Tel. 81-43-486-6210; 81-43-486-2200 Tel. 251-1-65-13-08 Kenya Iran Mr. James Kiboi Mr. Doutaghy Second Secretary Secretary Embassy of the Republic of Kenya Embassy of the Islamic Republic of Iran Addis Ababa, Ethiopia Addis Ababa, Ethiopia Tel. 251-1-61-00-33
Japan Liberia Mr. Yasuhiro Hamada Ambassador Marcus M. Kofa Ambassador of Japan to Ethiopia Embassy of the Republic of Liberia Embassy of Japan Addis Ababa, Ethiopia Addis Ababa, Ethiopia Mali Mr. Masakazu Toshikage Mr. Acherif Agmohamed Regional Coordinator, First Africa Division Embassy of the Republic of Mali Ministry of Foreign Affairs Addis Ababa, Ethiopia Tokyo, Japan Tel. 251-1-71-26-01 Tel. 81-3-3581-2924 Mr. Souleymane Sidibe Mr. Naohiro Hayakawa Ambassador to OAU from Mali Head, Political Section Addis Ababa, Ethiopia
47 Tel. 251-1-20-15-28 Senegal Mr. Abdou Salam Diallo Morocco Conseiller Mr. Lehousine Rabinouni Embassy of the Republic of Senegal Embassy of the Kingdom of Morocco Addis Ababa, Ethiopia Addis Ababa, Ethiopia South Africa Namibia Dr. Sandy Shaw Ambassador Eddie S. Amkorgo Embassy of the Republic of South Africa Embassy of the Republic of Namibia Addis Ababa, Ethiopia Addis Ababa, Ethiopia Tel. 251-1-71-30-34
Nigeria Sudan Ambassador Brownson N. Dede Mr. Rahamtalla Osman Embassy of Nigeria Minister Plenipotentiary Addis Ababa, Ethiopia Embassy of the Republic of the Sudan Addis Ababa, Ethiopia Russian Federation Mr. Alexander Korsakov Tunisia First Secretary Mr. Mohamed Ali Ben Abid Embassy of the Russian Federation First Secretary Addis Ababa, Ethiopia Embassy of Tunisia Addis Ababa, Ethiopia Rwanda Tel. 251-1-65-38-18 M. Eustache Nkerinka Tel. 251-1-51-84-34 Député National Assemblée Nationale du Rwanda United Republic of Tanzania B.P. 352 H.E. Charles Kileo Kigali, Rwanda Ambassador Tel. 250-83180 Embassy of the United Republic of Tanzania 250-83-980 P.O. Box 1077 250-86-275 Addis Ababa, Ethiopia
Mr. Vincent Ntambabazi Mr. George Mwanjabala Second Counsellor Minister Plenipotentiary Embassy of the Rwandese Republic Embassy of the United Republic of Tanzania Addis Ababa, Ethiopia P.O. Box 1077 Addis Ababa, Ethiopia Dr. Joseph W. Mutaroba Embassy of the Rwandese Republic Zambia Addis Ababa, Ethiopia Mr. Mwenya Lwatula Tel. 251-1-61-03-00 Embassy of the Republic of Zambia P.O. Box 1709 Addis Ababa, Ethiopia
Zimbabwe
48 Mr. Alex Masumba Parliament 2221 33rd Cres, G.V.I. Harare, Zimbabwe
Non-Governmental Organizations
Mr. Ahmed Mohiddin Mr. Tadesse Belay Director Ethiopian Investment Authority Africa Foundation Addis Ababa, Ethiopia P.O.Box. 1639 Accra, Ghana Dr. Meera Sethi Fax 233-21-776-055 International Organization for Migration UNECA BLDG. Dr. M. A. Wali P.O. Box 3005 Director General Addis Ababa, Ethiopia African Training and Research Centre in Administration for Development (CAFRAD) Mr. John Mdoe Tangier, Morocco Organization of African Unity Fax 212-9-941-415 Addis Ababa, Ethiopia
Mme. Christine Desouches Prof. Kwame Frimpong Agence de la Francophonie Secretary General 13 Quai André Citroën Southern African Universities 75015 Paris, France Social Science Conference (SAUSSC) Tel. 33-1-44373317 c/o Faculty of Social Sciences Fax 33-1-44373345 University of Botswana Private Bag 0022 Dr. Abdalla Burja Gaborone, Botswana Director Tel. 267-355-2339 Development Policy Management Forum Fax 267-356-591 Addis Ababa, Ethiopia Fax 251-1-515-410 Mr. Amadou Ly TACT P.O. Box 60069 Addis Ababa, Ethiopia Tel. 251-1-61-05-94 Fax 251-1-51-46-82
Media
Mr. Takele Alemayehu Ethiopian News Agency (ENA) Reporter Woreda 15, Kebele 30, House No. 321
49 Addis Ababa, Ethiopia Ethiopian Radio Addis Ababa, Ethiopia Mr. Berhanu Dawit Tel. 251-1-71-11-11 Reporter ENA Mr. Sisay Haile-Selassie Addis Ababa, Ethiopia Journalist (External Service of Radio Ethiopia) Addis Ababa, Ethiopia Mr. Shewareged Bruck
Others
Mr. Steve Tettey Dr. Alan F. Fowler P.O.Box 15705 P.O.Box 1261 Accra-North, Ghana Addis Ababa, Ethiopia Tel. 251-1-15 25 41 Mr. Codjovi Cyroaque Dogue Fax 251-1-53 17 93 B.P. 2050 Cotonou, Benin Mr. Sem Tekle Tel. 229-31 52 32 Ethiopia Fax 229-31 37 12 Addis Ababa, Ethiopia Tel. 251-1-51-47-86
Engineer Techeste Ahderom 866 United Nations Plaza, Suite 120 New York, N.Y. 10017 U.S.A.
UNITED NATIONS ORGANIZATIONS
Department of Political Affairs
Mr. Taye-Brook Zerihoun Deputy Director, Africa 1 Division
United Nations High Commission for Refugees
Ms. Kathrine Staru UNHCR Regional Liaison Officer P.O. Box 1076 Addis Ababa, Ethiopia Tel. 251-1-61-28-22
50 United Nations Development Programme
Ms. Carina Perelli Mr. Aamir Matin Deputy Director UNDP Governance Facility Management Development and Governance Islamabad, Pakistan Division Tel. 925-1821816 Bureau for Policy and Programme Support Fax 925-1279080
Dr. Soule Funna Ms. Joyce Mendi-Cole Regional Bureau for Africa Field Office, Addis Ababa, Ethiopia
United Nations Educational, Scientific and Cultural Organization
Mr. Mamady Lamine Conde UNESCO Representative in Addis Ababa P.O. Box 1177 Addis Ababa, Ethiopia
World Health Organization
Mr. A. Nunes Correua Director WHO Office for OAU/ECA Addis Ababa, Ethiopia Fax 251-1-515178
ORGANIZERS
Economic Commission for Africa
Mr. K. Y. Amoako Dr. Getachew Demeke Executive Secretary Coordinator of the Civil Society Participation and Development in Governance Mr. James Nxumalo DMD Chief Development Management Division (DMD) Mr. Pierre Demba
Mr. Ismail Ali Ismail Mr. Mamadi Kourouma Senior Public Administration Officer DMD Mr. B. Mapango
Mr. Joseph Simelane Mr. Ibrahima Barry Public Sector Management DMD Mr. Sylvain Maliko
51 Mr. Kaba Camara Mr. M.K. Mwango
Mr. Birane Cisse Mr. Wondimu Alemayehu
Ms. Awa Fall Mr. Christophe Bandaogo
Mr. V. Bobrov Mr. Taye Said
Mr. Mpekesa Bongoy
52 Department of Economic and Social Affairs
Mr. Guido Bertucci Director Division for Public Economics and Public Administration (DPEPA) Tel. 1-212-963-5761 Fax 1-212-963-9681
Ms. Itoko Suzuki Chief Governance and Public Administration Branch (GPAB)/DPEPA Tel. 1-212-963-8418 Fax 1-212-963-2916
Ms. Jeanne-Marie Col Special Technical Adviser GPAB/DPEPA Tel. 1-212-963-8377
Mr. Rukudzo Murapa Interregional Adviser GPAB/DPEPA
Mr. Mohamed Sall Sao Interregional Adviser GPAB/DPEPA Tel. 1-212-963-4503
Ms. Atnafu Almaz Economic Affairs Officer GPAB/DPEPA Tel. 1-212-963-8378 Fax 1-212-963-2916
Ms. Yolande Jemiai Public Administration Officer GPAB/DPEPA
Mr. Abraham Joseph Senior Adviser on UN-NADAF/UNSIA Office of the Special Coordinator for Africa and the LDCs Tel. 1-212-963-4839
53 54 ANNEX VII
WORKING PAPERS
1. “Governance: The Africa Experience” by Prof. Georges Nzongola-Ntalaja.
2. “Building a Capacity for Governance: Some Lessons Learned” by Prof. B. Guy Peters.
3. “The Public Service and Development” by Mr. T. J. Makgoro.
4. “The Rule of Law and Political Liberalization in Africa” by Mr. Amedou Ould-Abdallah.
5. “Judicial and Quasi-Judicial Review of Administrative Decisions” by Dr. Fasil Nahum.
6. “Enhancing the Responsiveness of the Public Services to the People through Parliamentary Control of Administration” by Dr. Meheret Ayenew.
7. “How African Government May Create Fast Economic Growth” by Mr. Peter M. Quennell.
8. “Promoting Investment in People and Communities” by Ms. Rameline Kamga.
9. “Developing New Capacities for Improved Management of the Public Sector in Africa” by Dr. T. Bruno Mukendi.
10. “Performance Measurement in Government Organizations” by Dr. Ahmed Sakr Ashour.
11. “High Performance Government Financial Management in Africa” by Mr. T. Peter Burgess.
12. “Inter-Active Governance: A Social-Political Perspective” by Dr. Jan Kooiman.
13. “State and Civil Society in Africa: Nurturing a Functional Relationship between Citizens and State Institutions” prepared by the Economic Commission for Africa
55