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Chieftaincy and Development in Ghana: from Political Intermediaries to Neotraditional Development Brokers

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Chieftaincy and Development in Ghana: from Political Intermediaries to Neotraditional Development Brokers Institut für Ethnologie und Afrikastudien Department of Anthropology and African Studies Arbeitspapiere / Working Papers Nr. 124 Johannes Knierzinger Chieftaincy and Development in Ghana: From Political Intermediaries to Neotraditional Development Brokers 2011 AP IFEAS 124/2011 Herausgegeben von / The Working Papers are edited by: Institut für Ethnologie und Afrikastudien, Johannes Gutenberg-Universität, Forum 6, D-55099 Mainz, Germany. Tel. +49-6131-3923720; Email: [email protected]; http://www.ifeas.uni-mainz.de http://www.ifeas.uni-mainz.de/workingpapers/Arbeitspapiere.html Geschäftsführende Herausgeberin / Managing Editor: Eva Spies ([email protected]) Copyright remains with the author. Bitte zitieren als / Please cite as: Knierzinger, Johannes, 2011: Chieftaincy and Development in Ghana: From Political Intermediaries to Neotraditional Development Brokers. Arbeitspapiere des Instituts für Ethnologie und Afrikastudien der Johannes Gutenberg- Universität Mainz (Working Papers of the Department of Anthropology and African Studies of the Johannes Gutenberg University Mainz) 124. <URL: http://www.ifeas.uni-mainz.de/workingpapers/AP124.pdf> Johannes Knierzinger: Chieftaincy and Development in Ghana: From Political Intermediaries to Neotraditional Development Brokers Abstract Ghanaian societies are still embedded in neotraditional structures, even in urban areas. Contrary to many prophecies of doom since independence, chieftaincy is still very popular. One of the reasons for this persistence is the remarkable malleability and fluidity of neotraditional systems. Particularly on the local level, a considerable percentage of the pop- ulation is permanently engaged in negotiations and disputes over neotraditional offices and corresponding claims. This leads to a high degree of political participation, but also to conflicts and to the abuse of chieftaincy as an instrument of elite formation. Membership in the neotraditional system enhances social status, facilitates contacts with politicians and foreigners, increases the possibility of going abroad and goes with a kind of political immunity. The obtaining of a neotraditional office is therefore a rational and frequently envisaged stage in economic as well as political careers. This paper focuses on the intersections between the neotraditional systems and the development arena of Ghana. I want to show how neotraditional actors (e.g. chiefs, queen mothers, stool fathers, elders, ‘linguists’ and development chiefs) interact with (and act as) politicians, business men, NGOs and development agencies and how these intersec- tions can be described on the national level. Since independence, the neotraditional actors of Ghana have gone through a fundamental transformation from political intermediaries (between the colonial power and the African popu- lation) to more or less heterogeneous interest groups. The engagement in development business is one successful strategy of retaining power and earning a living during this ongoing transformation. Neotraditional actors try to com- pensate for their reduced political power with developmental activities. At the same time, however, the media, the state and the civil society also portray neotraditional actors as development brokers and thereby push them into devel- opment aid. Keywords: Ghana, development brokers, development aid, chieftaincy, contemporary history Zusammenfassung Die ghanaische Bevölkerung ist – auch im urbanen Raum – noch immer stark in neotraditionelle Strukturen eingebun- den und steht „neotraditionellen AkteurInnen“ überwiegend positiv gegenüber. Dieses Durchhaltevermögen der neo- traditionellen Systeme lässt sich wesentlich auf seine Fluidität zurückführen. Vor allem auf lokaler Ebene befinden sich weite Teile der Bevölkerung in einem permanenten Aushandlungsprozess über neotraditionelle Ämter und damit ver- bundene Rechte und Pflichten. Das Ergebnis ist einerseits ein hoher politischer Partizipationsgrad, der jedoch mit – bisweilen auch blutigen – Konflikten erkauft werden muss. Auf der anderen Seite führte diese Unbestimmtheit der neotraditionellen Strukturen seit der Unabhängigkeit verstärkt zu einer steigenden Instrumentalisierung durch lokale Eliten. Die Mitgliedschaft in neotraditionellen Systemen erhöht den sozialen Status, erleichtert den Kontakt zu Politi- kern, vergrößert die Chance ins Ausland zu gehen und geht auch meist mit einer Form von politischer Immunität ein- her. Neotraditionelle Ämter erweisen sich dadurch sehr oft als Sprungbretter für politische und ökonomische Karrieren. Eine nicht-adelige Herkunft kann dabei durch soziales, kulturelles oder ökonomisches Kapital kompensiert werden. Dieses Arbeitspapier fokussiert auf die Schnittstellen zwischen neotraditionellen Systemen und der Entwicklungsarena Ghanas. Es soll klar werden, wie neotraditionelle AkteurInnen mit PolitikerInnen, Geschäftsleuten, NGO-VertreterInnen AP IFEAS 124/2011 und RepräsentantInnen der großen Entwicklungsagenturen interagieren bzw. inwiefern sie selbst als solche agieren. Diese Schnittstellen werden auch auf der nationalen Ebene abgebildet. Die neotraditionellen Systeme Ghanas (beste- hend aus Chiefs, Queenmothers, Stool Fathers, Elders, Development Chiefs etc.) haben sich seit der Unabhängigkeit grundlegend verändert. Aus Mittelsmännern zwischen der Kolonialregierung und der afrikanischen Bevölkerung wur- den vielerorts private InteressensvertreterInnen. Das Engagement von neotraditionellen AkteurInnen im Rahmen der Entwicklungszusammenarbeit war und ist in diesem Zusammenhang eine Möglichkeit, den verlorenen politischen Ein- fluss zu kompensieren. Gleichzeitig gerät aber auch die Verwendung der Mittel aus neotraditioneller Herrschaft immer stärker unter Beschuss durch die Medien und die Zivilgesellschaft, was gegenwärtig zu einer medialen Überbewertung des neotraditionellen Engagements in der Entwicklungszusammenarbeit führt. Keywords: Ghana, Entwicklungsmakler, Entwicklungszusammenarbeit, Chieftaincy, Zeitgeschichte Der Autor Johannes Knierzinger ist Lehrbeauftragter für Entwicklungssoziologie am Institut für Internationale Entwicklung der Universität Wien. Email: [email protected] AP 124/2011 CONTENTS 1. Introduction: ..................................................................................................................................... 5 2. The history of chieftaincy and development in Ghana ........................................................... 6 2.1. The struggle for independence ................................................................................................ 6 2.2 Ghana under Nkrumah ........................................................................................................... 10 2.3 After 1966 ................................................................................................................................... 12 2.4 Ghana under Rawlings ............................................................................................................ 15 2.5 ‘Democratisation’: The rise of international financial institutions and NGOs ................ 18 3. The current state: Neotraditional development brokers? ...................................................... 21 3.1 Brokers, patrons and the great hunt for projects ................................................................. 22 3.2 The roles of the neotraditional actors .................................................................................... 28 3.3 Neotraditional actors as politicians ....................................................................................... 31 3.4 The power of neotraditional actors ........................................................................................ 36 4. Conclusion ...................................................................................................................................... 41 References ........................................................................................................................................... 44 Abbreviations: CDO – Civil Defence Organisation CDR – Committees for the Defence of the Revolution CPP – Convention People’s Party DA – District Assembly DCE – District Chief Executive MP – Member of Parliament NTA – Neotraditional actor NCD – National Commission on Democracy NDC – National Democratic Congress NLM – National Liberation Movement NLC – National Liberation Council NPP – New Patriotic Party NRC – National Redemption Council ODA ‐ Official Development Assistance PIU ‐ Project Implementation Unit PDC – People’s Defence Committee PNCD – Provisional National Defence Council PPTAP ‐ Promoting Partnership with Traditional Authorities Project SAP – Structural Adjustment Programme SMC – Supreme Military Council TA ‐ Traditional authority TDC – Town Development Committee UGCC – United Gold Coast Convention VDC – Village Development Committee 4 AP 124/2011 1. INTRODUCTION In this research paper I will try to show how neotraditional actors (e.g. chiefs, queenmothers, stool fathers, elders, ‘linguists’ and development chiefs) are involved in the Ghanaian development arena. This goal will be tackled by carrying out a comparison of neotraditional actors (NTAs) and politicians as the major agents of development, a study of the roles of neotraditional actors, both by means of a survey and a media analysis, reflections on the different sources of power of neotraditional actors on the basis of a short history of chieftaincy and development in Ghana, and a detailed study of the development
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