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MALI Participatory Monitoring and Evaluation As a Means of Empowering Local Government in the Region of Mopti

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MALI Participatory Monitoring and Evaluation As a Means of Empowering Local Government in the Region of Mopti ABDOUL K. COULIBALY MAMADOU Y. KEÏTA ROKIA DIARRA KONARÉ AHMED AG ABOUBACRINE MALI Participatory monitoring and evaluation as a means of empowering local government in the region of Mopti Couv CARE.qxd 6/02/08 17:18 Page 2 SNV CARE.qxd 6/02/08 14:20 Page 1 TABLE OF CONTENTS 1 SNV CARE.qxd 6/02/08 14:20 Page 2 FOREWORD According to a Bambara adage, 'He who knows all will not die'.Today, is an evident desire, in many countries of the West African region which have launched decentralisation reforms since the 1990s, to try out new approaches and new methods of cooperation to build local monitoring and evalua- tion (M&E) capacity ! 1. By sharing with the readers some of the experiences and lessons learned from these new M&E approches, this publication aims to make a modest contribution to the know- ledge available on the subject. This publication is for all actors in development, working in the field of decentralisation and local governance, especially practitioners and policymakers working on issues connected with capacity building in the area of monitoring, evaluation and democratic control of local governance structures. The case study presented in this document has been prepared in the context of an exercise that aimed to document, analyse and learn from experiences with different approaches/methods and instruments for building the capacities of different actors in decentralisation and local governance, and in particular, the capacities of local government to monitor and evaluate the outcomes of these complex reform processes. This learning exercise started in Mali. It has been a joint initiative by the R é s e a u de R é f l exion et d'Échanges sur le Développement Local (REDL2, a Malian network of development organisations and programmes working in the field of decentralisation and local development), the Netherlands Development Organisation (SNV-Mali), the Malian Ministry of Territorial Administration and Local Government (MATCL) and the European Centre for Development Policy Management (ECDPM), an independent foundation based in Maastricht in the Netherlands, in cooperation with several development organisations working in West Africa. The purpose of this exercise has been to jointly map and document relevant experiences in the West African region and share 'good practice' and lessons learned. A total of 11 case studies from different countries of the West African region were prepared during this exercise, and a seminar held under the auspices of the MATCL in Bamako on 17 and 18 May 2006 provided a forum for a structured exchange of experiences. This study case, ' Pa rt i c i p a tory monito ring and evaluation as a means of empowe ring local gove rnment in the region of Mopti', describes and analyses the initial stages of design and testing of a participatory monitoring and evaluation system for the Programme d'Appui aux Communes et Organisations de Base (PACOB - Support Programme for Municipalities and Grassroots Organi- sations) of CARE International in Mali. This programme focuses on natural resource management and local governance in a region that, according to poverty surveys and maps, is one of the most disadvantaged in the country. 1- Ta ken from the welcome speech given by Mr Ibrahima Sylla, decentralisation advisor at the Ministry of Te rr i t o r i a l Administration and Local Government (MATCL) of Mali, at the sub-regional seminar 'Building capacities for monitoring and evaluation of decentralisation and local governance in West Africa: exchange of experience and learning'. 2- For more details see http://www.snvmali.org/actus/redlinfo0606.pdf.The REDL members taking part in this learning exercise were SNV-Mali; the Programme d'Appui aux Collectivités Territoriales (PACT), a project in support of local government run by German Technical Cooperation (GTZ); l'Aide de l'Église Norvégienne (AEN), Norwegian Church Aid; CARE International in Mali; the Programme d'Appui aux Acteurs de la Décentralisation (PAAD), a development programme of HELVETAS-Mali; the Swiss Association for International Cooperation; 'Solidarité, Union, Coopération' (SUCO), a Canadian NGO; the Association of French Volunteers (AFVP); and the Programme Gouvernance Partagée 2 (PGP), a programme financed by the US Agency for International Development (USAID). SNV CARE.qxd 6/02/08 14:20 Page 3 The study has been prepared by a team of four authors working for CARE International, all of whom have been closely involved in the design and testing of this new participatory approach to monitor- ing and evaluation. Abdoul Karim Coulibaly, a statistician and demographer by training, is currently the coordinator of CARE International's monitoring and evaluation unit in Mali. He has wide-ranging experience in the field of monitoring and evaluation and is the author of various publications on project evaluation and socio-demographic studies. Rokia Diarra Konaré is currently head of PACOB. A biologist by training, she has a wide range of experience in the development field in decentralisation, micro-finance and participatory approaches. Mamadou Yoro Ke ï t a is a statistician and regional coordinator of monitoring and evaluation for CARE International in Mali. Currently working on PACOB, he has worked for many years in the monitoring and evaluation field. Ahmed Ag Aboubacrine is now working as monitoring and evaluation coordinator with CARE Inter- national in Burundi. He is a statistician specialising in decision-making aids. He was CARE's regional monitoring and evaluation coordinator in Mali up to 2005. This approach was developed and tested as a result of the process of reflection and learning taking place within CARE International, with a view to 'making the organisation more responsible to com- munities, particularly the most vulnerable'. The new approach has therefore been designed and tested in the context of PAC O B, bringing together a wide range of different actors invo l v ed in resource management and new governance structures at various levels: village, rural municipality, sub-region (or “cercle”), region. These actors are also the protagonists of the new ascending monitoring and evaluation system intended to meet both CARE's needs and the need for better systems of infor- mation and accountability in Mali's new local governance structures. The facilitators of this joint documentation, analysis and learning exercise would like to thank the authors, the members of the Malian REDL network and the organisations working in other West African countries that have supported and co-financed the preparation of the different case studies. Through the generous support of these organisations and the Swedish International Development Agency (SIDA) these case studies are being published in both French and English and will also be included in a more comprehensive publication, bringing together all the case studies and the results of the regional seminar held in May 2006. They would also like to express their gratitude to Mr. Ibrahima Sylla, decentralisation advisor at the Ministry of Territorial Administration and Local Government of Mali, for his indefatigable support for the success of this joint initiative. Last but not least, they would like to thank Kathleen Sheridan for her language editing work and David Harris for translating this document to English. 3 SNV CARE.qxd 6/02/08 14:20 Page 4 INTRODUCTION For a long time now the approaches used in development have tended to keep the beneficiaries (the communities invo l ved) at arm's length. The ve r y term 'beneficiary' implies a passive recipient rather than an actor. For years the Western model has been imposed on the very different realities of countries in the South, with development theorists and programme designers assuming that these countries needed to go through the same stages as the West in order to 'develop'. The limitations of such approaches soon became them. The study showed that communities had litt l e clear when they failed to produce the ex p e c t e d i n vo l vement in monitoring and evaluation sys t e m s , results: much of the infrastru c t ure created quick l y mainly playing a passive role as providers of data fell into disrepair through lack of maintenance, and and having no real decision-making power. Armed although awareness campaigns helped to improve with these findings, CARE Mali, in its December k n owledge, they did not really change behav i o u r. It 2004 review of its long-term strategic plan, made became apparent over time that any ach i eve m e n t s it a priority to implement a participatory sys t e m in such a context would never produce lasting for monitoring and evaluation that would give results because the communities invo l ved could genuine decision-making power to communities not really ta ke ownership of the approaches used. in designing, monitoring and evaluating its programmes. All of this begged the question of whether a development programme can really be effective if CARE Mali's Programme d'Appui aux Com- it does not invo l ve the 'beneficiary' communities munes et Organisations de Ba s e ( PACOB - Support in every stage of its cycle (design, implementation Programme for Municipalities and Grassroots and monitoring/evaluation). And who are deve l - Organisations), then in its early stages, was ch o- opment projects really for? Should the 'beneficiaries' sen to test an integrated system of participatory not be placed at the heart of the project, so that monitoring and evaluation (PM&E). This was based t h ey can define their own priorities and be invo l ve d on the interest shown in this approach by its finan- in developing mechanisms for monitoring and cial partner (CARE Norway and the Norwe g i a n evaluation? G o vernment), local councillors, civil society and the t e chnical departments in the region of Mopti, all of It was in this context that, in 2003, CARE Inter- which had been heavily involved in designing the national, as part of its process of ongoing learning, programme.
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