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Governance at the Grassroots an Analysis of Local Government Structures in the Sahel Regions of Niger, Burkina Faso, and Mali

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GOVERNANCE AT THE GRASSROOTS AN ANALYSIS OF LOCAL GOVERNMENT STRUCTURES IN THE SAHEL REGIONS OF NIGER, BURKINA FASO, AND MALI August 2014 This study was produced with funding from the UK Department for International Development (DFID) as part of the project development phase for Scaling Up Resilience for Over One Million people in the Niger River Basin of Niger, Burkina Faso, and Mali (SUR1M), one of 10 projects across the Sahel Region for which a Concept Note has been approved by the DFID-funded Building Resiliency and Adaptation to Climate Extremes and Disasters (BRACED) Programme. The SUR1M consortium is led by Catholic Relief Services, and brings together CAFOD (Catholic Agency for Overseas Development), Caritas Développement (CADEV) Niger, Catholic Organisation for Development and Solidarity (Organisation Catholique pour le Développement et la Solidarité) OCADES Burkina Faso, Caritas Mali, Farm Radio International (FRI), United Nations Development Programme (UNDP), Agrometeorology, Hydrology, Meteorology (AGRHYMET) Regional Centre, Research Programme on Climate Change, Agriculture and Food Security (CCAFS), and Tulane University. Cover photograph: The villagers of Guidan Na Dole in southern Niger meet with a CRS field agent to discuss community-led sanitation. 23 July 2014, François Therrien for CRS Copyright © 2014 Catholic Relief Services For any commercial reproduction, please obtain permission from [email protected] or write to: Catholic Relief Services 228 West Lexington Street Baltimore, MD 21201-3413 USA GOVERNANCE AT THE GRASSROOTS AN ANALYSIS OF LOCAL GOVERNMENT STRUCTURES IN THE SAHEL REGIONS OF NIGER, BURKINA FASO, AND MALI AUGUST 2014 Authors: Burkina Faso and Mali: Alexis Kaboré & Elie Siboné Niger: Moussa Abari & Boukary Issa i TABLE OF CONTENTS ACRONYMS . iv SUMMARY . vi 1 INTRODUCTION . 1. 2 EVALUATION METHODOLOGY . .3 3 FRAMEWORK OF DECENTRALISATION AND GOVERNANCE . 5. 3.1 Legislative and Political Frameworks........................5 3.1.1 Burkina Faso ...................................5 3.1.2 Mali .........................................6 3.1.3 Niger ........................................6 3.2 Institutional Frameworks ................................7 3.2.1 Burkina Faso ...................................7 3.2.2 Mali ........................................10 3.2.3 Niger .......................................11 3.3 The Organization of Local Governance .....................13 3.3.1 Burkina Faso ..................................13 3.3.2 Mali ........................................13 3.3.3 Niger .......................................13 4 EVALUATION OF THE DECENTRALIZATION PROCESS . .15 4.1 Transfer of Authorities and Resources .....................15 4.2 Social and Political Ownership of Decentralization ............16 4.3 Performance of Local Government/Local Project Management ....19 4.3.1 Organization and Functioning of the Local Organs . .19 4.3.2 Planning, Information, and Participation ..............19 4.3.3 Services Provided to Citizens ......................20 4.3.4 Financial Resource Mobilization ....................21 4.4 Mechanisms to Support Local Authorities ..................21 4.5 Steering and Coordination of the Decentralization Process ......22 4.6 Analysis of Land and Natural Resource Management ..........25 4.6.1 Burkina Faso ..................................25 4.6.2 Mali.........................................26 4.6.3 Niger ........................................27 4.7 Conflict Analysis ....................................30 ii 5 ANALYSIS OF TOOLS AND MECHANISMS TO SUPPORT LOCAL GOVERNANCE . .33 5.1 Analysis of Existing Tools to Evaluate Capacity and Performance of Local Governance Systems .................33 5.2 Recommendations for Development of a Tool Incorporating DRR/CCA to Evaluate Local Governance ...................34 5.3 Analysis of Mechanisms for Managing Small Grants ...........35 6 RECOMMENDATIONS . 37. 6.1 Evaluation of the Relevance of Strategies and Actions Proposed for Strengthening Governance ..................37 6.2 Strategies to Strengthen Citizen Participation ...............37 6.3 Criteria and Mechanisms to Evaluate Small Grant Management ...40 ANNEXES . .42 iii ACRONYMS AMBF Association des Municipalités du Burkina Faso/The Association of Municipalities-Burkina Faso ANFICT Agence Nationale de Financement des Collectivités Territoriales/National Agency for the Investment of Local Authorities AOPP Association des Organisations Professionnelles Paysannes/ Professional Farmers Association ARBF Association des Régions du Burkina Faso/The Regions Association — Burkina Faso BRACED Building Resilience and Adaptation to Climate Extremes and Disasters CAFOD Catholic Agency for Overseas Development for England and Wales CCA Climate Change Adaptation CBO Community-Based Organization CDP Commune Development Plan CNEDD National Council on the Environment and Sustainable Development (Niger) COFO Commission Foncière/Land Commission CONAD Conference Nationale de la Décentralisation/National Decentralization Conference CRS Catholic Relief Services CSCOM Centre de Santé Communautaire/Community Health Center CSO Civil Society Organization DFID UK Department for International Development DRR Réduction des Risques de Catastrophe/Disaster Risk Reduction FPDCT F onds Permanent pour le Développement des Collectivités Territoriales/Permanent Fund for Local Authority Development GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit LGALAs Collectivité Territoriale/Local Authorities/Local Government M&E Monitoring and Evaluation PNA Plan National d’Adaptation aux changements climatiques/ National Climate Change Adaptation Program PNSFR National Policy on Land Tenure (Burkina Faso) POCR Orientation Principles of the Rural Code SCADD Stratégie de Croissance Accélérée et de Développement Durable/Strategy for Accelerated Growth and Sustainable Development SUR1M Scaling Up Resilience for Over One Million people in the Niger River Basin of Niger, Burkina Faso, and Mali UEMOA Union Économique et Monétaire Ouest Africain/West African Economic and Monetary Union v SUMMARY Catholic Relief Services (CRS) commissioned this study to ensure expertise in the area of governance for the SUR1M (Scaling Up Resilience for Over One Million people in the Niger River Basin of Niger, Burkina Faso, and Mali) project proposal submitted to DFID, the United Kingdom’s Department for International Development. This study, undertaken by Agence Corade, was conducted from April 7 to May 16, 2014. The objectives were to i) contribute to the governance section of the SUR1M project proposal, ii) analyse governance issues in Burkina Faso, Mali and Niger by focusing on the links between decentralization and improved management of Disaster Risk Reduction (DRR) by local government, and iii) make conceptual recommendations to strengthen the SUR1M project proposal. Decentralization and Local Governance Frameworks Legal and structural frameworks for decentralization policies have been effectively established in all three countries. The current local governance codes (General Code of Local Authority) were adopted in Mali in 2012, in Burkina Faso in 2004, and in Niger in 2010. Each country has established a government Ministry of Decentralization and a Local Government Association at each level of local authority. Mali even included the establishment of elected bodies as part of its 1999 communalized integration plan. Similar structures have only been operational in Burkina Faso since 2006 and in Niger since 2011. Evaluation of the Decentralization Process This evaluation of the decentralization process uses criteria as adapted from those found in the strategic objectives of the decentralization policy strategies in the three countries. These strategic objectives include i) transfer of authorities1 and resources, ii) social and political ownership of decentralization, iii) performance of the local governments in local project management, iv) support mechanisms for local institutions, and v) steering and coordination of the decentralization process. 1 Transfer of “authorities” refers to shifts of ability and responsiblity from the national governments to the com- munes in areas such as human and financial resources and technical support. In all three countries, specific authorities include basic education (primary school), literacy and preschools, water and sanitation, health, etc. vi Social Ownership of the reform should result in an understanding of the reform by citizens at both an individual and collective level. This should lead to significant improvement in civic consciousness and increased participation by the population in decision-making and local governance. This type of participation is still very low in the three countries even though, for example, in Burkina Faso, the rate of participation in the 2012 local elections reached 75%. The rate for the participation of women in the management and decision-making in local governance is also very low in all three countries. In Burkina Faso, which boasts the best numbers in terms of female participation, the percentage of women on the local Municipal Councils in 2009 was only 26%. This rate dropped to 21% after the elections of December 2012. In Mali, in 2009, the rate was only 8.6%. Political Ownership is measured by the State’s commitment and ability to lead regulation and support decentralization. While all three countries have judicial resources and institutional frameworks to implement ambitious reforms of public management, the low level of transfer
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