JPC.CCP Bureau Du Pr6sident

Onchocerciasis Control Programme in the Volta Rivcr Basin area Programme de Lutte contre I'Onchooercose dans la R6gion du Bassin de la Volta

JOINT PROGRAMME COMMITTEE COMITE CONJOINT DU PROGRAMME Office of the Chairman JPC.CCP Bureau du Pr6sident

JOINT PROGRAMME COMMITTEE JPC5.4A Fifth Session ORIGINAL: FRXNCH Niamey, 3-6 December 1984 September 1984

Provi s ional asenda iten 11 PLANNING CELL FOR THE ONCHOCERCIASIS CONTROLLED AREAS PEOPLE'S REPUBLIC OF BENIN PROJECT BEN/80/002

MINISTRY OF PLANNING, STATISTICS AND ECONOMIC ANALYSIS

DIVISION OF PROGRAMMING AND NATIONAL DEVELOPMENT

REPORT ON THE SOCIOECONOMIC DEVELOPMENT OF THE ONCHOCERC IAS I S-CONTROLLED AREAS (ATACORA AND BORCOU PROVINCES)

INTRODUCTION

The present report on the development of the areas where onchocerciasis has been brought under control reviews the various activicies scheduled or in progress within t.he provinces concerned, Atacora and Borgou, under the National Development Plan, and describes the specific activities being carried out by the national Ce11 responsible for developing the controlled areas. These Iatter acEivities, far from competing with those scheduled under the Plan, are aimed at strengthening them by creating the necessary conditions for the rapid exploitation of certain fertile onchocerciasis-controlled 1ands.

The sheer size of t.hese various socioeconomic projects illustraEes the high prioriEy given by the Plan to such areas, on account of their inrnense agriculEural potential and the need t.o promote balanced, integrated and harmonious national development.

I. BASIC DATA

1. Some characterist.ics of Ehe zone The provinces of Atacora and Borgou, currenEly covered by the regional Onchocerciasis Control Programre (OcP) have a total area of 81 300 kmz, i.e. 72.27. of the total area of Benin (see maps annexed). According to the latest estimates of the National InstiEute of Statistics and Economrc Analysis, these two provinces had a population of 1 054 820 in 1983, i.e., 282 of the total population of the country. The mean population density is estimated aE 13 inhabitants per kmz.. 17 per kmz in Atacora and 11 per kmz in Borgou. These figures illustraEe the low space occupancy in these areas of relatively fertile land. Indeed, out of the 3 754 000 ha of cultivable land, 66.97 of the countryrs total, only 8% is at present under cult ivat ion.

This northern part of the country is characterized by extremely scattered human settlement.s - resulting in the serious isolation of certain large producing regions - and by a severe lack of equipment and facilities. These provinces, which are prime areas for long-term agricultural development on account of their tremendous potential, are at present seriously threatened by drought and by the drift frorn the land. I

l rl

JPC5.4A Page 2 2. The objectives of the Second Plan for 1983-1987 Benin has a self-focused and self-mainEained developmenE strategy constructed around two essential objectives:

(i) creation of an adequate internal demand;

(ii) creation of an adequate surplus that can be mobilized for the formation of capital. , 2 1 Objectives within the rural sector The development of this major sector involves modification of the pattern of production { and the development of the labour force. It is advisable to bring about a gradual change- over from a closed rural comnunity to an open social system that involves trade, widespread use of money, reduction of home consumption, etc. Up to now the surplus created bv the agricultural sector is still lirnited, despite the sizeable agricultural and human potential. The increase in this surplus during the Second Plan will be brought about by means of a four-dimensional programne : - intensification of production; - mobilization of the available labour force; - expansion of outlets', - modern exploitation of unused land in order to produce self-sufficiency in food.

The State will contribute by providing means of production and loans and by engaging in cormnunity education and extension work. Altogether Ehe development activities in the agricultural sector should from now on be based upon: (a) modification of the pattern of production, which calls for a strengthening of institutional resources ; (b) integrated acEivities to increase producEion capacity: these should be applied to entire natural regions, should involve the local population, and should undertake the development of areas of high potential on Ehe basis of experimental units. 2.2 Objectives within the industrial sector - Exploitation of natural resources;

- meeting the needs of the home market.

2 3 Objectives within the public works sector Development activities in the public works sector will be aimed at. tvro objectives during the Five-Year Plan: (i) to strengthen the comparative advantage of Benin as a transit route'

(ii) to develop the socioeconomic and spatial integration of Benin.

On account of the present state of the road network, some provinces like Borgou and Atacora with high agricultural potential are stiIl cut off from the rest of Ehe country. During the period of the Plan the tarring of the main roads from Savalou Eo Porga, and from Dassa to Parakou, together with the construction of a number of untarred roads, will make it possible to transport marketable agricultural surpluses tordards the south and the neighbouring countries. JPC5.44 Psge 3

2.4 Obiectives within the social sector As regards basic education, the objectives of the Second Plan include the construction of 2000 classrooms in order to improve conditions of work and the prevention of a drop in the quality of teaching by providing basic and refresher training for teachers. As regards health the general strategy remains the same as that defined in L972, which is fully in line with the concerns of WHO, i.e. the development of primary health care in the light of the social objective of "health for all by the year 2000rr. In order Eo provide access to health care for the entire population, the Plan provides for: - establishment of a network of decentralized health facilities at village and comune level, with the aid of village initiatives;

- provision of mass medicine that is essentially prevent.ive in character by means of a progranxme of vaccination and control of the rnajor endemic diseases; - combination of modern and traditional medicine to improve t.he well-being of Ehe masses; - t.raining of personnel at, all leveIs; provision of appropriaEe equipment and satisfact.ory and regular supplies of essential drugs for all health unitsl - strengthening of the provincial hospitals so as to enable them to provide the public with all essential services in the provincial capitals; - implementation of health programnes.

II. REVIEW OF ACTIVITIES IN PROGRESS IN THE ZONE

In order to achieve the objectives laid down by the Nat.ional Development Plan, a number of projects are in progress in the two provinces currently covered by OCP, and these projects contribute directly or indirectly to the development of the controlled areas. These are mainly the projects in the rural, village lrater supply, road infrastructure and health and educational facilities sectors, the irunediate or long-term effects of which are the trost signficant indicators of development in these areea. 1. Agricultural projects

Cost Funding Title of project in millions progress of CFA francs sources State of

Development of forestry UNDP resourc es 500 Benin In progress

Development of the Federal Republic forest economy and of Gernany (FRG) timber production 3 798 Benin In progress

Integrated rural AID development of Borgou IFAD prov ince 8 625 Benin In progress

Rural development IFAD of Atacora OPEC province 5 800 Benin In progress Development of Council of the Iivestock farming: Entente smal1 ruminants 439 Benin JPC5.4A Page 4

Title of project Cost in millions Funding of CFA francs sources State of progress

Ranch for production and fattening of cat.tle, B6t6rou 673 To found be Under study I Ranch for production and fattening of cattle, Tobr€ 626 To be found Under study a Development of animal production in Atacora province 1 I00 FRG In progress Teak plantation, southern Borgou 2 085 Benin In progress

As the above table shows, a number of projects concerned with forestry, crops and livestock production are in progress in Atacora and Borgou provinces. However, the major ones are the Borgou rural development project financed with funds from AID, the World Bank and the International Fund for Agricultural Development (IFAD) (8625 nillion CFA francs) (198I-1985) and the Atacora rural developnent project funded by IFAD and the OPEC fund (5800 rnillion CFA francs) (1983-1988) which, bearing in mind Ehe type of activities planned and the resources being implemented, are effectively contributing to t.he development of the onchocerciasis-controlled areas. These projects are primarily aimed at improving agricult.ural production by supporting the comnunity education structures, by rnaking greater use of the inputs and by applying modern cultivation techniques. They are also involved in the strengthening of certain economic infrastructures (roads, shops) or social facilities such as cornrnunity water supply. For example, the Borgou rural development project has given a remarkable boost Eo cotton production and had a significant impact on the spread of animal traction. Cotton producEion in Borgou province has risen from 10 440 tons in year I of the project to 36 220 tons in year 3, i.e. 677 of national production. The increase in food crop production has been less marked on account of extremeLy unfavourable climat.ic condiEions.

Altogether these projects are helping to increase the income of the rural populaEion, as can be seen from the tables of agricultural production in the Progranrne area during the last three years (see Annexes I and 2).

2. Road infrasEructure projecEs

One of the main characE.erisEics or consE.raints of the areas at present covered by OCP in Benin is the fact that many places are virtually cut off from each other and from the outside world. This is accounted for partly by the size of AE.acora and Borgou provinces (72.22 of. the area of Benin) and partly by the facE that the rural inhabitants are extremely scattered. Under the 1983-1987 Plan a number of projects for the improvement of unEarred, roads, integrated with E.he rural development projects of the Ewo provinces, are being carried ouE. Since the road is a det.erminant of population, Ehe implementation of the various scheduled prograrmes for untarred roads (700 km) will promote Ehe marketing of agriculEural produce and the exploitacion of Ehe new land where onchocerciasis has recently been broughE under control. The results of the survey conducted by the Planning Cell in some districts of the trro provinces show that the main constraints to development in these areas are short.age of water and the inadequacy and bad state of the roads. JPC5.4A Page 5 The state of progress of road construction nork as et 31 December 1983 was ea follows:

Untarred roads Length Funding St.ate of progress (km) (December 1983)

At,acora province

Nat i t ingou-Boukomb6 43 AID Completed Boukomb6-Koronti'ire 13 AID Complet.ed Boukomb6-Manta 22 AID Completed Natitingou-Kouarfa 24 AID Completed Kouarfa-Kotopounga 18 AID Completed Toukoutouna-Peperkou L7 AID Completed Bor ibous i f a-Tokakal a1 ou 8 AID Completed Wansoukou-Dikibourni 10 AID Completed Pirni-Tchoumi-Tc houmi 16 UNCDF Completed Birni-Kouand6 46 UNCDF Completed Tchoumi-Tc h oumi-Perma 6 UNCDF Completed Tch oumi-Tch oumi-Anand ana 15 UNCDF Conop 1e Eed Tan6ka-Koko-Anandana 15 UNCDF Completed T an6ka-Koko-Tch a 1 ang a 13 UNCDF Completed Anandana-Tchalanga t7 UNCDF Completed Tangui6ta-Batia 42 EDF Completed Ti6 16-Mat6r i-Gouand6 39 EDF Completed Kouand6-Damouti 35 EDF 11 krn

Total 399 375 km

Borgou province

Bori-Sonoumon 19 AID Completed Bori-SErou 35 AID Completed Gando-ToumE 29.5 AID Completed Gu6n6-Karimama 45 AID Completed Bodj6cal i-Garou 22 AID Completed Angara-Saa-Kandi 33 AID Corupleted Angara-Fouay 16 AID Completed Fonougou-Kand6rou 23 AID Completed Gogounou-Bou1i 2l AID Completed Bagou-Sonsoro 32 AID Completed Bagou-Sori 19.5 AID Completed

Total 295 295 km

Despite the extent of the work carried out in recent years under Ehe Plan, the problem of roads remains quite worrying, particularly in Atacora province. Towns and villages in this province are cut off from each other and from the outside world during the rainy season, and this problem needs to be tackled urgently in order Eo increase the efficiency of the various activities being carried out in this area.

The technical and economic studies regarding the major routes, i.e. Dassa Eo Parakou, Savalou to Porga, and Parakou to Djougou, have now been completed. The t.arring of the Dassa-Parakou road could begin during 1985.

3. Village rrater suoolv oroiects As part of the International Drinking Water Supply and Sanitation Decade, Benin has drasn up an initial minimum programe of. 2400 weter points to be implemented in the various JPC5.4A Page 6 provinces of the country between 1981 and 1990. This programne provides for only one iacility (borehole or well) for each village assigned priority, whatever the size of its population above 500 inhabitants. In the northern provinces currently covered by OCP, Ehe problem of rural water supply is one of both quantity and quality. In these arees the majority of t.he EradiEional or modern wells are liab1e to dry up in the dry season. Accordingly, under Ehis ten-year Progrnnne two major village uat.er resource projects are being implemented in Atacora and Borgou provinces. These are the projects financed by the Council of Ehe Entente, the Central Fund for Economic Cooperation (CCCE), the French Fund for Aid and Cooperation (fAC) and the European Development Fund (EDF). The objectives of t,hese two projects are as follolrs: - to provide rural populations with a perruanent sater supply of satisfactory quantity and quality; - to secure the villagersr participation in constructing the facilities and in maintaining the handpumps ; - to train people at all levels, from Ehe village.to the Water Board in order to guarantee the success of the projecE and the maintenance of the facilities. The objective of the fiEntente projectt' for village water supplies is to sink 330 boreholes: 80 in Atacora province, 190 in Borgou province and 60 in Ou6m6 province. The objective of the project financed by EDF is to sink 305 boreholes, 190 of Ehem in the northern part of Atacora province.

The situation regarding implementaEion of these two projects in the OCP area can be surnmarized as follows:

Funding Facilities Cos E Tirle source per district

EDF village water Atacora Province supply project 4.5 million ECU EDF ToucouEouna 6 Kouand6 19 P6hunc o L7 Nat i t ingou 16 Boukomb6 8 Tangui6ta 6

Entente village I 600 million CFA FAC Borgou Province waEer supply project franc s cccE Benin Parakou 14 PETETE 34 NrDali 26 Nikki 39 Ka1a16 34 Bemb6rEkE 29 Sinend6 23

L99 JPC5.4A Page 7

Fund Facilities Cost ing Tirle source per district

Atacora Province

Copargo 11 Ouak6 19 Bassila 19 Djougou (rural and urban) 4L

Total 90

Besides the projects mentioned above, projects for sinking of artesian wells are being carried out in some villeges in the disCricts of S€gbana, Sinend€, BembdrEk}, Kouandd Bassila and Natitingou by the Dutch and German volunteer services. Ihe cost of t.hese prograrmes may be assessed at over 300 million CFA francs.

Moreover, a programme for 30 boreholes financed by UNICEF has jusE got under way in Sdgbana rural dist.rict, and another prograrune for 240 boreholes financed by CCCE could begin towards the end of 1984 in Gogounou, Kandi, Banikoara, Malanville and Karimama districts (Borgou province).

Once they have been completed Ehese various projects will undoubtedly produce a major impact on the rural populations concerned, but they will by no means cover the needs. Other projects need to be selected and carried out in order to reduce the effects of the drought, r"rhich is becoming increasingly persistent in these areas. 4. Health projects

In order to achieve the objectives set. under the national primary health care strategy, major efforts have been rnade both by the population and by the State to build up the health infrastructure (village health units, conmune health complexes and district health centres) and Eo equip these structures.

Priority has been given Eo the most isolaEed rural areas of Atacora and Borgou provinces. The experiment of constructing village health units (VHUts) during the three-year plan for 1978-1980 has continued in these two provinces, thanks partly to increased public awareness of the importance of health education and partly to financial assistance frm the Netherlands for training village health workers (VHws)and for equipping these unit.s. A VHU comprises a treatment room, a delivery room, a village pharmacy kit, a drinking-waEer point, and a collective latrine system.

The present status of the VHUs, as the first link in Ehe naEional health system in these two provinces, is as follows:

No. of VHUs District No. of VHWs t.rained in operation

Atacora Province

Djougou rural 12 48 Boukomb€ 10 40 Cob ly 10 40 Copargo t2 48 Mat6ri 9 36 JPC5.4A Page 8

No. of VHUs District No. VHWs trained in operation

Borgou Province

Tchaourou 7 28 BEmbErEkE 10 36 N'DaIi 3 t2 Banikoara 9 36

Total 82 324

In the cormnunes stress has been laid on the construction and fitting-out of commune health complexes (CHCs) in the rural areas. A CHC is a health unit in the chief locality of the commune, serving a population of between 5000 and 8000 inhabitants and consisting of a maEernity unit, a dispensary, a sales outlet of the National Pharmacy Office, a weIl and a sysEem of latrines.

The CHC provides the link between the VHU and the disE.rict health centre (DHC). Those constructed in recent years in the onchocerciasis-controlled areas rrere Primarily financed by the United Narions Capital Development Fund (UNCDF). The Present situation regarding implementation of this project, by district, is as follows:

District No. of CHCs Source of finance State of progress

Atacora Province

Toukout.ouna 1 UNCDF CompleEed Natit ingou I UNCDF In progress Cob 1y I UNCDF Conpleted Mat6ri 2 UNCDF Completed Tangui6 ta 1 UNCDF In progress K6rou 1 UNCDF In progress P6hunco 1 UNCDF In progress Bassila I UNCDF In progress Djougou rural 1 UNCDF In progress

Borgou Province

Parakou 1 UNCDF Comple ted BenbErEkE 2 UNCDF Comp le t ed Sinend6 1 UNCDF Completed Nikki I UNCDF Conple ted PETETE 1 UNCDF In progress Banikoara 1 UNCDF In progress S€gbana I UNCDF Completed Gogounou I UNCDF Completed Ka1a16 I UNCDF In progress

ToEaI 20

The total cosg of the 20 cournune health complexes is around 400 million CFA francs. JPC5.4A Pege 9 The situation regarding the construction of disErict health cent,res is as follows:

District Source of finance State of progress

Atacora Province

Kouand6 DHC FRG Cornpleted Bessila DHC FRG Completed Borgou Prqvince

Tchaourou DHC SwiEzerland Negotiations in Progress Banikoara DHC FRG Conpleted Malanville DHC FRG Negot,iations in Progre ss

A DHC is a rural hospital with a few beds, couprising: - a paediat,ric departnent - a surgery depart,menE with an obstetrics section - a Eaternity unit - a laboratory - a small radiology service

- a dental surgery and ENT department

- a wat,er-supply system - a set of latrines. To supplement this health infrastructure building programtre at all levels, the Peoplers Republic of Benin has implemenEed netionwide an expanded prograrmre on imnunization, a malaria control programtre and a basic environmental sanitation prograrune. These programnes illustrate the prioriEy given by Benin to preventive health activities over curative health activities in order to attain the social objective adopted by WHO: I'health for all by the year 2000. rr

5 Eclugalional projects

The situation regarding infrastruc.ture and equipment for basic education remains worrying. As a result of the increaee in the number of schoolchildren and the many new schools established in recent yeers, 601 of schools are housed in temporary buildings. The medium-term objective is to build pernanent structures to house 707 of the primary schools. 1rrq major school construction projects in rural areas, covering Ehe entire country, are being implemented, thanks partly to financial assistance from the UNCDF and the Nethertands and partly to contributions in kind and in manporrer from Ehe recipient populations.

The present situation regarding the implementation of these projects in Atacora and Borgou provinces is as follows: JPC5.4A Page 10

No. of schools built Loc at ion UNCDF project Netherlands project

Atacora Province

Bassila district 2 Boukomb6 district 1 : Cobly district 1 Djougou rural district 1 K6rou district 1 Mat6ri district 2 Natitingou district 1 P6hunco district 2 Ouak6 district ; Tangui6ta district 1 Toucountouna district Copargo district l 3

Borgou Province

Banikoara district 1 Benb6rEk} district I Gogounou district 1 Kalal6 district I ; Nikki district 1 3 Kandi district 1 Karimama district 1 7 Malanville district z 5 NrDsIi district I Tchaourou 1 3 Parakou district 2 PlrErE I ; S6gbana I 5

Total 28 46

These building projecEs have led to an improvement in the conditions of work of teachers and schoolchildren in these areas. As regards inEermediate, general, t,echnical and professional education, the National Development Plan provides for the construction and equipping of two polytechnic complexes at Natitingou and Parakou. One is funded by the African Development Fund, and the other by the European Development Fund, and construction could begin in the course of 1985. Moreover, negoiiations are under way with the WorId Bank for financing the construction of integreted teacher training colleges at the chief towns of Atacora and Borgou provinces. Finally, a funding agreement for an amount of 660 million CFA francs was signed in 1983 between Benin and the Islamic Development Bank for the construction and equipping of an agricultural college aE Natitingou in order to strengthen and intensify agricultural training in these provinces.

III. SPECIFIC ACTIVITIES FOR THE DEVELOPMENT OF THE ONCHNERCIASIS-CONTROLLED AREAS

1. Current status of implementation of the FAO/ IBRD nethodolosv In accordance with the methodology suggest.ed in 1975 by a joint World Bank/FAO mission for the rapid development of the onchocerciasis-controlled areas, the following four studies have now been completed and are available from the Oncho CelI: (1) invenEory of natural resources by remote sensing; JPC5.4A Page 11 (2) suitable crops for the soils of Atacora and Borgou; (3) demographic study of Atacora and Borgou; (4) socioeconomic study of the onchocerciasis-controlled areas.

These studies come within the first phase of this met,hodology, i.e. constitution of the data bank on the controlled areas. They have demonstrated the iruuenge agricultural potential of Atacora and Borgou provinces. In spite of the delay in carrying out this imporEant phase, the second phase concerned with the preparation of a l0-year development plan for the controlled areas can now be set in moEion in order to determine which areas and activities should be given priority. For the purpose of long-term planning, therefore, it is necessary to draw up t.his plan defining the priority areas for action, toget.her with an infrasEructure and water resources programme. The persistence of the drought and the high population growth rate (2.82 per annum) in these areas nake it necessary to seek and promote possible settlement areas that offer potent.iel for production, either naturally or afEer the improvement of certain river basins on behalf of the under-privileged populations. However, t.he current difficulties resulting from the lack of finance are threatening to delay this phase as weI1, thus jeopardizing the future of the FAO/IBRD methodology at the national level. To deal with this situation it is necessary for the sponsoring agencies of the Progranme Eo evaluate the implementation of this methodology in each country concerned in order to identify the main bottle-necks and to formulate recortrnendations backed up by appropriate financial support. This will pernit speedy utilization of the various studies carried out for the data bank, the cost of wtrich rnay be estimated at over 600 million CFA francs.

The second National Development, Plan assigns high priority to the developnent of t,he rural sector and the northern part of the countryr rrhere the agricultural potential is under-used. Better coordination of the activities Eo develop these areas, through the formulation of a l0-year plan, should make possible a substantial increase in agricultural and forestry production, t,hus helping t,o meet the basic needs of a fast-expanding population.

2. Identification and formulation of a pilot proiect for intesrated rural development Following the survey which the Cel1 responsible for the developmenE of the onchocerciasis-controlled areas organized in August 1982 in Cob1y, Mat.€ri, P6hunco and K6rou districts (Atacora province) and in Sinend6 and Sdgbana districEs (Borgou province) on the socioeconomic needs of those dist.ricts, a mission from the FAO Investment Centre visited Benin from 28 September to 27 Oct,ober 1983. Anong the purposes of this mission were the selection of the priority intervention zone from the six districts of Atacore and Borgou which had been surveyed and the preparation of pilot projects to be promoted in the zone selected.

2 .1 Results of the mission

2 1.1 The a oach

The mission fu1ly subscribed to the strategy of self-focused and self-maintained development as formulated in the second National Development Plan. Wtrat needs t.o be done, therefore, is to identify a project direcced at the problems and needs revealed by the survey and which can be carried out and administered by the local people. On account of the diversity of such problems, ic will have to be a horizontally integrat.ed project covering aIl areas and based on the participation of the population concerned.

2,1.2 Selection of a zone

The Ce11 reeponsible for planning the development of the onchocerciasis-cont.rolled arees grouped the six districts in three homogeneous zones, from which the mission should select one for the pilot action (see map). JPC5.4A Page 12 For the piloc experiment Ehe mission ruled out the urest zone (Cobly and Mat6ri) and the east zone (Sfgbana), which seemed too specific. On the other hand, the mission was particularly ittracted by the central zone (K6rou, P6hunco and Sinend€) on account of its geographical situation and acceptable poEential. In spite of Lhese important advantages' the ,ir"io" had reservat.ions about covering this entire cenEral zone by the pilot project. The desire to keep the pilot experiment smalI and avoid spreading resources too thinly, together with financial consEraint.s, led the mission to opt for a single district within this zone, namely P6hunco district. I Accordingly the mission prepared an integrated rural development Project for Pdhunco, a with an area of 1900 kmz and a population of about 25 000. district I 2.L.3 The Pilot proiect 2.1.3.1 Objectives The objectives of the pilot projecE for integrated rural development are as follows;

- to eliminate Ehe main bottle-necks holding up development of the zone; - to speed up the exploitation of the onchocerciasis-controlled areas; - to curb the drift from the land which is affecting this zone, by providing beEter living conditions, spare-time activities and work opportuniEies; - to open up the isolated villages by improving the road infrastructure; - to improve drinking-wager supplies by providing new wells and boreholes and seEting uP a PumP management and repair system; - to improve health and education faciliEies for Ehe rural cournunities; - to provide incentives for rural handicrafts; - to proEote, in the medium or long term, voluntary emigration by people from overpopulated regions towards this underpopulaEed and fertile region.

2.L.3.2 Components of the Project The piloE project, designed Eo supplement the activities in progress PresenEed above, consists of several ParEs:

(a) Improv ements of untarred roads

About 100 km of intarred roads are to be resurfaced; maintenance will be in Ehe hands of the local population, organized in squads under the supervision of experts from the Public Works Department.

(b) WaEer supplies progress A campaign to dig 34 wells will be undert.aken to supplement. Ehe activities in to improve^prriti" watlr supply, in order to attain in this zone the national objective of one well for every 500 inhabitanEs.

(c) rmprovement of pasture land promore the The prograrrne of reservoirs for livestock will be supported by activities Eo development of natural or irrigated Pasture land'

(d) Improvement of school infrastructure It is planned to provide classrooms with furniture and t.eaching equipment and to build new schools or dwellinls for teachers where such facilities are lacking' JPC 5 .4A Page 13 (e) Improvement of health infrastructure

In the health field emphasis will be placed on the strengthening of the cornmune and village health units (CHCs and VHUs); at the same time the district health centre will be provided with an ambulance for taking patients to the tordn of Kouand€ 30 km away.

(f) Construction of the P6hunco market Since P6hunco is a major crossroads, it is planned to strengthen the regional role of its market by improving the facilities. (e ) Trainins of local craftsmen The construction and maintenance of the various items of infrastructure provided for in the project call for the ski11s of specialist craftsmen; the project will therefore attend to the training of those who are already plying Eheir trade on the spot. (h) Provision of credits Three types of credit are provided for under the project: - credits to craftsmen, whether unionized or not; - credits for improvement of human setElements; - credits for diversification of agriculture, granted to t.he RevoluEionary Cooperative Groups (GRVC) and to individual farmers who have displayed initiative. (i) Leisure activities

It is intended to construct playgrounds in each commune and to arrange regular showings of educational fiIms. 2.1.3.3 Cost of the project

The cost of the project is estimated aE US$ 2.5 million. Financing is being negotiated with UNDP, FAO and UNCDF. 2.1.3.4 Duration This projecE, which is to last four years, could begin in 1985. During its operation the Ce11 responsible for the development of the onchocerciasis-controlled areas should follow this experiment, learning lessons from it in order to work out an appropriate mechod for the development of all the onchocerciasis-controlled areas. The Oncho Ce11 will need Eechnical and financial support from the sponsoring agencies and donor countries so that it can strengthen its capability for intervention in the zones concerned.

3. Migratory movements

The Ce11 responsible for the development of the onchocerciasis-controlled areas asked Professor O. J. Igue, of Benin National University to carry out a study on t'population migrations in northern Benin and their socioeconomic impact'r. The conclusions of this study show the extent and causes of migratory movements in Atacora and Borgou provinces. These movements affect about L0-I5Z of the population. The study also revealed:

( 1) the variety of internal movemenrs; (2) the predominance of irmnigration from Nigeria over inunigration from oEher countries of the subregion; (3) the special involvement of Atacora Province in this process. JPC 5 .4A PaEe 14 These various migraEion movements affect virt.ually all sociocultural grouPs. GeneralIy speaking, however, the Fulani (Peulh) migrate only for the seasonal changing of pastures ,r.,1"r" ih"y r." forced to do so by natural disasters such as drought, rinderpest, etc. In such cases the entire encampment moves to a new location, sometimes permanently.

The mosE affected groups are first. of all Ehe Betarmnaribe (singular Otamari) of the Atacora massif, closely followed by the Lokpa and Yowa of the rural districts of Ouake and Bariba and NagoE. These last three grouPs are more affected Copargo, then by the Xltotoli, t by foreign emigration. This remark is all the more ingeresEing as it indicates which ethnic grouPs may be motivated to take part in experiments in agricultural settlement. By comparison with the past it may be stated that (ipart from the major period of Ghanian emigration) population movements are on the increase. In 1974, for example, only 1689 people had left Bassila disCrict voluntarily. It is now estimated that some I0 742 people have left the disErict. This gives in"rea"e between 1974 and 1982 of 9053, i.e. 5362 in a period of eight years. Even If this"n figure based on a simpte estimaEe appears disputable, the count made of people expelled from Nigeria showed that more people (2885) were rePatriated to Bassila than to any other district in the country excepE So-Ava in Aclantic Province. Comparison of these 2885 people wirh the 1689 emigrants in 1974 shows that emigration had at any rate definitely inc reased .

However, it needs to be pointed out that Bassila district is particularly affected by emigration to Nigeria. The involvement of other local government areas is much 1ower, although unfortunat.ely the lack of information Prevents comparisons. While emigration to Nigeria has increased (at least until the expulsions of 1983), the situaEion is quite different as regards the efforts at agricultural settlemenE. None of Ehe experiments t;ied have met with much success. A number of problems arose which merit thorough consideration: ttfragilet' FirsE of all the areas selecEed for the set.Element experiment are areas, which account for the very marked instability of the indigenous populations. Indeed, it is worth asking how strangers can be expected Eo live comfortably in an environment thaE the local people are Erying to escape from. There must be some severe drawbacks that were not properly realized at the ouEset. For example, Bassila district, which was given priority in this Programne, has three major drawbacks: - the disEance of the seEtlers from their area of origin, together with the remoteness of the districE from the rnain political decision-making cenEres of che region; - rhe hist.oric fragility that has always militated against ethnic cohesion and led to a strong feeling of loneliness and abandonment; - the strong hold of onchocerciasis in combination with underpopulation and Ehe large area of forest.

Besides the environmenEal difficulties, failure to provide material and moral back-up for rhis experiment hras an obstacle to success. Whatever the problems raised by the drift away from the rural areas of northern Benin, migrations always promote better mixing of populations, producing very deep feelings of human brotherhood and tolerance. As a result of these population movements the various sociocultural groups in the north have achieved a certain degree of ethnic integraEion, which I may encourage them to consider spontaneous populaEion Eransfers from one region to another. However, such transfers can only produce good results if Ehey are to areas with good communications and basic infrastrucEure so that seE.tlers can carry out their economic activities more efficiently and can feel fully integraEed both with the host environment and with the outside world. JPC5.4A Page 15 4. Village agricultural training project

While on the subject of activities promoted by the Oncho Cell reference should be made to the .rillqge trai (Atacora Province). On the basis of the"gricrr1t.rr.1 survey carried out by the Oncho Cell in August 1982, a mission from Euro ACTION ACORD selected this project which has the following objectives: to improve agricultural production so as to help the rural population of Mat6ri achieve long-term self-sufficiency in food; to give priority to village orgaaizaLions such as the cooperative revolutionary groups and the 4-D clubs in the supply of agricultural equipment and inpuEs;

- to encourage ful1 participation by women in the rural development process, with emphasis on training and the granting of loans; - to help reduce the drift from the land, etc.

This project, which is funded by the nongovernmental organization Euro ACTION ACORD up to a total amount of 110 million CFA francs , is now in progress. According to the beneficiary populations and the authorities of Mat6ri district this project will make it possible to slow down considerably the drift from the land and to improve productivity.

CONCLUSION

Substantial progress has been made in the developmenc of Atacora and Borgou provinces during the last two years. As regards agricultural production, especially food crops, greater progress could have been made but for the persistence and worsening of the drought in the northern part of the country. The various activities being carried out in these provinces need to be continued and strengthened. Agricultural production could increase rapidly if the present bottle-necks (poor state of the roads, shortage of water, drift from the land, unreliable c1imat.e, inadequate health infrastructure) are properly understood and are dealt with in a rational and integrat.ed manner.

Accordingly, the present action programtres need t.o be supplemented by other programmes directed at these baeic medium- and long-term problems. It is irnportant to continue to analyse and solve these problems as a prerequisite for any genuine development of these areas and to draw up policies and action prograrmes.

A well-conducted policy could increase the efficiency of the sectoral projects under way and turn these onchocerciasis-controlled areas (two-thirds of the countryts area) into areas of the future for national development. This approach by the CelL, responsible for the development of the onchocerciasis- controlled areas, needs to be supported both by the sponsoring agencies of OCP and by the financial backers already active in these areas. JPC5. 4A page 1 6

ANNEX I

!d 6-)r -tcicoiOrtl\OCOON\O ccl\or OJ\ -r\OHtrlGlCn tn\tr 'd@ >l \O \O

co-, o .il^ (\Oa\OO\O t'\ $ N o\ uo o\rrooco ca \o otr NNoo-rdC) oao\ -t a CN ,o z co E, {J OrO\OCOCit.l N'{H N o o\ Ov :rn\o co a lr N A td I U) o td o\ rI] Nrro\No r\O\O fr (!^ OcO(Y)F\@Gl \rr\o o(! @ Or O r i O\ 0o\o\n o Fr ! 11 E .J-rN tr F r@O\\ONC') IA $(.)sdi o. 0) Fl lr E] E o\ t'\ d (') co co rn co -t o\ $ H !.! t^coo-ro@coo\e'f, o\ \O6\Or\rlntnO\\OO fr .d@ (! ttl > .ti FT\ o 0) ld (J (') z @ o H o\ .d \OO(v)(')dC!O oo'/\ uo \O t O\ CO l-\ (r) d c!oN o otr O\ONca-r#O (Yr(f|O lr & c! JO a. o{ @ !! d\O(f)Nrl€d) r.l.r -) o\ ov oNri o ti GT o(a & A oco (Jo NO\ ts icc)(\s\ooo \oo\o q $^ Ca tn \, \O CO c{ -t N\f\o 7 o(! i-t\OrOC.)@i (f)oN ! H Ctr .1l d &, !q Fr N o .1 @ o qi! o\ 't^ Otnr-N/OC! oon\o (-) L)O +cOOc'\\OC')\O roo tr H OF rn-@tnO\OC') @\o\o oo e, l]o. ,o (.) c.) ! c.) (J @ !+J 6t'\No-t\oN o\ Ov N\Ord z tl N (J!Cl It A co o za rd i !@ & (!^ ul\ONO\rrd O\COt UO\ F o(E N6r)Oir-t-t 6lNO

A.IiNEX II

-+ @ OD\OrCC-) tntntn-)@NO-t -fdcaorOciN I L^6N6-tN\O CO o\ o o ca ! @ N-ti-t-+@(ae o\ rnoN\ooo-f,Lr\\o NoOr\O\OF\dd I c.l 6C,@-f,\tNC.)-$ .i co NNfis.lN ! i o

o u N tJ) i (..1 6 r/\ \O z o. co ('] (\o\rnNO\r\,\t O -t o dO\Nr^$S]\O-, U) I st\oc)(f)o\c.l(')o lrl @ 6ti6dH U) o\ d frl IrI & :E H o\, o\ oooooooo Fr o$oooooo a I rnrno(Y]6ortca (a J co o\ frl F d d CN 0) lrl @ o b0 o\ r/1 C)(?)ooor^o x \+O\\ONiO\Or- .J I \O CO .f, (vt O rr\ \O \t rd N o () ! co cc)rrl d ! z o\ A. H o) o d o0 Or N lr 6 o o\ \OCY)@N\O-f,O\N (Jo O\O\C!l'-O(Y)H-t /, I nNr)(']O(n\OO u co co rt\ ln o\ z A H o z $ c) o co Gtdoc^lrtri\rrn o H o\ OrO\NNr6-t c.) 0, F o\ o @ d (7) @ o\ d (.) A O I o o\@o\ri6-tr^ .Jco $ o @ -ta.tdd6{ ! & o\ Or & J tl qro d $ @ rN(nrNNO\O c.l o\ r0\6OO{No.lc'l F= o\cil'\\to\@r-t c) J I Ll o N O\ca@N-?i.f,\O N D (J 0) @ (f) N a OJ c H tr o\ 0) (,& O o N 6 c'rr^€@o\o(7)o \o \O(]\t-rre.l-f,6 (,) o, icaorr\@ro\o. \o I rd@O\(ninO\ r @ coNi o\ o oc cr :o d, Eoc a>EC q) l'l .cOo$tro o (.) ooNocooJu o tr lr ./ E $ o u O ! o$(E0JCE.d!o o o Fr a JPC5.4A Page 19 Annex II

The arees cultivated with each crop, except for groundnuts, have increased steadily. AlEhough Ehe mean annual rate of increase in area during the period was 17.4O7., tl:.e figure for sorghum was L5.872 wtrile the figure for cotton was 58.732.

As regards quality, the marked improvement in yields between 1981-1982 and 1982-1983 could not be mainEained during the 1983-1984 season on account of the Iow rainfal1. Ihere was not enough rainfall anywhere to ensure proper growth of the plants.

I a

REPUBLIQUE POPULAIRE OU BENIN PROVINCES : ATACORA - BORGOU ZONES ONCHO

, PR oJETS D NFRAST R U CT URES t+ N G E R I t t x t SAN TA R E S ET D HYD R AU L U E I* + o I t x + r + B rt i V LLA G Eo SE { + + + + t + + + t + + t t + I + + t t + t t t + t K AR MAMA + HEAL T H I N F R AS T R U CT U R E AN D + ,Y + t + + i t V L LAGE WAT E R R E S oU R C E S P R oJ E CT tr i , I a I t I + + { + , i tr I t I I + t MALANVI LLE I + I I V + I + + ) / +r-T T \..\. o I ( ,: ,I , I \r I , { x \ * ,l \ -+ ?, t +rr(+r r'-\..-..,' + \ t i t. , t .Y ri x + li x at \. ^a \^ + \ x + I \ 4 I *r-I 1* + o I t I t +r EANIKOARA I x o + .L K ANDI^ I +i \t t t O x ,t ".' ry/,qtt' + ]'*ffiM* /. + r + x ,+ x I x '^5r t t + * E,GBA N A i'. ( ()' /,'< t + i. / " + + t_ * rl OU ir t ococouN st, 4 t,/,| ) rli i @ A trt 'tr,,/tt t (D I La- ) .+,,' TA I t + I * ,,/, it',. + ,,i/, ,+ I I + f, o '*'*9* tr +' 1', TOUF o UNTO U NA- I + ,L 'f +l I/ xouAND E i,r * , t, I' .L @ ili o + ,* o T : ra t, o + tlt, NATIT'tNGOti lr t; \ K A L z--. I I e 4 p-8--l . o ,i r B EM EEREKE o \. _)l @ f { t o ,'1.,^1, I @ + t **** I '.1 + @ ,L + *t- A N IKKI I +,.{- t -'( I t i + \ .- -- I o + KoPaRc,l I N OALI\. + + ( I ,*l* U O I o ! + i, Orih.* + 1 ..-.-..- E I I (. @ + 6rooo, ' -\.. + tl q' o t'r p'\ ! ) + iouAKE I A f, t\ t I +'. T *,* ,a I I t o o + 1\ t_ + , -,-../ \.._ _+ + 1- (. + \.i pa t T +

I I x I I + + x t t t.r.r+ I -'''-a *tt (9 + BASSILA + + to + .t + E, t .L + *.+rI t (, O + t-- TCHAO uRou + i + @ + I -'-l + f + (- -./' + + + lr, + + + + o t \ t l + I + + + + + + -':--.J , (9 * * * + + + + + + z ou LEGENDE F

Lrhrla d. Frontrira _ - ++++ do P r ovlnca

da Dr strrct Cho, lrau d. Provlhca T dc Dislrrcl o z Foao Ca d. P u rtr

C.nrrG Communot dr Sonti( Trrmtni .L CCS ) T' ilililI non larmtna e Zona Pi lota z6N W zm o C.nrr. d. Sontj d. Dtstnct (CSD) T.rmlna Ltfl HO> ll ll ll .n coun dr n6goaorron + I