Christiane Loquai ECDPM/Institute for Development Studies, University of Bochum
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Decentralisation and poverty reduction in a ‚non-performing‘ state:
The case of the Republic of Guinea
Christiane Loquai ECDPM/Institute for Development Studies, University of Bochum
OECD/DAC Workshop on Decentralisation and Poverty Reduction Paris, 29-30 September 2004
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Contents
• Introduction
• Decentralisation and poverty reduction
• The role of external assistance
• Perceptions on impacts of decentralisation
• What scope for action?
• Conclusions and outlook
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The relevance of the Guinean case
• National decentralisation programme in the context of liberalisation and transition to democracy (1986)
• Decentralisation presented as a central pillar of national poverty reduction strategy (HDR, PRSP, Memorandum 2004)
• Decentralisation process highly dependent on external support (ODA, NGOs, emigrants)
• Shows dilemmas of support to decentralisation in a ‘non-performing’ state.
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Some facts about the Republic of Guinea
Political system:
semi-presidential Republic, de-
centralised unitary state, ‘virtual
democracy’
Pop.: 9.2 mio (est. 2004)
Ethnic groups: 40% Peul, 30% Malinké, 20% Soussou, 10% smaller groups
Urbanisation: 27.9% (2001)
Nat. resources: water, bauxite, gold, diamonds, water etc.
GDP per cap.: 430 US$ (2002)2100 PPP US$ (2001)
HDI ranking: 160/177(2002)
Source: World Fact Book 2004
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Political institutions and culture marked by historical experiences
• 1958 ‘le non’ and independence from France
• 26 years of dictatorship and relative isolation under Sékou Touré (Socialist Republic)
• 1984 military coup: military government under the Lansana Conté promises transition to democracy
• 1993 Conté wins first multi-party presidential election
…..
• 2001 Change of constitution referendum: Conté President for life?
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• Introduction
• Decentralisation and poverty reduction
• The role of external assistance
• Perceptions on impacts of decentralisation
• What scope for action?
• Conclusions and perspectives
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The ‚poverty-paradox‘
• Guinea has abundant natural resources, but remains one of the poorest countries in the World
• HDI-ranking 1992-1994: lowest of the World, 2003: 157/173
• 40.3% of the population live in ‘absolute’ poverty (1995 household survey)
• Guinea belongs to the category of HIPICs
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The national decentralisaton programme
• 1985 discours programme
• 1986 reform of territorial administration
• 1988-92 decentralisation/devolution:
– 303 Rural development communities
– 33 + 5 urban communes
– City of Conakry (spec. status)
• 1990 democratic constitution
• 1991, 1995, 2000 municipal elections
• 2000 efforts of fiscal decentralisation?
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Urban commune(33+5)
CRD (303)
Collectivités locales(‘local governments’)
Regional decentra-lisation committee
Regional dev.committee’
MADT
Prefectoral dev. committee
Administrativecouncil
Planning mechanisms(concertation, coordination)
Governor (7)
Prefecture (33)Dec. service providers(health, educ. Rural devetc.)
Su-prefect (302)
Non
-ope
ratio
nal
tutelle
tutelle
Territorial Administration and Local Government
Source: based on UNCDF 1999
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Neighbourhood level
District level
Urban communes CRDs
Municipal council
Mayor
Secretary general
Community council
CRDPresident
Community sec.
District councils
Administration
Neigh. councils:
Administration
Local government before the constitutional referendum
Quartiers: urban electorate Villages: rural electorate
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Articulation of linkages
• Discours programme (1985): improvement of living conditions
• Municipalities and CRDs received broad for ‘self-administration, socio-economic development and local infrastructure
• National Human development reports
• “Guinée vision 2010”
• Formulation (and implementation) of the PRSP
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• Introduction
• Decentralisation and poverty reduction
• The role of external assistance
• Perceptions on impacts of decentralisation
• What scope for action?
• Conclusions and perspectives
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The role of external assistance
• Important source of finance, technical advice and expertise
• A window of opportunity
• Diversity of approaches, views and channels of assistance
• Since mid-nineties: support for integrated municipal development and capacity building for decentralised service provisioning
– Country-wide efforts to strengthen local governance and decentralised service providers
– Testing and replication of institutional innovations for participatory, more inclusive and accountable local governance
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• Conceptualisation and documentation of linkages
between support to decentralisation and poverty reduction
• Mapping of poverty situation at the local level
• Pro-poor performance targets/conditionalities
• Increased exchange of experience and co-ordination in the context of
– PRSP-formulation– the new ACP-EU partnership agreement – The context of crisis
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• Introduction
• Decentralisation and poverty reduction
• The role of external assistance
• Perceptions on impacts of decentralisation
• What scope for action?
• Conclusions and perspectives
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Impacts of decentralisation and related external support
How to assess effects and impacts ?
• Perceptions on impacts vary in line with concepts, perspectives and expectations
• Interest in evaluation of impacts on poverty is very recent
• Reliability and relevance of data?
• Hesitations to criticise assistance when it arrives at the local level
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Positive effects and impacts
• Institutional innovations
• Changes of institutional landscape
– ‘Liberation’ of local initiative
– Emergence of ‘civil society’ and private sector at the local level
• Experiences with participatory local governance and self-administration
• Mobilisation of local resources and decentralisation of aid
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Positive effects and impacts (cont.)
• Improvement of access to basic socio-economic infrastructure and services
• Resistance against re-centralisation and demand for good (local) governance
Challenges
• Problems identified in the 1990s largely remain
• Reactionary tendencies and ‘atmosphère de fin règne’
• Worsening political, economic and social crisis
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• Introduction
• Decentralisation and poverty reduction
• The role of external assistance
• Perceptions on impacts of decentralisation
• What scope for action?
• Conclusions and outlook
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• Return to authoritarian role: the example of the 2003 presidential elections
• Increasing corruption, insecurity and economic decay
• Efforts to reverse decentralisation?
• Success of new generation of programmes in support of municipal development and local governance
What scope for action?
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Neighbourhood level
District level
Urban communesCRDs
Municipal council
Mayor
Sec. general
Community council
CRDPresident
Community sec.
District councils
Administration
Neigh. councils:
Administration
Local government after the constitutional referendum of 2001
Quartiers: urban electorate Villages: rural electorate
Prefect
votevotenomination
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Consequences of the change of constitution
• Confusion on legal framework and institutional consequences
• Resistance against nominations of local councillors in rural areas
• Erosion of trust
• Doubts on effectiveness and sustainability of support to decentralisation and local governance
• Political dialogue and suspension of aid
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Menu of options
National level
• Coordinate political dialogue• Harmonize conditionalities • Grant performance based support?
Sub-national/local level
• Coordinate and exchange experiences • Decentralise project management structures• Allow for flexible and simple project design • Strengthen systems of checks and balances• Communicate on consequences of political dialogue to
local stakeholders!
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• Introduction
• Decentralisation and poverty reduction
• The role of external assistance
• Perceptions on impacts of decentralisation
• What scope for action?
• Conclusions and outlook
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Conclusions and outlook
• There is evidence on positive effects and impacts of support to decentralisation especially in rural areas
• Project design, institutional set-up and experience of human resources are important factors of pro-poor outcome
• Need for a more realistic risk assessment and time for testing approaches
• Continue to provide assistance for local governance/partnerships