ENDA GRAFIUSAID/SENEGAL'
TECHNICAL ASSISTANCE PROGRAM
for
LOCAL GOVERNMENTS
INTERIM FINDINGS ON IMPACTS
(vrv-. I 1000 )
Introduction
This report presents the preliminary data on the impacts ofthe Enda GraflUSAID one￾year Technical Assistance Program for local governments. This program was justified by
the fact that. nearly of years after the beginning ofthe implementation of
"Regionalization"tthe final phase ofthe Decentralization process), one still notes a lack
of knowledge ofthe relevant texts, conflicts of competencies, and very limited popular
participation.
The objectives set for this policy are therefore far from being achieved, namely effective
local democracy in terms of good governance, active and effective exercise of citizens'
rights and duties. and popular participation in the management oflocal affairs.
Therefore. the activities developed under this program concern Decentralization texts of
laws and related laws (national domain, natural resource management, etc.), the
management oflocal institutions (institution building, management skills, lobbying,
leadership. gender and development. etc.).
Training in social literacy (exchanges, communication, basic management skills, reading,
writing, etc.). plmming (research and survey skills), project management (management
and monitoring) is also included.
The activities developed in 10 local governments concerning 6 CDLs (local development
committees) for phase one. have contributed to increasing the capacities oflocal actors in
the local communities concerned, with clear and real impacts as outlined below.
Data collection was conducted on the basis offindings and interviews by the ENDA
monitoring team and field staff(literacy supervisors and trainers, local monitoring
groups).
The data contained in this report are interim ones and only highlights manifest elements
not exclusively related to the program indicators and results monitoring plan.
This includes the impact oftraining activities in Decentralization and land laws,
management of organizations, research and planning skills and social literacy.
A sociological and statistical study will start at the beginning ofNovember in order to
determine the specific proportions ofresults and indicators.
II Decentralization and Land Laws
The activities developed via seminars in the first 6 CDLs ofthe first year have allowed to
make significant progress in the following areas:
1) Local democrac)' and good governance
Public Izearing ofmayors Oil their management activities
In most localities targeted in the initial phase ofthe program (6 CDLs and 10 local
governments) there used to be no relations between the local leaders and communities.
The majority ofthe population knew nothing about the activities oftheir communes, the
contents oftheir budgets. the management oflands and the operations ofthe communes,
etc.
Of all these issues the communities only had a superficial and in fact negative vision
having never felt concemed about the management of public affairs.
The seminars conducted on the Decentralization texts and land legislation provided
communities forums to express their opinions on local government management in
presence of mayors and councilors who also took these opportunities to explain their
management activities and results.
The seminars actually offered the citizens who had never communicated with their
mayors or rural community presidents an opportunity to express their opinions on the
management of the communes and rural communities.
2) Improved knowledge and implementation oftexts
The seminars contributed to the edification of local actors on such concepts as
Decentralization. Regionalization, Local Governments, Municipal and Rural Councils, to
sensitizing them on the importance ofthese concepts and clarifying the respective roles
ofthe different actors involved.
OCB leaders are /lOW attending council meetings
The issue ofrelations between citizens and municipal councilors was raised during the
seminars because council meetings used to be held behind closed doors although the code
clearly stipulates that such meetings should be public unless otherwise decided.
This gave OCB representatives and even some municipal councilors an opportunity to
inform members and citizens that they could thenceforth attend such meetings. (Ref:
Increased popular participation in the management of local affaires, for example in
the localities of Diamaguene, Dioffior. Mont Rolland, Guediawaye where CBO leaders
now attend council meetings).
As people learnt during the seminars that they were allowed to attend municipal council
meetings, one municipal councilor in Diamaguene Sicap Mbao revealed that one observer
even participated in the vote once, which aroused heated exchanges between local leaders
and CBO members.
Then the relevant provisions of the Local Government Code were cited to calm down the
participants. These provisions stipulate that municipal council meetings are open to the
public except for some cases specified in the Code, and that attending members ofthe
public are not entitled to either speak, vote or express any opinion or feeling about any
expressed positions.
Actors are now sellsitizell against tax evasion
The raising ofthe issue ofsources ofrevenue for the commune provided an opportunity
to sensitize participants to the important oftimely payment oftaxes.
In this context. the question of whether a municipal councilor owning a stall in the market
should pay market taxes or not was also clarified. Indeed, like any citizen, he or she must
pay any duties and taxes imposed on citizens.
Furthermore, the issue ofthe mechanisms of budget adoption and implementation was
clearly explained to the population who strongly criticized the mayors' attitude in
implementing budgets. most ofthem saying that mayors made often unnecessary
expenditures without any control.
The truth is that a budget represents an assessment ofreceipts and expenditures and its
adoption does 'not mean that money is readily available. Ta.xes must be recovered to
allow the commune to obtain the means required to meet its obligations. Participants
were therefore informed and sensitized on the importance oftimely payment oftaxes.
Local leaders are assimilatillg tlte te.xts better 1l0W
The seminars have allowed municipal councilors to have a vision and better
understanding ofthe procedures of adoption of decisions because it is the ordinary voting
system (by hand raise and count) that was used in the past, instead ofthe public secret
ballot, which makes more sense.
The seminars were also very instructive to municipal councilors who learnt that district
(commune d'arrondissement) councilors could discuss and send issues in writing to the
town mayor on issues of interest to the district council. They also learnt that they must be
consulted on certain matters. for which the town is responsible, but are entirely or partly
implemented within the district limits, as provided in the Local Government Code, in
order that dissolution ofthe city municipal council results in that ofthe district.
The issue ofthe nomination ofthe Municipal Secretary raised by the population of
Diamaguene and Guinaw Rail, which used to arouse heated discussions, was eventually
resolved during the seminar when the related Decree was fully read and clearly
explained, allowing each and every one to assimilate its provisions.
Many other issues were raised during the seminars including the concept ofCommune
which used to be wrongly defined with a lot ofpeople alleging that it had been created by
a bill or draft bill.
Fortunately. clarifications were provided that the Commune had been created by Decree,
including a law establishing its operating and dissolution rules.
As for the operating mechanisms ofthe commune bodies, the councilors were not able to
determine the exact number of ordinary meetings that the municipal council should hold
annually although it is also supposed to convene an extraordinary sessions.
Clear explanations were provided concerning the mandatory three-clear-day timeframe
before holding municipal council meetings, unless there is an emergency when it
becomes 24 hours. and concerning the procedure to follow to oblige a mayor to convene
a municipal council ordinary meeting.
The issue ofthe resignation ofa municipal councilor and that oftheir dismissal by the
mayor, as well as other related issues were also addressed.
It was clarified that although councilors can resign, they can also be dismissed. For
example, if and when they miss three consecutive meetings with no legitimate reasons or
refuse to accomplish a function provided by laws and regulations.
Concerning the quorum issue. the problem lies at the level ofmunicipal councils, relative
to the counting of letters of attorney.
As a matter of fact. only physical presence is counted to determine quorum, the letter of
attorney being used only at the time of voting. Also, a municipal councilor may hold no
more than one certified letter of attorney.
3) Purchase and sale of land
During discussions at the different seminars, a very original land purchase and sale
practice within the territory ofthe communes was illustrated.
Less abuse 011 laml purchases
In Guinaw Rail. the different parties used to merely sign contracts that were afterwards
submitted to the commune police station for certification.
This illegal practice not only left out the municipal authority (the mayor) but also the
government land and urban planning service which have competence to review and
approve any land purchase and sale transactions.
According to the mayor of Guinaw Rail and some local actors, these practices tend to
disappear after the training sessions.
In Rufisque. one notes numerous conflicts over land ownership mostly due to traditional
succession modes.
Following the seminars. some twenty cases were recorded and addressed with the help of
consultants. In fact. this has resulted in the planned forthcoming creation of a legal
assistance office to help people in conflict situations related to land ownership.
In Diamaguime. the problems raised were mainly related to expropriation for reasons of
public interest and to lack of understanding ofthe concepts ofNational Domain and State
Domain.
In this commune. many conflicts have opposed the municipality with third parties (most
ofthem traders) over land ownership.
Thanks to the light shed by the seminar, many citizens have now developed strategies to
regularize their land ownership (acquisition ofland title, occupation pennit, etc.).
The seminar has also allowed to re-activate the process ofrestructuring and developing
the Taif 1. 2. 3 and Leona neighborhoods.
In Guediawaye. problems revolved around the lack oftides to lands occupied and
previously acquired by means ofsale acts. This issue aroused heated discussions with
accusations between citizens and local leaders.
The clarifications provided during the seminar contributed to curbing the wave of
suspicions and accusations with the announcement that the government intends to take
appropriate social action under its poverty reduction effort. A firm selected to realize
developments in some localities is working on this. The deputy mayor has given
assurances that no landholder's interest would be harmed.
Popular participatioll ill lalUlmanagement
In Dioffior. a verbal agreement used to suffice to execute land sales. After the
community received training in land laws, this practice has changed to be in line with the
law.
There is also a notable change in the allocation ofland, which used to be done in anarchy
and without the participation ofthe community. A land allocation committee is now in
place, and comprises all segments ofthe community and representatives ofthe commune
and government services at the local level. This committee is operating and has already
allocated land plots. The names ofrecipients were posted for public knowledge.
Fewer conjlicts hetween farmers and herders
In Mont Rolland. a conflict between fanners and herders over land is about to be
resolved.
Following the seminar, a crisis management committee chaired by the Prefer (leading
representative of the central government) and including different government technical
services (agriculture and livestock) was set up. Meetings were organized between the
protagonists and no more conflicts have been recorded so far.
III training
Social literacy training l:enters are above all forums for exchanges and increased access
to good infornlation for the direct beneficiaries who are currently 1,500 in number
including over 981X) \Yomen.
There was a shift fr0111 one-group classes to multi-group ones thus allowing the women to
exchange experiences.
It was considered that the mere ability to read and write was not an end in itself and could
not produce individual and/or societal change.
Therefore the social literacy training program that we initiated was first and foremost a
framework for mutual learning in as many diverse areas as citizenship, local democracy,
good governance. institutional management, in addition to funding to support income￾generating activities.
Improved managemellt skillsfor women
The acquisition of reading and writing skills has allowed beneficiaries in our 50 currently
operating classes to better manage their activities, as they are now able to use calculators
as well as management books.
These beneficiaries are now able to manage their own activities (keeping records of
household expenditures. family ceremonies and other social gatherings, informal savings
and credit unions (tol1/;nes). etc. In Rufisque, women traders have indicated that, thanks
to the training they had received, they no longer lose their goods as before because they
know how to identify them by writing their names on them and noting the license
numbers ofthe vehicles they use.
Increased access to good information
The women interviewed have stated that when they now walk past an announcement
(posters, streamers. etc.) they try to understand the information and take advantage ofit,
something that they were not able to do before.
Also, thanks to the discussion sessions led by the literacy trainers, the number of malaria
cases have considerably declined this year as the women fully understand malaria
prevention and treatment methods.
Social literacy training sessions have also allowed for the management of many cases of
sexually transmitted infections.
The training provided by the center of household maids in Rufisque has allowed a woman
who had long and unknowingly been suffering from blocked Fallopian tubes resulting in
her not bearing a child for about ten years, to find out and start having the appropriate
treatment.
There are many examples of women who were able to present problems that they
managed to resolve thanks to the information provided by peers or trainers.
Increased illcome-gellemtillg activitiesfor women
Revolving credit funds in the amount ofCFA 12, 500,000 were used to support the social
training program. and allowed about one thousand women to develop income-generating
activities.
In Diarnaguene and Rutisque. about 50 parents have indicated that the funds had enabled
them to develop activities which generated income that was used to enroll their children
and buy them school supplies at the start ofthe 2000 school year.
In Rufisque for example. the profit generated by the funds has also allowed to set up a
solidarity fund to aid members in need.
This fund has helped about fifteen members to meet school expenditures, medical care
costs for sick family members. and to aid disaster victim families.
Access ofwomen to official texts in local languages
Following the seminar on Decentralization, a guide on the texts ofthe law and on land
laws, was developed. This guide is now available in Wolof, Pular and Serere (3 local
languages) and taught in literacy classes. It has helped categories of illiterate individuals
to know the texts. These individuals can now express themselves in their respective local
languages on such concepts as Decentralization, Regionalization, Local Governments,
Communes. Rural Communities, Decree, Law, Order, etc.
The knowledge acquired in land laws through training in local languages has contributed
to the women's awareness. notably to be able to resolve some specific individual
problems.
111/ Organization management skills
Activities developed in this module and related to management, leadership, lobbying,
gender and development. institution building for local community organizations, have
allowed to achieve a lot.
Increased negotilltioll skillsfor loclIl actors
The seminars on organization management skills have increased the negotiation skills of
local actors who were able to achieve the following:
1. Public water-supply units and latrines in Diamaguene:
2. A host/counseling center for the association of household maids in Rufisque;
3. A community center tor the women in Rufisque;
4. Classrooms buill in Dioffior with the assistance ofCDLs.
All these achievements \-vere made possible through increased skills in organization
management and mobilization (for example in Dioffior where the population built 4
additional classrooms to the existing 5). in negotiation (in Rufisque, household maids
further analyzed their situation and identified a project to host girls in difficulty).
Similarly. the building by the committee of public water-supply units and latrines built in
Diamaguene was facilitated by the acquisition of greater management skills.
Institution hili/lUng/or OeBs (grassroots commullity organizations)
The implementation and monitoring ofthis module have increased the aCBs'
organizational capacities. Now in almost all aCB member organizations. the minutes of
meetings and activity rep0l1s are prepared and accessible in local languages.
The module also contributed to aCB networking, as well as to greater awareness among
aCB members. resulting. for example, in increased proceeds from membership card sales
(case ofthe association tor the enhancement ofthe value of women's trades).
Training contributed to transparency in the management of public affairs. For example, in
Dioffior, schoolmasters have acquired tools to manage the funds contributed by the
parents' association thus reducing the large number of conflicts that used to arise in this
area.
IV/ Computer training
The provision of computer equipment and training to CDLs has given the latter several
advantages:
Increased access to good illformation
The computers that were provided to CDLs have become important data banks with the
storage ofthe various data on the local governments concerned, for consultation by the
general public.
The computers were also used to prepare general infonnation papers at the level ofthe
CDLs, including the "CDL INFO" in Guediawaye and the "JOTTU: S 'AFFRANCHIR"
(to liberate oneselt) in Oiamaguene.
Bills, letters, posters. leaflets. notices and announcements are now prepared at the local
level using the COL computers.
Infonnation has become more accessible at the local level with the printing ofsuch
various supports as meeting minutes. activity reports. action plans and general
infonnation to be posted at eDL and OCB premises.
Reduced unemployment llmong the young
The 12 computers provided to the CDLs are managed by a total of 24 young men and
women (2 individuals per computer) who were previously jobless. Now they are
employed by the COLs to provide services for a small fee. including word processing.
Proceeds are used to pay computer managers and to meet operating costs.
VI Research and Survey techniques
Improved IlIUl(l'tical amI planning skills
The training of 80 local actors including local leaders and OCB leaders in research
techniques (rapid rural appraisal and outreach) followed by field surveys has allowed
them hands-on use of analytical and research tools for their respective localities.
Not only did they acquire analytical and planning skills but are also implementing them
and contributing to the population's access to good infonnation.
Increased access to good information
Today, in each ofthe 8 local governments covered by the first research studies, there is a
data bank accessible to the community.
These data banks contain inforn1ation on the resources, wealth, constraints and priorities
of each locality. It is also important to note that this computerized data serves as
reference for any future internal or external interventions.
In this prospect, all solutions considered to resolve problems raised are to be translated
into 'action plans (projects) after the training of actors in project management scheduled
for early 2001.