UNITED NATIONS ECONOMIC COMMISSION FOR AFRICA, PUBLIC ADMINISTRATION, HUMAN RESOURCES AND SOCIAL
DEVELOPMENT DIVISION
NATIONAL POLICY WORKSHOP
ENHANCING DIALOGUE, CO-OPERATION AND INTERFACE BETWEEN THE GOVERNMENT AND POPULAR DEVELOPMENT ORGANIZATIONS
IN THE GAMBIA
ECAC 35.07 PPW6
c.2 Organized by
UNECA's, Public Administration, Human Resources and Social DeveloprHent Division, Within the framework of the Popular Participation in Sustainable Development Project, in cooperation with the Association of NGOs In the Gambia (TANGO)
(Banjul, The Gambia, 15-17 June 1994)
Popular Participation Workshop Series No. 6
A United Nations Economic Commission for Africa Publication Series on Popular Participation
Enhancing Dialogue, Co
operation and Interface Between The Government and Popular Development Organizations in the Gambia
Workshop Report
Organized by;
The Public Administration, Human Resources and Social Development Division, within the framework of the Popular Participation in Sustainable Development Project, in cooperation with the Association of NGOs in the Gambia (TANGO)
CONTENTS Page
Background and Introduction 1
II The African Charter for Popular
Participation in Development 5 III Government and Popular Development
Organizations Relations in The Gambia 9 IV Guidelines for Enhanced Dialogue
for Cooperation Between the Government of Gambia and Popular Development
Organizations 15
V Recommendation and Follow-up issues 18
Annexes:
I Text of Statements by:
Dr.Sadig Rasheed
H.E. Mr. Galandou Goree-Ndiaye Rev. Bishop S. Tilewa Johnson H.E. Mr. Amadou S.O. Tall
23 26 30 32
II Programme 37
III List of Participants 41
IV List of Documents 43
I Background and Introduction
The 1990 Arusha International Conference on Popular Participation in the Recovery and Development Process in Africa and its outcome as embodied in the African Charter for Popular Participation in Development and Transformation marked a turning point and a rare consensus in the continent's perception of what role people and their organizations should have in the development process.
Representatives of African governments, people's organizations, the United Nations systems and the international NGOs reached a consensus that a new domestic order, which radically restructures Africa's socio
economic setting and accords people and their organizations substantially expanded roles, is needed. The Charter affirmed that the development process must be fundamentally reoriented towards greater institutional pluralism and more broadly based participation on the part of people and their organizations.
With a view to assisting in the implementation of the African Charter for Popular Participation in Development, the United Nations Economic Commission for Africa initiated a series of activities designed to assist member countries, people's organizations, community groups and NGOs to develop a participatory framework for the design and implementation of development programmes and policies.
The integral thrust of ECA's initiative was to create a collaborative, health and mutually respectful relationship between governments, on one hand, and people's organizations, community groups and NGOs on the other.
Closer relationship and on going dialogue between government and popular development organizations will make it possible for the latter to be more active in contributing to the formulation and implementation of national policies and programmes.
It is within this context that the National Policy Workshop on "Enhancing Dialogue, Cooperation and Interface between The Gambia Government and Popular Development Organizations" was organized in The Gambia by the United Nations Economic Commission for Africa (UNECA) from June 15 - 17, 1994 in collaboration with the government of The Gambia and The Association of Non
governmental Organizations (TANGO).
The objectives of the workshop were:
• to reflect collectively on the state of G o v e r n m e n t - p o p u l a r d e v e l o p m e n t organizations/NGOs relation in The Gambia;
• to examine the different modalities of interaction that popular development organizations/NGOs have with government;
e to elaborate on the modalities for enhancing dialogue and cooperation between policy makers and implementors on the one hand and people's organizations/NGOs on the other;
• to identify the measures needed to create a climate of trust and openness and increased opportunities for interaction and dialogue between government and popular development organizations/NGOs.
The three day workshop which was the fourth such national workshop in Africa and the first in the sub-region brought together 30 participants from government and non
governmental organizations (NGOs), as known in The Gambia, to dialogue on ways of enhancing the relationship between these two actors in The Gambian development
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process. The workshop was officially opened by His Excellency Mr. Galandou Goree-Ndiaye, Permanent Secretary office of the President.
In delivering the opening address, the Permanent Secretary, Office of the President, Mr Galandou Goree- Ndiaye deputizing for the Secretary General welcomed and appreciated on behalf of the Gambia government, the UNECA's decision to hold the workshop in The Gambia. He emphasized that in The Gambian context, unlike in a lot of other African countries, a lot has been achieved in the area of NGO-government collaboration. Mr Goree-Ndiaye acknowledged the timeliness of the workshop in that it comes in the heels of the official launching of the Strategy for Poverty Alleviation which set in motion the continuation of the dialogue and partnership between NGOs, donors and government, the key actors outlined in the strategy.
Mr Goree-Ndiaye went on to note that the theme of the workshop should not lead anyone to pre-suppose that dialogue and cooperation between NGOs and government has not been taking place. Rather, the need for dialogue and cooperation has been realized and promoted since NGOs started operating in the country in the 1960s, in recognition of the fact that one cannot function effectively without the support or collaboration of the other. He concluded by indicating the governments' commitment to fostering the participatory process and that there was no turning back on the issue.
The TANGO Executive Secretary, Burang Goree- Ndiaye, as workshop coordinator gave some introductory remarks after which he invited Dr Getachew Demeke of the UNEOA to make a statement.
Mr Demeke expressed delight on his behalf and on that of the UNEOA in being able to facilitate this important
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workshop in The Gambia. He indicated that Dr Sadig Rasheed, Director of the Public Administration, Human Resources and Social Development Division of the UNECA should have been at the workshop to deliver the opening statement, but due to other pressing official functions he was unable to do so. Dr Demeke went on to read a statement on behalf of Dr Rasheed in which he thanked TANGO and the Ministry of Local Government and Lands for collaborating with UNECA in holding the workshop. He indicated that the choice of The Gambia as the workshop venue was particularly significant due to the country's respect for the rule of law and democracy. Dr Demeke outlined the objectives of the workshop and called on participants to discuss candidly and openly and design effective modalities for enhancing interface and strengthening cooperation between the government and people's organizations.
This was followed by a statement from the Permanent Secretary, Ministry of Local Government and Land, Mr Amadou S. O. Tall who started by indicating that the workshop was of vital importance to his Ministry and The Gambia government as it provided an opportunity to critically examine the NGO-government relationship. He noted that TANGO's coordination of the workshop was a manifestation of the Association's important and crucial role in promoting the NGO-government relationship. Mr Tall mentioned that government has a lot of faith in the capacity of NGOs to participate in The Gambian development process and urged participants to examine critically the different modalities for NGO-government collaboration.
In his statement, the TANGO Chairman, Rev. Bishop Tilewa Johnson stated that the NGO community appreciated the chance provided by the workshop for NGOs to sit with government to discuss their various roles towards the
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common objective of reducing poverty and promoting the development of The Gambian people. He made reference to the African Charter for Popular Participation and indicated that in The Gambian context what the Charter calls for has to a large extent been attempted by both government and NGOs. He cited The Gambia government's Strategy for Poverty Alleviation (SPA) as a good example of intended cooperation between government and NGOs.
II The African Charter for Popular Participation in Development
Following the official opening ceremony, Dr Demeke made a presentation on the African Charter. In his introductory remarks, he pointed out that nations cannot be built without the full participation of the people. He noted that since independence, the people of Africa have passed through difficulties and problems and most of the African government's development initiatives have failed. Dr Demeke observed that the 1990 Arusha Conference where the African Charter was adopted was a turning point for the continent because of the consensus reached that African governments must yield some space to popular participation if the economic decline of the continent is to be redressed.
At Arusha, it was clearly admitted that the lack of progress in the economic development of Africa was due to the lack of involvement on the part of people in their development. The Charter which was endorsed by both governments, non-government organisations and other groups makes explicit demands on all sectors of society and calls for a re-definition of the relationship between government and the rest of society.
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Implications of the Charter for Governments and NGOs
In dealing with this issue, Dr Demeke underscored the fact that African governments should not see themselves as solely responsible for developing their countries, and should allow other players to contribute their quota. A second implication was that governments should not enter agreements with bi-lateral and multi-lateral organisations without consultation with the people and consideration of the implications or consequences for the people.
The Charter, among other things called on NGOs to develop their institutions, human resources, etc and promote the shift from dependence on government for all development activities. Additionally, NGOs need to speak more loudly and aggressively against policies which have not worked and need to change. Dr Demeke concluded by reiterating the UNECA commitment to the realization of the African Charter and ensuring that the provisions are on top of the agenda of African governments. He attributed this workshop to the UNECA drive to realize this.
In the first discussion session of the workshop, concern was raised about the lack of representation by top government officials who are the actual decision-makers in crucial policy issues. It was resolved that the government representatives present could still report back to the policy makers and that the issue was not one of numbers but the quality of the discussions.
The subsequent focus of the discussion was largely on procedures. Some participants suggested using the workshop in
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• Designing approaches which will further enhance the existing relationship between government and NGOs.
• Assessing present situation of government- NGO relations to draw out the gains and problems and how improvements can be made.
• A third suggestion was to look at the Charter's implications for government and NGOs in relation to the existing situation in The Gambia.
This latter suggestion was accepted and participants proceeded to examine the provisions of the Charter, and share their perceptions of popular participation. The following issues emerged:
e The basic issue in popular participation is one of perception; people defining their own agenda. The African Charter for some participants means that government must have the will to ensure people's participation. It also suggests that the people have the capacity to participate, and can choose to participate or not. For real participation to occur, people must be empowered to have confidence and the capacity to demand and reject whatever is not in their Interest.
• Political and party affiliation has to a large extent worked against the realization of popular participation. In view of this, projects should not side with political parties. However,
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political interference should not be regarded as threatening as development itself is political.
On the government side, participants felt that attempts are being made in line with the African Charter, but there was no clear path in terms of the concept of popular participation. The adoption and piloting of the Bamako Initiative (Bl) was cited as an example of government trying to be accountable and transparent to the people, as well as promoting people's access to information and community involvement from planning stages of the Bi to implementation, monitoring and evaluation. Similarly, under the Strategy for Poverty Alleviation SPA, government plans to facilitate social audits as instruments for use by communities to access accountability.
In general, in The Gambian situation, participants felt that even before the Charter came into effect, The Gambia was ahead of most African countries in terms of the dialogue and relationship between government and NGOs.
Strides had also been made by NGOs and government in realizing some of the provisions of the Charter. Participants, however felt that there was a lack of any follow up mechanism by the UNECA and other organizations active in the Arusha Conference on adherence to the Charter.
Assessment of progress made in realization of the Charter provisions could only be done in the presence of indicators for measuring accountability, participation, etc. and active monitoring by some continental organization. Participants lamented the fact that although Gambian delegates including two TANGO representatives attended the 1990 Arusha Conference, the Charter had not been disseminated and it was unfamiliar to many NGO and government personnel.
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Ii! Government and Popular Development Organisations Relations in the Gambia
This session started with the above titled case study presented by Nana Grey-Johnson which was generally considered by participants as a very provocative paper.
Following the presentation, Dr Demeke clarified that the focus on govemment-NGO relations in the workshop, was premised on the fact that in Africa many institutions of civic societies are weak, and do not seem to have developed as such. What has potential is NGOs, thus the UNECA focuses on NGOs to stimulate participatory development, as vehicles of popular participation. However, this does not mean that other components of civil societies will not promote participatory development and can not be used to facilitate the involvement of people in the economic social and political lives of their countries.
Government Comments on Gambian Case Study Government representatives at the workshop reacted to the case study assessment as follows:
• The Cast Study is timely assessment of NGO- government relations because of the questions government personnel are being constantly asked about development achievements so far.
The Case study provides information on some of the targeted initiatives of the government to alleviate poverty.
• Despite the laudable pronouncements of government, there is a lack of analytical capacity to follow up issues and a lack of resources to implement government policies.
Government has called on its development
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partners such as NGOs to assist the development process. The SPA is a pointer to good NGO-government relations; government has made a statement of intent in the SPA, in asking other actors to come in due to the realization that government cannot do it all.
Now it is incumbent on all development actors to participate in the action planning process.
On the other hand, despite the enabling environment created by government to facilitate development activities by all the players, local NGOs have not taken full opportunity of this as manifested in their lack of capacity to articulate themselves during the SPA formulation process.
NGOs in general, and TANGO in particular should take the initiative in organizing workshops and meetings on crucial policy issues affecting the nation. Government officials should be invited to participate in TANGO's policy debates and in the designing and implementation of TANGO's training strategy for national NGOs.
It is usually claimed that The Gambia's development budget is largely dependant on external funding, but it is worth examining how much of the technical assistance to The Gambia actually gets into the country. The negotiation of technical assistance needs reviewing.
It is necessary to assess how well both government and NGOs have been able to
facilitate popular participation, in terms of good governance, accountability, and transparency.
• Participatory Rural Appraisal training should be extended to both NGO and government personnel. The value of PRA is that it is a learning process approach and facilitates learning on site. It also facilitates participation by villagers and government as well as collaboration between NGOs and government since technical personnel from government are invited by NGOs to participate.
• Government and NGOs should not be too involved in each other's activities although complimentarily is necessary.
NGO Comments on Gambian Case Study:
• Government personnel always complain about lack of knowledge of NGO resources in the country; this information would be available if government involves NGOs in government budgeting and programming.
• in the new partnership being advocated, the recognition of the beneficiaries as key players in their development is crucial; it is worth holding a dialogue on this at both government and NGO levels. This relates to accountability;
it is necessary to debate how accountable both NGOs and government are to their communities.
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The case study omits an assessment of the national dialogue initiated under the SPA;
mistakes, lessons learnt, etc.
In terms of NGO-government relations, specifically TANGO, how far has government gone in implementing recommendations of the Miller report was a major government commissioned study on the activities of the voluntary development sector in The Gambia.
NGOs do not shy away from advocacy: this is seen in different ways in different places. The best advocacy is to build capacity at local level so people can advocate on their own behalf and this is what NGOs try to do.
Cultural and religious barriers should be addressed to promote women's status and participation in development.
The government's preparatory process prior to programme implementation is usually too elaborate (SPA); the stage at which the beneficiaries are reached should be speeded up.
NGOs should stop and ask innovative questions; what is being done wrong; what should be the next steps? For popular participation of communities, there is need for performance motivation. NGOs should educate beneficiaries about performance motivation.
Suggestion for involvement of government in policy debates of TANGO and in the designing
and implementation of TANGO's training strategy.
The subsequent discussion brought out the following issues;
d Government personnel are willing to sit with NGOs to look at quality of life indicators and how to improve them. Government has no desire to control NGO funds, but wants to be informed of resources NGOs have at their disposal and for what purpose so as to maximize use of these resources in the development process.
e It would be relevant to review the SPA from the African Charter point of view (popular participation) for the future implementation of the SPA.
e NGOs have limited resources and are only contributing to government's development efforts: and are supplementing its activities thus competition between government and NGOs should not arise.
# NGO-government relations should not be relegated to finger-pointing as the massive problem of poverty and unemployment are a challenge for both NGOs and government and calls for concerted efforts. Constant engagement in dialogue between NGOs and government is necessary prior to and during programme/project implementation. This is important in view of the fact that an atmosphere of mistrust still exists between
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some NGO and government officials which needs to be discussed and clarified for effective collaboration and cooperation. Both government and NGOs need to see each other as collaborators rather than enemies.
In the implementation of development programmes and in relations with communities, there is a need for genuineness and honesty so that there is no doubt of a hidden agenda.
Change agents must go through attitudinal change to be able to effect meaningful development. Attitudinal change is necessary for both NGO and government personnel; this is only possible through the emulation of role models who have knowledge which in turn comes through education, dialogue, etc.
Capacity building comes with information, so it is necessary to inform people.
Both NGOs and government need to be wary of their points of entry at community level to ensure maximum reach and involvement of the beneficiaries. It is necessary to consider how bureaucracies can be diminished to allow for people's participation; there is also a need to assess how many Village Development Committees (VDCs) are working and how representative they are since many have accepted the VDC network. NGOs as well as government need to hold debates on institutional structures at village level and consider how existing structures can be linked with new structures.
• Modalities for NGO registration have been discussed and guidelines drawn up. The Cabinet paper on NGOs has been finalized;
new requirement is for NGOs to satisfy ACCNO on status as an NGO; after satisfying this, ACCNO recommends to the Ministry of Justice for legal registration of the NGO. Under the new framework, NGOs can suggest to government how to strengthen ACCNO, but financial contributions of NGOs to ACCNO will compromise ACCNO's role.
• In human resource development, it is important for NGOs to learn from government's guidelines which examines how well the role of experts are articulated in the terms of reference; calls for skills transfer functions and modalities for evaluating these from international NGOs and donors. For NGOs that provide technical assistance, there must be local counterparts for their assistants for sustainability. Over the years, outside technical assistants have not always worked with local counterparts.
IV Guidelines for Enhanced Dialogue and
Cooperation between Government and Popular Development
This session started with a presentation by Donald Sock on Guidelines for enhanced dialogue and cooperation between government and popular development organisations in support of socio-economic development at the national level.
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In his presentation, Mr Sock's paper looked at trends in the calls for popular participation and noted that a review of projects in Africa showed dismal failure of those that did not involve the beneficiaries. The paper asserts that the Arusha Declaration helped to focus attention on the failure of African governments to reverse the continent's economic decline over the years. The paper underscores the fact that it is the vital absence of civic education which has prevented popular participation in Africa.
Mr Sock then went on to explore the limits to popular participation which he identified as:
poverty;
inadequate clothing:
illiteracy;
lack of political;
physical handicap;
social connection;
technical nature of issues;
culture/tradition; and
lack of technical expertise and capacity to articulate peoples' needs and aspirations at policy level.
Mr. Sock noted that the context for dialogue, cooperation and interface between NGOs and government in Africa is largely influenced by the donor community. He presented ten guidelines for government and people's relations as follows:
People-centred development and human rights;
Voluntary action as a human right;
Rights vested in the individual;
Government authority and the will of the people;
Minimum use of coercive powers;
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Individual responsibility and the law;
Regulatory concerns not specific to people's organisations NGOs;
Foreign funding;
Rights and privileges; and Accountability.
Mr. Sock's paper concluded that these guidelines should be applied in the relations of government and those civil institutions involved in service delivery, community development, advocacy and civic education. The paper makes it clear that NGOs are expected to exercise self- regulation and that the freedoms and rights of NGOs go with the responsibilities of good behaviour and proper conduct of their business within the law. Both NGOs and government must appreciate that they are two sides of the same coin and that maintenance of a healthy relationship will enable coping with the changing priorities of donors, the main dominant force shaping the future of African countries.
Subsequent Discussions brought out the following Comments
• It is necessary for both NGOs and government to avoid too much regulation; both NGOs and government have the right to receive funds, etc and use these for development purposes.
Some mechanism is, however, necessary for all GBOs including NGOs to be aligned with government's agenda, although NGOs should have the scope to operate freely, within the confines of the laws of the country. Emphasis should be on civic education as opposed to de-regulation, and servicing of laws which is an expensive exercise.
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® In the absence of effective organization, coordination and collaboration between government institutions in the implementation of development activities, government should not expect NGOs to be effective collaborators.
• Relations between government and NGOs, as well as popular participation is constrained by lack of clarity of the roles government and NGOs should play in delivering the goods to beneficiaries. Both NGOs and government are in the same business, thus it is necessary to improve communication networks between the two.
• Attention should focus on the future of Government, NGOs and local communities relation and should seek ways of furthering the dialogue accorded by this workshop: in this respect it is necessary to strengthen ACCNO and TANGO as well as increase the communication flow between all parties at national level and enhance at divisional level the dialogue which is already working effectively through the Divisional Coordinating Committee made up of government and NGO field staff. It is necessary to set up an official task force to further define and elaborate on enhancing government.
V RECOMMENDATIONS AND FOLLOW UP ISSUES
• Little is known about the African Charter for Popular Participation within the NGO community and government. It is
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recommended that TANGO and the General development community study the provisions of the Charter and disseminate it widely.
It is necessary to focus on institutions, formal/informal in the process of dialogue between government and NGOs, to look at the procedures between technical Ministries and Departments, and seek to strengthen the instruments of the relationship. ACCNO (The Primary NGO Monitoring Unit within the government structure) is not strong or communicative enough; having acclaimed the need to establish dialogue with NGOs, government has relegated ACCNO to one Desk Officer. ACCNO should be located physically with TANGO as a means of strengthening ACCNO and promoting NGO- government dialogue, and to attract resources needed by both institutions. It is worth clarifying what the TANGO/ACCNO relationship and differences are; TANGO'S NGO Code of Conduct should be proposed to ACCNO for adoption by all NGOs; government staff should also participate in TANGO'S sectoral task forces.
Capacity building of national NGOs should be supported by international NGOs; since local NGOs, despite their limitations, are supplementing government's national development efforts, consideration should be given by government to contributing towards the capacity building of these organisations through facilitating their access to ear-marked funds and training. This is a capacity building
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phase for government (human resource development of civil servants) and as such a convenient point for interface with (national) NGOs through TANGO and the iatter's training strategy.
NGOs must, however, keep in mind that accessibility to pursue government ear-marked funds goes with conditionality; NGOs need to debate participation and partnership with government and the extent of that relationship vis a vis contractual relations. Local NGOs must also pay more attention to local fund- raising.
TANGO should facilitate similar workshop at divisional level for People's organization and Government line Ministry workers.
It is crucial for national NGOs to make more use of the umbrella organization, TANGO, to push forward their cause with govemment and donors and sort out their constraints. The creation of space for representation of grassroots organisations through TANGO in ACCNO is necessary. TANGO's role vis a vis local NGOs must focus on monitoring of activities being implemented; synchrony of TANGO and AOONO's roles in monitoring is necessary to prevent duplication and wastage.
Follow-up should be within the context of the SPA (which calls for enhancing dialogue) rather than a new task force; TANGO/AOONO should consult the SPA Coordinating Office (SPACO), the Secretary General, and present
to them the recommendations of the workshop for discussion.
The three day workshop was officially closed by Mr Albert Cox, Vice-Chairman of TANGO. In his closing remarks, Mr Cox stated that the process which started with uncertainty about what government people's organization relation had ended with clarity and consensus. He noted that the discussions have been open, frank and had taken place in an atmosphere of good faith. The objectives of the workshop to enhance dialogue had been achieved since government and NGO personnel had been able to sit together and talk about issues of concern to both parties.
He thanked the UNECA for their initiative in making the workshop possible and thanked Dr Demeke for his participation in person. Mr Cox thanked the government and NGO representatives for the success of the workshop which would not have been possible without their effective participation.
Mr. Cox concluded by saying that within the confines of the workshop the relationship between government and NGO personnel had improved. He urged participants, especially from the government side to take the workshop outcome further to the policy makers at the highest level.
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ANNEX I
Text of Opening Statements by:
Dr. Sadig Rasheed, Director
Public Administration, Human Resources and Social Development Division, UN Economic Commission for Africa
H.E. Mr. Galandou Goree-Ndiaye Permanent Secretary
Office of the President
Rev. Bishop S. Tilewa Jonson Chairman of TANGO
H.E, Mr Amadou S.O. Tall Permanent Secretary,
Ministry of Local Governments and Land
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Opening Statement by Dr. Sadig Rasheed His Excellency The Secretary General
of the President's Office, The Chairman of TANGO, Distinguished Participants, Ladies and Gentlemen,
It is a great pleasure to welcome you on behalf of Mr.
Layashi Yaker, the Executive Secretary of the UN Economic Commission for Africa and on my own behalf to this national workshop on Enhancing Dialogue, Cooperation and Interface Between Popular Development Organizations and the Government of The Gambia.
I would like at the outset, to express my deep appreciation to his Excellency, The Secretary General of the President's office for formally opening the workshop on behalf of the government of The Gambia. I also, wish to seize this opportunity to thank TANGO and The Ministry of Lands and Local Government for collaborating with UNECA in initiating this workshop and for the excellent arrangements they have made for hosting the workshop.
It is extremely gratifying to be here in The Gambia, which is the shining example in Africa for the respect for the rule of law representative governance and constitutional democracy. The Gambia has shown us all that with the genuine dedication of the political leadership and the active participation of the population, it is possible to build and preserve pluralist democracy. Thirty years of non-violent competitive, multi-party democratic rules in The Gambia is an inspiration to those of us who are struggling for the democratic cause in Africa. The fact that this country has managed to install and maintain democracy has given evidence to the fact that democratic change in Africa is
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possible and could endure. I have no doubt that without the selfless dedication of The Gambian people and the painstaking work of their leaders human rights, fundamental freedom and the rule of law would not have been possible.
I have every confidence that the democracy in The Gambia will continue to thrive and persevere.
Ladies and Gentlemen,
The major aim of this workshop is to facilitate the building of strong and collaborative relationship between the government and popular development organizations in The Gambia. It's main purpose is to promote genuine partnership between the two parties with the view to working on problems facing the country based on mutual respect and popular participation. The basic premise of this initiative comes from the African Charter for Popular Participation in Development which underscored the fact that the recovery and development process can not be achieved without the full and effective participation of the people and that optimal development requires the close collaboration of people's organizations and governments. We believe it is possible to create a healthy and supportive relationship between the two parties in a country like The Gambia where the government has a very positive social agenda and where both parties share common objectives.
It is my hope that this workshop will, above all, allow the participants to design and shape effective modalities for enhancing interface and strengthening cooperation. To facilitate this, papers have been prepared on the central themes of the workshop. These papers should enable participants to give serious thought to and make concert recommendations on this important area of government popular development organizations relation.
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I invite the distinguished participants to have candid discussions on these important issues. The presence of senior government policy makers and top leaders of the non-governmental community at this workshop reinforces and strengthens our belief that the discussions at this workshop would culminate in the adoption of practical recommendations to guide collaborative government - popular development organisations.
I would, once again, to thank all of you, for taking part in this exercise. 1 would like to assure you that your recommendations will be widely disseminated to the decision-makers and the non-governmental organizations in Africa as well as to interested partners outside Africa with a view to ensuring that the fruits of your thoughts and experiences are appropriately shared and supported by all those who are involved in this important issue.
I thank you for your kind attention and wish you most fruitful deliberations.
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Opening Statement by H.E. Mr. Galandou Goree-Ndiaye Mr. Chairman,
Distinguished guests, Workshop participants
The Secretary General, Office of the President, should have been here this morning to address this gathering and to formally open this tree-day National Policy Workshop on "Enhancing Dialogue, Cooperation and Interface Between government and Popular Development Organisations" being organized under the auspices of the United Nations Economic Commission for Africa, in collaboration with the Association of NGOs, TANGO, and the Ministry of Local Government and Lands, the Ministry responsible for NGO affairs in the country. The duties unfortunately, he has accompanied the President for the OAU Summit in Tunis and is unable to be here it is my pleasure, therefore, to perform his duty on his behalf.
Mr. Chairman, the timeliness of this National Policy Workshop with the theme Enhancing Dialogue, cooperation and Interface Between The Government of The Gambia and Popular Development Organisations or NGOs, as they are better known here, cannot be overemphasised. It comes on the heels of the official launching of the Strategy for Poverty Alleviation by the President , which barely a week ago, has set in motion the continuation of the dialogue and partnership between the key actors, the NGOs, donors and government, that is both critical and crucial for the realisation of the goals of the programme.
The Strategy for Poverty Alleviation fully recognises the need to promote new attitudes and the creation of an institutional environment that favours the emergence of people - centred approach to community-based development
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through popular participation. This can only be realised through dialogue with NGOs and grassroots organisations that are key actors in the national development process.
Hence, he emphasis on continuing and extending the National Dialogue which will enable communities to share their experiences in development initiatives they have undertaken, and ensure essential decisions regarding the development of their communities is a priority of government under the SPA.
Distinguished Guests, Workshop participants,
Popular participation constitutes the linchpin of the national development process in which the active involvement of the NGOs and grassroots organisations is vital and must be promoted, as experience has shown that if development initiatives are to be successful, sustainable and owned by the people, the, latter must of necessity be involved from initiation to realisation of the desired outcomes of the programme. For decades, people and popular development organisations have been marginalised and largely uninvolved in the policy discussions and decision making, either by design or inadvertently.
With the steady rise in the number of popular development organisations (NGOs) in the country in recent years, and their increasing visibility in civil society, one cannot overlook the urgency of engaging them in a dialogue that would clarify the role people and these organisations have to play and see themselves playing in the national development process.
However, looking at the theme of the workshop one should not presuppose that dialogue and cooperation between government of The Gambia and the NGOs has not
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been taking place. The need for dialogue and cooperation between them has been realised, embraced and promoted since NGOs started making a presence in the country in the sixties, in recognition of the fact that one cannot function or operate effectively without the support or collaboration of the other.
Mr Chairman,
The initiative of the Public Administration, Human Resources and Social Development Division of the ECA to organise this important workshop here, is very much welcome and appreciated by The Gambia Government, and, i am sure, equally so by the NGO community. It is indeed an honour for The Gambia to have been selected to host such a forum. I presume this choice must have been prompted by the excellent relations and partnership that the government and the NGOs enjoy, which, 1 dare say, is not a common phenomenon in many other African countries.
Mr. Chairman,
Ladies and Gentlemen,
It is my understanding that this workshop, which is an effort by the United Nations Economic Commission for Africa to assist member countries, people's organisations, community groups and NGOs to develop a participatory framework for the design and implementation of development programmes and policies within the overall framework of the African Charter for Popular Participation and Development adopted in Arusha, Tanzania four years ago, is the third to be organised in Africa and the first in the sub-region.
This forum is intended to further strengthen the already existing collaborative, cordial and mutually beneficial
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relationship between government and popular development organisations in The Gambia. I trust that with the calibre of representation from both quarters, the issues to be discussed in the course of the three days of the forum will be addressed with the highest degree of professional intensity, objectivity and frankness, and, at the end of the deliberations, the conclusions arrived at will be satisfying as they contribute to the enhancement of increased participation of peoples' organisations in the national decision-making process; thus effecting meaningful development.
On its part Mr. Chairman, Distinguished gusts, Workshop participants, government is fully committed to fostering the participatory process and there is no turning back as evidenced so far by the SPA formulation process.
Be sides the outcome of this forum will be awaited with keen interest.
It is on this note mechanism that I, enthusiastically, declare this three-day national policy workshop on enhancing dialogue, cooperation and interface between government and popular development organisations, formally open.
I thank you for your attention.
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Opening Statement by Rev. Bishop S. Tilewa Johnson Secretary Generai,
Distinguished Guests, Participants,
Ladies and Gentlemen.
it is with very great pleasure that 1 welcome you all to this three day National Policy Workshop for Enhancing Dialogue, Cooperation and Interface Between the Government of The Gambia and Popular Development Organisations.
We, in the NGO community, very much appreciate this opportunity to be able to sit down with government to discuss our various roles towards a common objective: that is the reduction of poverty and the wholistic development of the people of The gambia - in social, economic, political, cultural and spiritual terms. We hope, over the next few days, it will be possible to come up with some clear guidelines as to the way forward from here, within the context of dialogue and cooperation.
Over the past decades there have been many and varied approaches to "development" in Africa. The conventional wisdom of the time has fluctuated with the perceptions of those who control the Aid and Development business. These individuals or corporate bodies have invariably come from the North, or from the elite of the South. They have had their own inherent ideological approaches to solving problems in Africa as they perceive them. Often this can be with the best of motives; however, there are also occasions of hidden agendas and conditionalities. Over time it has become clear that the only truly valid perception of the problem and Its solution is that held by the potential beneficiary.
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This realisation is embodied inthe African Charter for Popular Participation in Development and Transformation, which was drawn up at 1990 Arusha International Conference on Popular Participation in the Recovery and Development Process in Africa. The Charter recognises the vital need for the participation of the people and their organisations in their own development process. Not only does this allow their voice to be heard, but also facilitates the utilisation of a vast resource of creativity which would otherwise be under-utilised.
In act we here in The Gambia are following this very line. In the Government's Strategy for Poverty Alleviation (SPA), TANGO has very much emphasised the crucial role to be played by local NGOs and community based organisations in ensuring a bottom-up development process, and where the people at grass roots are the prime actors.
The SPA is also a good example of intended cooperation between government and NGOs with a common purpose. The urgency for such collaboration is emphasised in the African Charter, which states that it is "imperative that a new partnership between African Governments and the people in the common interest of societal and accelerated socio- economic development should be established without delay".
This said, I wish you well jn your deliberations throughout the workshop, and very much look forward to hearing your findings at the conclusion.
Let us all constantly bear in mind within whose interests we are operating - the poor and the marginalised - and by this means we cannot fait but to work together.
I thank you for being so attentive.
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Opening Statement by H.E. Mr Amadou S.O. Tall
Mr. Chairman,
Bishop of The Gambia, Ladies and Gentlemen,
1 am delighted to be part of a workshop jointly organised by UNECA and TANGO on a theme which is of vital interest to my Ministry and the Entire Government.
We want to express our sincere thanks and appreciation to UNECA for having chosen the Gambia to organise a three-day workshop on "Enhancing Dialogue, Cooperation and Interface Between The Government of The Gambia and Popular Development Organisations". For us, this is a great honour and privilege since it gives us the unique opportunity to critically examine the relationship between Government and Popular Development Organizations,otherwise known as Non-governmental Organisations (NGO's). To the Association of Non- Governmental Organisations (TANGO) we also wish to express our sincere thanks for their effort in organising and coordinating the activities of this important workshop.
TANGO'S participation in this workshop manifests very clearly the important and crucial role it plays in fostering our NGO/Government partnership. I wish them all the best in their endeavours and I do hope that they will vigorously continue to strive for a better and harmonious relationship between NGO's and Government.
To workshop participants, we wish to than you for leaving your offices to come and subject yourselves to 3 days of intensive analysis of NGO/Government relations. In specific terms, you will endeavour to:-
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(a) Reflect collectively on the state of G o v e r n m e n t / P o p u l a r D e v e l o p m e n t Organisations relation in The Gambia;
(b) Examine the different modalities of interaction t h a t P o p u l a r D e v e l o p m e n t Organisations(NGO,s) have with Government;
(c) Elaborate on the modalities for enhancing dialogue and cooperation between policy makers and implementators on the one hand and peoples organisations on the other;
(d) Identify measures needed to create a climate of trust and openness and increased opportunities for interaction and dialogue between government and NGO's;
This workshop is being organised at a crucial moment in the development effort of The Gambia Government. It has come at a time when the Government has just elaborated and endorsed a Strategy for the Alleviation of Poverty in The Gambia. Some of you might have participated actively in the launching of the Strategy for Poverty Alleviation (SPA) which took place last week at the Kairaba Hotel. The major objectives of the SPA are:
(a) To enhance the productive capacity of the people;
(b) To improve access and performance of social services;
(c) To build capacity at local community level;
(d) To promote participatory communication processes;
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The SPA will be implemented in the context of our macro-economic framework which guides the country's economic and sectoral policies and programmes. However, it is worth mentioning that the SPA also reflects a participatory approach to development which calls for the involvement of local communities and the poor in the development process.
Mr. Chairman, Ladies and Gentlemen, perhaps at this stage 1 may say a few words about the need to build capacity at the local community level and to promote participatory communication processes. As a first step, let us briefly look at what happens at the grassroots level. With the introduction and establishment of Village Development Committees (VDCs) whose role is to act as a channel for resource flows, better dialogue was created between Government and local communities. These VDS's and other community based organisations (CBO's) in the context of our decentralisation strategy are seen as,the cornerstone for sustained and integrated development in both rural and urban areas. A community based organisation (CBO) is an organisation which is established by its members in a community in order to encourage self help activities. The following are some of the functions of a CBO:-
(i) To implement and manage development plans and projects in the community;
(ii) To mobilise community participation in development activities:
(iii) To identify the problems and development needs of the community;
(iv) To contribute, coordinate and manage financial resources at the locallevel;
(v) To carry out welfare activities and represent community interest;
(vi) To assist members in times of crisis.
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There is no doubt that these CBO's couid serve a useful purpose and play an active role in the development of their communities. In analysing the participatory role of these organisations at the local level, one identifies three major forces, namely:
(i) The Council of Elders\
(ii) Socio-economic Groups (iii) Extension workers.
The Council of Elders and Socio-economic groups are very important in a decentralised development process since they are responsible for the harmonisation and allocation of resources for the implementation of approved projects in collaboration with relevant extension workers.
The SPA and, indeed the decentralisation strategy, will have to place particular emphasis on capacity building at the local level to strengthen CBO's. While one recognises the crucial role such groups can play in the implementation of the SPA, one should not downgrade the authority and influence of the Council of Elders lest the very fabric of the local society is disintegrated. These Councils of Elders serve as a planning and advisory authority, giving guidance and inspiration to CBO's who assume an implementing role.
A similar participatory development approach is being applied inthe form of Ward committees at the District level and Divisional coordinating committees (DCC's) at the Divisional level. At the divisional level, the DOC plays an advisory role, ensuring that development needs of communities are in line with national objectives. Such a role is very delicate for the DCC to per form in a decentralised development process because communities may have different perceptions of needs from what "outsiders" may think. However, in order to avoid unnecessarily high expectations or aspirations on the part of local communities,
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relevant and sufficient information must be made available at project planning level, thus enabling communities to establish rational choices and prioritise their needs, thereby minimising conflicts with higher institutions such as the DCC.
Participatory development presupposes the existence of a conducive environment for actors to play their roles effectively. Such an environment must be created by development partners namely: Government, donors/NGO's and local communities, in the same vein, building local capacities through training and provision of material and financial resources must be vigorously pursued.
Finally, Mr. Chairman, I would want to mention that Government has quite a lot of faith inthe capacity of NGO's to participate in our development effort. It is in recognition of this important role that Government has now come up with a new policy designed to create a new and dynamic partnership between Government NGO's and Local Communities. We see TANGO as an independent organisation, embracing most NGO's operating inthe country. In deed, we maintain constant dialogue, cooperation land interface with TANGO and most of our development policies and endeavours have gained the support and commitment of NGO's, thanks to the dynamic coordinating role of TANGO
We wish you a successful workshop.
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ANNEX Ii
PROGRAMME
National Policy Workshop to Enhance
Dialogue, Cooperation and Interface Between the Government and Popular Development Organizations
in The Gambia
Venue: Banjul, The Gambia Date: 15-17 June, 1994
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Wednesday, 15 June 1994
09:00 - 10:30 Registration of Participants 10:30 - 12:00 Official opening
Statement by:
UNECA representative
S t a t e m e n t b y G o v e r n m e n l Representative
Statement by TANGO Representative Opening address by Secretary General 12:00 - 14:00 Refreshments and Lunch break
14:00 - 15:00 Presentation: 'The African Charter for Popular Participation in Development:
Implications for the Role of Popular Development Organisations and Government'
Dr Getachew Demeke, UNECA 15:00 - 16:00 Discussions
16:00 - 16:30 Tea/Coffee Break 16:30 - 17:30 Discussions continue 18:00 - 20:00 Reception
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Thursday, 16 June 1994
09:00 - 10:30 Presentation: Case Study of Government and Popular Deve
lopment Organisations Relations in The Gambia
Mr Nana Grey-Johnson, Consultant
10:30-11:15 Government comments on the case study assessment
11:15 -11:45 Tea/Coffee Break
11:45 - 12:30 Popular Development Organisations comments on the case study assessment
12:30 - 14:00 Lunch Break 14:00 - 15:30 Discussions
15:30 - 16:00 Tea/Coffee Break 16:00 - 17:00 Discussions continue 17:00 Close of session
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Wednesday, 15 June 1994
09:00 - 10:30 Registration of Participants 10:30 - 12:00 Official opening
Statement by:
UN EGA representative
S t a t e m e n t b y G o v e r n m e n t Representative
Statement by TANGO Representative Opening address by Secretary General 12:00 - 14:00 Refreshments and Lunch break
14:00 - 15:00 Presentation: The African Charter for Popular Participation in Development:
Implications for the Role of Popular Development Organisations and Government'
Dr Getachew Demeke, UNECA 15:00 - 16:00 Discussions
16:00 - 16:30 Tea/Coffee Break 16:30 - 17:30 Discussions continue 18:00 - 20:00 Reception
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Thursday, 16 June 1994
09:00 - 10:30 Presentation: Case Study of Government and Popular Deve
lopment Organisations Relations in The Gambia
Mr Nana Grey-Johnson, Consultant 10:30-11:15 Government comments on the case
study assessment 11:15 - 11:45 Tea/Coffee Break
11:45 - 12:30 Popular Development Organisations comments on the case study assessment
12:30 - 14:00 Lunch Break 14:00 - 15:30 Discussions
15:30 - 16:00 Tea/Coffee Break 16:00 - 17:00 Discussions continue 17:00 Close of session
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Friday, 17 June 1994
09:00 - 10:30 Presentation: Guidelines for
Enhanced Dialogue and Cooperation between Government and Popular Development Organisations in Support of Socio-economic
Development at the National Level Mr Donald G Sock, FORUT
10:30 - 11:00 Tea/Coffee Break 11:00 - 13:00 Discussions
13:00 - 15:00 Extended Break for Lunch and Prayers 15:00 - 16:00 Presentation of Workshop Report
16:00 Formal Closing
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ANNEX Iii
List of Participants
Dr Getachew Demeke UNECA
Galandou Goree-Ndiaye Permanent Secretary Office of The President Amadou S. O, Tall Permanent Secretary Ministry of Local
Government and Lands Rev. Bishop Tilewa Johnson TANGO Chairman
Albert Cox
Gambia Food and Nutrition Association Nana Grey-Johnson Consultant
Donald Sock FORUT Ndondeh Njie
Freedom From Hunger Campaign
Alhaji Bah
Save The Children Federation/USA Patricia Wall
Agency For Personal Service Overseas
Phoday Kebbeh Gambia Islamic Relief Association
Barnum Robinson Association of Baptists for World Evangelism Saul Sillah/Sarjo Banyang Youth Front Against Drugs and Alcohol Musa Jawneh
Association of Farmers, Educators and Traders Farimang Sowe
Child Youth Support &
Rural Development Agency Anne Plested
Anglican Mission Development Ministry Moses Sarr
CARITAS/Gambia Abdoulie Mam Njie SPACO, Ministry of Finance/Economic Affairs Mary M'Keown
SPACO, Ministry of Finance/Economic Affairs
Momodou Dibba
Catholic Relief Services Davies Iber
International Society for Human Rights The Gambia Chapter Mamanding Kuyateh Department of Community Development
Balla Sillah
National Population Commission
Dr A. O. Jah Ministry of Health Mariatou Loum
Women in Service, Development Organization and Management Mariama Ashcroft
Gambia Women's Finance Association
Samba Gajigo
Gambia Rural Development Agency, Soma The Gambia Reuben Phillott
Ministry of Local
Government and Lands Famara Jatta
Office of The President AyelewAbai
UNICEF Representative Mr Teneilabe
Nigerian High Commissioner
Dr Amare Getachun ANRM Project Chris Elias USAID TANGO
Burang Goree-Ndiay Executive Secretary (Rapporteur)
Eusabio Muloshi
UNV/Programme Officer Fatma Baldeh-Forster Programme Officer (Rapporteur)
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ANNEXE IV List of Documents
1 The African Charter for Popular Participation in Development: Implications for the Role of Governments and Popular Development Organization.
2 Assessment of Popular Participation in the Formulation and Implementation of Development Policies and Programmes: A Case Study of Namibia.
3 Modalities for Enhancing Interface Between Government and NGOs.
4 NGO Consultative Meeting Recommendations to the National Planning Commission.
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