Document drafted with the support of the Sahel and West Africa Club Secretariat
Abbreviations and Acronyms
AEBR Association of European Border Regions - http://www.aebr.net/
CILSS Permanent Interstate Committee for Drought Control in the Sahel (Comité Permanent Inter Etats de Lutte Contre la Sécheresse au Sahel) – http://www.cilssnet.org
ECOWAS Economic Community of West African States – http://www.ecowas.int/
ENDA-DIAPOL Enda Prospective Dialogue Politique – http://www.enda.sn/diapol/
EPA European Partnership Agreements between the European Union and ACP countries –http://europa.eu.int/pol/dev/index_en.htm
MDP Municipal Development Partnership (Partenariat pour le Développement Municipal en Afrique de l’Ouest et du Centre) – http://www.pdm-net.org/
NEPAD New Partnership for Africa’s Development – http://www.nepad.org/
OCHA United Nations Office for the Coordination of Humanitarian Affairs –http://ochaonline.un.org/
SWAC Sahel and West Africa Club – http://www.oecd.org/sah
UNOWA United Nations Office For West Africa –http://www.un.org/Depts/dpa/prev_dip/africa/office_for_srsg/fst_office_for_srsg.htm
WABI West Africa Borders and Integration Initiative (Frontières et Intégrations en Afrique de l’Ouest) – http://www.afriquefrontieres.org/
WAEMU West African Economic Monetary Union (Union Économique et Monétaire de l’Afrique de l’Ouest) – http://www.uemoa.int
ZARESE Zones at High Environmental and Social Risk (Zones A Risque Environnementale et Social Elevé)
Contacts
N’Faly SANOH Point focal Programmes Initiatives Transfrontalières, CEDEAO nfalysanoh@yahoo.fr
Laurent BOSSARD Chef de l’Unité Développement local et processus d’intégration régionale, CSAO-OCDE. laurent.bossard@oecd.org
1.1
1.2
1.3
1.2.1
1.4 THE NEED TO GIVE A REGIONAL DIMENSION TO A LARGE NUMBER OF SECTORAL
1.5
1.4.1
1.4.2
1.5.1 Capitalising
3.4
3.1.1
3.2.1 To raise awareness and capitalise on existing cross-border initiatives.............................................17
3.2.2. Demonstrate that it is possible to support these initiatives through the implementation of pilot projects...............................................................................................................................................17
3.2.3. Provide ECOWAS and its member States with a juridical framework encouraging cross-border cooperation and support the States who want to participate.............................................................17
3.2.4
3.3.1 At
3.3.2
3.3.3
3.3.4
3.3.5
3.5.1
3.5.2
3.8.1
SUMMARY
The Cross-border Initiatives Programme (C.I.P.) resulted from the adoption of a Memorandum in January 2005 entitled “the Cross-border Concept or Local Integration” by the Ministers of Foreign Affairs of ECOWAS member countries. This would enable ECOWAS to accelerate the regional integration process fostering the increase in cross-border initiatives and projects defined and implemented by public and private local actors. The C.I.P. is not a sectoral programme. All of the aspects of West African life are involved: security and conflict prevention, health and education, agriculture, livestock breeding and environment, trade and transport, industry and services, culture and sports. This programme’s local and cross-border approach sets it apart and renders it complementary to the large sectoral regional strategies.
Rationale
West African cross-border zones are ever more populated. These zones have significantly increasing development potential although they remain marginalised and often fragile. West African cooperation and integration is hindered daily in these areas despite existing ECOWAS laws on the free circulation of goods and people and on the freedom of establishment. They also suffer the consequences of disparities between national economic policies. These are zones rarely where conflicts begin but where their consequences continue and take shape. Refugee camps are usually found in cross-border areas and are where trafficking and insecurity develop. The public and private actors of these zones have many projects, initiatives or ideas that they try to implement or would like to create: mediation structures and conflict prevention, health centres, border markets, a cross-border system of rural routes, concerted management of transhumance trails, etc. Fortunately these initiatives are strongly anchored in this environment and are able to develop over time. While recognising and supporting these initiatives, ECOWAS can accelerate and reinforce the regional integration process from the bottom up while improving the region’s security and its development.
Background
In 2003, the Sahel and West Africa Club (SWAC/OECD), the NGO, ENDA-Diapol and the National Borders Directorate of Mali created the West African Borders and Integration (WABI) Initiative with the aim to promote cross-border cooperation. At the same time other partners were developing a cross-border approach in the fields of territorial development (MDP and the WAEMU) and security (UNOWA). In October 2004, the second WABI network workshop was held in Abuja and ECOWAS’ Executive Secretariat announced its commitment to implement the C.I.P. with the SWAC’s support. In January 2005 ECOWAS’ Ministers of Foreign Affairs approved this concept (see Annex 1).
General objectives
Limit the regional spreading of instability and insecurity. Accelerate the regional integration process within the ECOWAS zone
Duration and specific objectives
The programme will be carried out over three years. It aims to:
Raise awareness of existing cross-border initiatives
Demonstrate that these initiatives can capitalise on experiences carried out on the ground.
Provide ECOWAS and its member States with a juridical framework fostering cross-border cooperation.
Create an ambitious widespread cross-border cooperation programme.
Activities
At the local cross-border level:
Activity 1: Identify and review cross-border initiatives
Activity 2: Create six pilot cross-border dialogue frameworks
Activity 3: Support ten pilot projects.
As regards relations between border States:
Activity 4: Encourage concrete involvement by the States
At the ECOWAS level:
Activity 5: Develop an ECOWAS Cross-Border Cooperation Convention (CBCC)
Activity 6: Carry out a feasibility study on an ECOWAS Fund for the Facilitation of Cross-Border Cooperation
Activity 7: Undertake a feasibility study on a cross-border observatory.
As regards relations between regional blocs:
Activity 8: Integrate cross-border cooperation in the implementation of the Economic Partnership Agreement ECOWAS – European Union.
On the basis of Activities 1 through 8, at the end of the programme:
Activity 9: Organise an international conference on the future of cross-border cooperation in West Africa around local border actors.
In order to foster synergies:
Activity 10: Develop and maintain numerous partnerships.
Implementation modalities
A special advisor to ECOWAS’ Executive Secretary for cross-border affairs
A technical team composed of a Team Leader, an expert and an assistant.
A Steering Committee to meet twice per year to discuss and adjust the programme’s implementation; and review and validate the financial choices concerning cross-border dialogue frameworks and pilot projects.
Expected results
Activity 1:
A directory of cross-border initiatives in West Africa
Promotion of these initiatives to cooperation agencies
Probably financing of several of these initiatives outside the Programme by interested donors.
Activity 2:
Creation of six cross-border dialogue frameworks
Genuine improvement of security and fluidity
Emergence of concrete projects financed within the programme’s framework or bilaterally by interested donors
Lessons learned in order to expand this approach
Activity 3:
Approximately ten pilot projects carried out; small scale but replicable
Lessons learned in order to expand this approach
Activity 4:
Dissemination of the cross-border concept and its modalities within the national administrations of countries wishing to participate
Probable additional bi- or tri-lateral agreements between particularly motivated countries.
Activity 5:
An ECOWAS Juridical Convention approved by all ECOWAS member States on which national administrations and locally elected officials would be able to rely in order to take action in crossborder areas of countries willing to participate.
If necessary, additional bi-lateral or tri-lateral conventions between particularly motivated countries.
Activity 6:
Feasibility study of an ECOWAS Fund for the Facilitation of Cross-Border Cooperation on the basis of experiences carried out within the framework of Activities 2 and 3.
Activity 7:
Feasibility study of a cross-border area observatory. Experience acquired from Activity 1 and the creation of a network of border actors will help develop a cross-border area observatory project: its purpose would be to monitor sensitive zones and facilitate dialogue, as well as to carry out structural analyses and develop strategic proposals.
Activity 8:
Officially integrate cross-border cooperation in the implementation strategy of the EPA; including the EU’s participation as regards funds for facilitation (Activity 7).
Activity 9:
International Conference on the future of cross-border cooperation in West Africa. Development of a global policy for the future of cross-border cooperation.
Activity 10:
Development of numerous partnerships with regional institutions, national and local structures, NGOs and associations.
Budget
The Programme’s budget has been set at US$1.7 million for a three-year period. Operations on the ground, which are at the core of this approach, represent almost 50% of the total budget. The regional team represents one third of the budget. The political function undertaken by the special advisor to the Executive Secretary is essential to solidifying the States’ support and administrative structures and the direct participation of these structures to operations on the ground.
The financing of the cross-border dialogue frameworks must provide for:
Modest remunerations for an NGO or a local association in order to organise dialogue framework meetings and support the development of activities
Modest financing for facilitating the implementation of a specific cross-border activity to support or solidify the dialogue framework (contribution to a cross-border cultural festival; creation of signs at border posts explaining ECOWAS citizens’ rights; contribution to the physical installation of a mediation area in order to settle cross-border differences, etc.)
Support radio campaigns raising awareness in areas concerned.
The financing of pilot projects should be provided for activities which have already been developed and in certain cases have already undergone a first phase of implementation. The amount allocated to these projects being relatively modest (US$50 000 maximum for each one), the Programme will provide support with preference to projects locally co-financed and which could be replicable. In a certain number of cases, the co-financing provided to a project could serve as a lever to mobilise a more considerable budget from a cooperation agency or an international NGO.
INTRODUCTION
This document describes the methods in which ECOWAS’ Cross-border Initiatives Programme (C.I.P.) will be implemented during the period 2006-2008. This programme was a result of the adoption in January 2005 of a memorandum entitled “the Cross-border Concept or Local Integration” by ECOWAS member countries’ Ministers of Foreign Affairs. This memorandum appears in Annex 1 attached hereto.
The “cross-border area” concept was set forth at the beginning of 2000 by Alpha Oumar Konaré, then President of Mali, who wished to see borders give way to cross-border areas: “zones of bonding, sharing and exchange, where populations on both sides of the border share schools, security posts, markets and health centres.”
“Local integration”, “Cross-border areas”, “Cross-border cooperation”, whatever the term used, it enables ECOWAS to accelerate the regional integration process fostering the increase of cross-border initiatives and projects defined and implemented by public and private local actors. The C.I.P. is not a sectoral programme. All of the dimensions of West African life are taken into account: security and conflict prevention, health and education, agriculture, livestock breeding and environment, trade and transport, industry and services, culture and sports. This local and cross-border approach sets it apart and renders it complementary to the large sectoral regional strategies.
I. PROGRAMME’S RATIONALE
1.1 The demographic and economic densification of many border zones
At the time of independence, West Africa was sparsely populated and its population was essentially concentrated on the coast and around large Sahelian cities. Between 1960 and 2000, the region’s total population multiplied 3-fold, growing from 87 to 260 million inhabitants.
The number of villages has increased significantly and, around these villages, the rural agricultural areas have become denser. The map opposite shows the evolution shaped by the relationship between rural spaces and urban markets. The darker and larger the areas, the greater the intensity of trading. It appears thus in West Africa that the trade zones once separated from each other, progressively merged with each other going beyond national borders.
Once marginalised, many of the border zones are now in the trade circuit as regards the agricultural market.
The map below confirms this evolution. It illustrates that between Sahelian and coastal countries, there are fifty or so villages with more than 50 000 inhabitants within a 150km perimeter of borderlines. If this same map had been drawn up twenty years ago, twenty or so localities would not have appeared. Over twenty years, fifteen localities have emerged. The greatest urban density of northern Nigeria and northern Cameroon illustrates what could happen within one generation, in southern Niger, northern Ghana, northern Côte d’Ivoire and southwest Senegal.
Urban cross-border network between sahelianand coastal countries
(cities with more than 50 000 inhabitants, except Nigeria where only cities with more than 100 000 inhabitants are shown)
Today, there are around 50 cities with more than 50 000 inhabitants within a 150 km radius of national borders. Would one have drawn the same map twenty years ago, around 20 cities would not have appeared. The same map in 1960 would only have shown fewer than 10 cities with morethan 50 000 inhabitants. In 20 years, a further 15 cities will appear. The high urban density in the north of Nigeria and in the north of Cameroon, gives an idea of the things to come in southern Niger, northern Ghana,northern Côte d’Ivoire and south-western Senegal within one generation.
High trade intensity cross-border zones are in the process of appearing and developing. This is where almost all foreign trade passes between the global market and the land-locked countries and between Sahelian countries and coastal countries. These zones also structure regional-local trade whose intensity has grown proportionally more than its population growth. These spaces, their potential as well as their specific risks (see item 1.3.2) must be taken into account within the cooperation and regional integration strategies.
1.2 The need to create a regional economic zone
1.2.1 Regional ambitions
Over the last years, ECOWAS has had significant success maintaining peace and collective security, to the point where certain observers have sometimes been tempted to make this their sole purpose. Furthermore, the Economic Community of West African States is, as its name indicates, an economic cooperation instrument between countries sharing common borders. The revised ECOWAS Treaty provides, in its Article 3.1, that “the aims of the Community are to promote co-operation and integration, leading to the establishment of an economic union in West Africa (…)”. The treaty also foresees that in order to achieve these goals expressed (Art. 3.2), the Community “(…) shall, by stages ensure the establishment of a common market through:
The liberalisation of trade by the abolition, among Member States, of customs duties levied on imports and exports, and the abolition among Member States, of non-tariff barriers in order to establish a free trade area at the Community level;
G.Bissau Guinea
The adoption of a common external tariff and a common trade policy vis-à-vis third countries;
The removal, between Member States, of obstacles to the free movement of persons, goods, service and capital, and to the right of residence and establishment; (…)”.
Furthermore, other factors push for the deepening of regional integration and cooperation, through the creation of a common market and eliminating barriers between States. In particular, the small size of many national West African markets hinders competitiveness of regional production as compared to Chinese, American and European market competition.
This has led ECOWAS, along with Mauritania, to negotiate and sign a regional Economic Partnership Agreement (EPA) with the European Union. This Agreement, from which soon will emerge a free EuroAfrican trade zone, is based on the hypothesis that the pressure of competition and market integration should impel the West African economy to restructure on a regional basis.
1.2.2 Specificities and potential roles of border zones
In its true meaning, border zones are the front lines of this regional economic integration ambition. There are daily hindrances and many constraints which are still going against West African cooperation and integration despite the existence of ECOWAS laws on the free circulation of goods and people and the freedom of establishment. These zones also suffer the consequences of the disparities between national economic policies. They are subject to a purely national notion of how economic sectors should be managed. While these sectors provide enormous potential, the development of this potential is hindered because of cross-border situations. A good illustration of this is the palm oil trade in Southern Senegambia, as set out in Annex 2.
The work carried out on the ground over the last few years bears witness to a remarkable capacity for proposals by border actors to concretely improve the fluidity of borders and develop cross-border economic activities.
Should concerned States allow this type of initiative and should development partners provide support to this type of programme, it would be possible to
Create cross-border dialogue frameworks where representatives from customs services and the police, private operators, locally elected officials, and ministry representatives would be involved, with the aim to apply the laws related to the free circulation of goods and people1. These dialogue frameworks could be able to develop concrete proposals aiming for example to “compensate” for the loss of a customs post in an area by setting up a border market.2
Foster the development of cross-border economic projects. For example, the transformation of peanut oil in Guinea Bissau by the Huilerie de Ziguinchor is problematic simply because of the difficulties in crossing the border. Another example, a group of traders from Katsina (northern Nigeria) proposed to finance and set up a border market but were met with difficulties in collaborating with the Nigerien authorities.
1 There are existing projects already developed in this regard: for example a project by the NGO Foddé on the border between Senegal and Guinea-Bissau (Mansa Konko – Pata zone) which aims to disseminate ECOWAS and States’ texts and by-laws towards local actors so that these local actors can be alerted to potential administrative hassles. This project benefits from the agreement by the Senegalese and Bissau-Guinean police and customs officers.
2 This would notably help accelerate the setting up of juxtaposed customs posts envisaged by ECOWAS and the WAEMU; these projects result from a “loss of activity” for areas whose customs officers and police will be situated on the other side of the border.
1.3 The need to manage regionally the consequences of conflicts
1.3.1 Regional ambitions
The last decades have demonstrated the dynamics of the regional spreading of conflicts and instability. Even with local and national origins, all conflicts can have significant regional affects: involuntary migration flows, circulation of armed groups, and often illicit trafficking of goods and resources, in particular diamonds and timber. The illegal war economy from which this results is at the same time a consequence of conflict and a source of the spreading of instability regionally.
Organisations providing support to refugees or those who fuel and finance the combatant demobilisation and reconstruction processes, attest to the difficulties linked to this regional dimension of problems which is very difficult to take into account. The concept of developing regional management tools for postconflict situations is henceforth very widely shared.
1.3.2 Specificities and potential roles of border zones
Border zones in West Africa are where refugee camps are generally located and where trafficking develops and insecurity is at its highest.
Réfugiés avril 2003 dans les pays de la MRU
Zones de réfugiés
Zones de rapatriés
Flux de réfugiés
Flux transfrontaliers
Camps de réfugiés
S. léonais (*1000)
ivoiriens (*1000)
The cross-border zone inhabitants, vulnerable due to the consequences of conflicts and/or prey to instability and insecurity, are sources of a large number of little known or hardly-supported initiatives.
On a formal level, the security services on both sides of the border maintain in many cases regular contact facilitating ad hoc collaborations (arrests of delinquents). But these collaborations are more often based only on personal relationships and not on official collaborative procedures.
For a large part, civil society implements a wide range of spontaneous initiatives, such as the hosting of refugees, the fight against trafficking or mediation. An example hereto attached in Annex 3 describes how traditional border village authorities of Senegal and Guinea-Bissau have set up “peace miradors”, places for negotiation and discussion that can prevent a large number of tensions.
Without a doubt it is necessary and possible to support these local initiatives while better coordinating their action with interventions by the international community. These initiatives have the advantage of being strongly anchored in their specific environment and of being able to develop over time. This approach is in line with the rational as set out in the programme “Integrated Strategies for Sensitive Border Areas in West Africa” piloted by UNOWA and OCCHA.3
1.4 The need to give a regional dimension to a large number of sectoral policies
1.4.1 Regional ambitions
Like various gas lines and oil pipelines built or under construction, most African infrastructures in the transport, energy, telecommunications, hydraulics sectors, as well as education and health sectors would be able to be built, managed and used within sustainable partnership frameworks between neighbouring countries. The ambition is to create integrated markets at the regional level as well as reduce poverty. Most sub-Saharan African countries suffer from a double handicap of having revenues per inhabitant among the lowest on the planet while the principal cost of services being among the highest. This double handicap reduces the probability of private and public savings to accumulate and penalizes investment as regards hydraulics, transport, telecommunications or energy, which could actually reduce the cost of main services. Unless this investment is made within a transnational framework leading to economies of scale, it will be difficult to break this vicious cycle. Furthermore, structuring infrastructure facilitates market integration which in turn can help accelerate their amortisation.
1.4.2
Specificities and potential roles of border zones
Border zones are often marginalised in the implementation of sectoral policies due to their geographic location, as regards transport, electricity, access to education and health.
Despite this type of situation, the inhabitants of these zones react with a lot of common sense. Schools and health centres are frequented by populations living on either side of the border simply because they live nearby or because the high quality of teaching or health care. These practices are accepted but not encouraged. On the basis of suggestions set forth by those local health authorities, Annex 4 describes what can be done to improve the sanitary situation in the border zone between Mopti (Mali) and Ouahigouya (Burkina Faso).
Many of ideas of this type can be proposed by local public and private actors: a cross-border system of rural routes, a more concerted management of transhumance paths, etc.
In order for these projects to emerge and be implemented, it is essential for a cross-border dialogue to be developed involving at the same time local actors, central governments (Ministry of Health, Transport, Education, etc.) and donors.
3 A United Nations Security Council mission carried out in West Africa in June 2003 brought to light these problems in the sensitive border zones. Following this mission, the United Nations Secretary-General recommended in his March 2004 report, “that the United Nations work on integrated cooperation strategies with concerned governments in the treatment of a large range of problems affecting these zones, in order to try to prevent the spread of conflicts.” From this emerged a joint initiative “Integrated strategies for sensitive border areas in West Africa”, managed by the United Nations Office for West Africa and the Regional Office for the Coordination of Humanitarian Affairs (OCHA), in close relationship with ECOWAS.
1.5 The need for a regional integration process closer to populations and with a stronger foot-hold in realities on the ground
1.5.1 Capitalising on traditional solidarities
For a long time there has been an enormous amount of economic and social trade within West Africa, which links together these different sub-regions while at the same time trading amongst themselves and other regions of the world. Trade illustrates a continuum of cultural relations which, despite different ethnicities, religious beliefs, or nationalities, determine the unitary nature of the sub-region. Political fragmentation has never hindered the populations from maintaining relations going beyond the established borders. This continuity is even more apparent in cosmopolitan centres and moreover in other border areas where there is a mélange of the regional populations. In these areas, the administrative or monetary differences do not conceal linguistic, religious or customary affinities of border populations. The border regions – or “cross-border areas (pays-frontière)” as expressed by Alpha Oumar Konaré – are characterised by a relatively homogeneous population who engage in all types of trade amongst themselves.
This traditional solidarity base is for the moment rarely taken into account in regional strategies. It however constitutes a basis and significant potential to speed up the integration process. The development of cross-border cooperation is from this angle an opportunity.
1.5.2 Bringing regional integration into the area of participatory development
Regional-level development projects until now focused on the “macro” sector: large communication or energy (dams, etc.) infrastructures, programmes fighting severe human and animal pandemics (onchocercosis, AIDS, cattle plagues), policy coordination (economic and monetary convergence, common agricultural policy).
ECOWAS intends henceforth to supplement this approach by introducing and developing of a participatory approach favouring more modest projects, but anchored in the cross-border socio-economic framework and attainable in a relatively short amount of time.
Cross-border cooperation thus provides participatory regional development, sought by populations. This approach must also support the challenge of “reconciliation” between West African populations and the regional integration process supported by organisations such as ECOWAS and the WAEMU whose efforts are often ignored and rarely understood.
II. PROGRAMME: ORIGIN AND ACHIEVEMENTS
In 2003, the OECD’s Sahel and West Africa Club (SWAC), the NGO, ENDA-Diapol and the National Borders Directorate of Mali, created the West African Borders and Integration (WABI) Initiative with an aim to promote cross-border cooperation as an efficient regional integration construction tool. At the same time, other partners emphasised the importance of a cross-border approach to territorial development (MDP and the WAEMU) and security (UNOWA).
In October 2004, ECOWAS’ Executive Secretary invited the WABI network to hold its second workshop in Abuja under the auspices of ECOWAS. This meeting would be an opportunity to invite a wide range of public and private border actors, who could present projects and concrete proposals. ECOWAS’ Executive Secretary seized this opportunity to announce the creation of an ECOWAS Cross-border Initiatives Programme (C.I.P.) aimed at supporting the implementation on the ground of projects and proposals conceived by field actors. ECOWAS and the SWAC/OECD have committed to working together in defining and implementing the C.I.P.
In January 2005, the Executive Secretariat submitted a memorandum on this theme to ECOWAS Ministers of Foreign Affairs which they have supported (see Annex 1). On this basis, the Executive Secretary informed all of its member States’ Ministers of Foreign Affairs of the operational follow-up that he intended to propel this policy forward which consists of:
Launching two cross-border cooperation pilot experiences: one in the border regions of Burkina Faso and Mali adjoining the Côte d'Ivoire (Sikasso – Bobo Dioulasso –Korhogo zone); the other in the Southern Senegambia (the zone comprised of the Gambia, southern Senegal and Guinea-Bissau). The workshops launching these pilot operations are scheduled to take place in September and October 2005, respectively. These initiatives are based on close collaboration between ECOWAS and the SWAC/OECD, UNOWA, MDP and ENDA-Diapol.
An exploratory exercise on an ECOWAS cross-border convention; based on exchanges and meetings with the Council of Europe, author of the Madrid Convention which applies to Europe as regards cross-border cooperation.
Developing the C.I.P. In the spirit of ECOWAS and the SWAC, the aim is to define a transitory period setting up projects on the ground and a policy approach in order to, at the same time, confirm the utility of cross-border cooperation and commit to a more generalised process. This document sets out this objective.
The implementation of the C.I.P. during the 2006 to 2008 period will benefit from the WABI network’s experiences and will rely on the already-established partnerships with the regional and international structures implicated in cross-border cooperation (see item 3.3).
The C.I.P. will thus capitalise on the numerous ventures already undertaken in the cross-border areas, in particular:
The zones at high social and environmental risk (zones à risques environnemental et social élevé –ZARESE)- (CILSS)
Maradi (Niger) – Katsina – Kano (Nigeria) (ENDA-Diapol and the SWAC)
Gaya (Niger) – Malanville (Benin) (the SWAC)
All of the sensitive border zones identified by UNOWA and OCHA: Guinea/Côte d’Ivoire/Liberia/Sierra Leone (Forest Guinea); Mali/Burkina Faso/Côte d’Ivoire/Ghana; Mauritania/Mali/Niger
Furthermore, the implementation of this programme will be supported by the existing specific partnership between the SWAC and ECOWAS in the area of cross-border cooperation. A certain number of activities on which the SWAC is currently working will be progressively integrated and then transferred to the C.I.P., in particular:
An exercise aiming to create a cross-border initiatives directory (see Activity 1 described below).
To support raising the States’ awareness (see Activity 4).
Joint strategic thinking with the Council of Europe as regards the drafting of an ECOWAS crossborder convention (see Activity 5).
III. PROGRAMME DESCRIPTION
3.1 General objectives
Implemented by ECOWAS, the C.I.P.’s main feature is to capitalise on the cross-border populations’ initiative to promote peace, stability and development. Its general objectives are:
3.1.1 Limit the regional dissemination of instability and insecurity
Peace and security are the first conditions for development and regional integration. ECOWAS, with the help of its partners, has developed policy and military tools in order to face this essential endeavour. In order to complete this panoply, it is now vital to capitalise on local cross-border initiatives related to early warning, mediation and promotion of dialogue. These are the initiatives implemented by traditional authorities, locally-elected officials, youth organisations and cultural associations who are in a position day-to-day to manage tensions, fight against illegal trafficking, and develop economic activities.
3.1.2 Accelerating the regional integration process within the ECOWAS zone
If regional cooperation and integration must foster the emergence of a West African Economic Union through the creation of a common market, these objectives will not be achieved only by proclamation. They must be supplemented by policies and concrete measures which can result in changes on the ground. These policies and measures should in particular alleviate the barrier effect produced by borders:
While increasing defined cross-border projects and their implementation by the beneficiaries in the areas of security, agriculture, livestock breeding, hydraulics, and territorial development (paths, routes, markets), health (sharing health centres, allocating medical expertise between two border health centres), and education.
While creating public-private local coalitions responsible for making, negotiating and adapting realistic proposals in the area of free circulation of goods and people.
3.2 Duration and specific objectives
The C.I.P.’s implementation is set to cover a three year period from January 2006 to December 2008. As regards the general objectives set out above, the specific objectives are:
3.2.1 To raise awareness and capitalise on existing cross-border initiatives
The multiple positive cross-border dynamics must be underscored to convince member States and the international community of the utility of cross-border cooperation.
3.2.2. Demonstrate that it is possible to support these initiatives through the implementation of pilot projects
The potential of cross-border cooperation to react rapidly and greatly improve security and the regional integration process must be demonstrated on the ground.
3.2.3. Provide ECOWAS and its member States with a juridical framework encouraging crossborder cooperation and support the States who want to participate
Today West Africa does not have a juridical framework encouraging cross-border cooperation. It is thus essential to provide ECOWAS with such a framework which would allow member States to participate in cross-border cooperation. On the other hand, ECOWAS must support the States’ national administrations who so wish to do so, in the process of applying this juridical framework.
3.2.4 Coming up with an ambitious programme to disseminate cross-border cooperation.
On the basis of activities which will lead to the specific objectives 3.2.1 to 3.2.2, ECOWAS must devise, with its partners, a much more ambitious programme with:
A cross-border area observatory “pays-frontière”;
A regional fund for the facilitation of cross-border cooperation.
This ambitious programme could possibly be supplemented by the creation of a West African border region association, if however the locally-elected officials of the region express such a desire and support the project.
3.3 Approach and activities
The C.I.P. is based on four levels of interventions:
“Close” cross-border relationships between authorities and/or local/regional communities (1);
Bi- and tri-lateral relationships between States that share a common border, absolutely essential to development (2);
Regional intergovernmental framework (3)
Relationships between regional blocs eager to solidify relations in the context of their internal and external integration (4).
3.3.1 At the local cross-border level
The local/regional level is the most important in the operational aspect and concretisation of the programme4. At the local/regional level the policies’ aims are able to become realities on the ground with the help of socio-economic, operational and concrete processes.
Activity 1 Identification and review of cross-border initiatives. Knowing that now most West African borders abound in or have plans for cross-border cooperation initiatives, the programme will undertake to identify these initiatives. This approach will examine all types of initiative: twinning of towns and villages, mediation associations and the preservation of peace, initiatives in all of the socioeconomic sectors, collaborations between health centres/hospitals, schools or colleges, border markets, etc.
Activity 2. Creation of cross-border dialogue frameworks – formal and permanent – between authorities and/or local/regional communities, on both sides of the border. Such frameworks should be first set up within strategic areas in terms of security or trade or moreover the pivotal role they could play in sub-regional territorial development. A project of juxtaposed border posts could be an advantage5
Preparatory work will be undertaken to help identify approximately twelve sites in border areas belonging to ECOWAS member States who are willing to participate in this pilot experience.
4 It includes the border municipalities, the decentralized levels of territorial administration (departments, circles, etc.), and stretches to local communities at the regional level or Federated States as regards forms of politicoadministrative organisation. It can also be that it corresponds to historic territories provided with a certain geographic, social or cultural homogeneity.
5 The regional transit and road transport programme (ECOWAS/WAEMU) plans notably to set up juxtaposed border posts at intra-community borders with the aim to making traffic more fluid.
On each of these sites, ECOWAS will support, through the Programme, the creation of a cross-border dialogue framework for a period of one year, renewable one time only. Each dialogue framework will be composed of representatives of locally-elected officials, representatives of local State services, civil society, the private sector and associations.
Each dialogue framework will establish, with the assistance of a consultant, a precise analysis of crossborder problems (security, barriers to free circulation, barriers to the development of certain economic industry, problems linked to transhumance, access to healthcare problems, etc.). On this basis, a work programme will be developed aiming either to improve a situation by greater coordination or by dialogue, or to concretely develop a project.
Each dialogue framework will benefit from the support of a local NGO-type structure financed by the project.
An evaluation and auto-evaluation exercise will help identify the achievements and problems after the first year and from which will possibly emerge a second year of support for the programme.
Activity 3. Support of pilot projects. Activities 1 and 2 and the programme’s achievements described in Point II above must quickly lead to modest projects or initiatives of an exemplary nature to merit ECOWAS’ direct support through the Programme. This limited budget (maximum € 25 000) could help a project be carried out or facilitate obtaining co-financing from donors or international NGOs located in the countries concerned. A dozen or so pilot projects could thus be supported.
3.3.2 Relations between border States
If the C.I.P.’s success is linked to the progress of local community initiatives these local communities must have the support of the interested border States. In particular, sovereignty Ministers (Foreign Affairs, Interior, Borders, etc.), those of Transport, Territorial Development, indeed Trade, Agriculture, Education or Health can play more or less significant roles in the deepening of border relationships. In order for these sovereignty Ministers to be involved, the minimum of a relationship would have to be developed. These relations can expand informally, but in order to be able to become systematic and in general essential to maximising the cross-border area potential, they must benefit from the agreement and commitment by the countries’ governments concerned.
Activity 4. Foster genuine involvement of States. Even if ECOWAS member States’ Ministers of Foreign Affairs have approved the memorandum on the cross-border area concept (see Annex 1), and even if some States decide at a high level to participate in cross-border cooperation, important information and raising awareness remains to be done at the national administration level. National governments can impel active participation in or support for cross-border dialogue (Activity 2) and pilot projects (Activity 3) from their local representatives. Furthermore, the same awareness-raising and explaining must be brought to the attention of associations’ locally-elected officials and aid agency representatives and international NGOs based in the countries concerned. Finally, meeting with the already existing bilateral dialogue structures (“mixed commission” type) is essential in order for them to be involved and encourage them to integrate cross-border cooperation. In cases where such commissions do not exist, ECOWAS can encourage the creation of cross-border work commissions in order to develop or manage communal equipment, health or social services, and natural resources.
3.3.3 At the ECOWAS level
As much as the encouragement of strengthened cooperation between two or more States appears desirable, cross-border cooperation must provide important benefits – and more so authority – of a cross-border community juridical framework. ECOWAS must also be where strategic thinking develops on spreading cross-border cooperation as a regional integration instrument.
Activity 5. ECOWAS Cross-border Convention (CBCC). First, legal experts from ECOWAS member States will meet to discuss a draft Convention inspired by the Madrid Convention6. The Regional Chamber of Congress of local and Regional Authorities of the Council of Europe is ready to provide counsel and technical assistance to such an undertaking. Secondly, this revised project will be submitted to ECOWAS’ statutory authorities (Council of Ministers and Heads of State Conference). This Convention will be able to serve as a basis for strengthened cooperation between two or more States who would wish to do so.
Activity 6. Feasibility study on establishing an ECOWAS Fund for the Facilitation of CrossBorder Cooperation. The ECOWAS zone level is strategic in order to support pilot operations on all intra-regional borders. ECOWAS must take responsibility for all the steps leading to the setting up and management of a fund facilitating cross-border initiatives. This fund could be managed by ECOWAS (all aspects of publications, commission studies, technical and policy support, etc.). In this respect, ECOWAS would be able to exchange dialogue with the European Union and the Association of European Border Regions (AEBR) who have worked towards setting up such a mechanism within Europe. Within the framework of the Programme, ECOWAS will be responsible for a feasibility study of such a fund including the research and financing.
Activity 7. Feasibility study on a cross-border area observatory. The border regions present specific characteristics, linked to history and geography which distinguishes them for the rest of the national territory. As such, they determine specific social situations which are above all recognised by their inhabitants and those who govern them. Therefore, there are several series of official and unofficial obstacles for which the solution goes through the mediation process between local communities, governments and integration organisations. Activities 1 (review of initiatives), 2 (dialogue frameworks), 4 (involvement of States) and 5 (ECOWAS juridical Convention) should lead ECOWAS via the C.I.P. Programme to develop an early warning and facilitation system of eventual border problems. For example:
- Local, public, or private actors can provide information on the possible development of tensions (linked for example to land issues, cattle theft, illicit trafficking, etc.)
- Locally-elected officials at border towns can observe tensions in their village between certain communities.
On the basis of this information, the Executive Secretariat would be able to facilitate dialogue and create synergies between authorities at different levels on each side of the border. The Executive Secretariat would develop so that initiatives and proposals by social groups are best informed of eventual difficulties such as locally-elected officials, transport unions and traders, police and customs, etc.) The Secretariat would aim at times to solve certain urgent problems through informal contacts, but would be also best placed to propose regulatory reforms on border issues to States through ECOWAS.
On a structural level, the understanding of border areas can lead ECOWAS to develop and implement medium- and long-term action plans for zones considered sensitive and strategic for the regional integration process. The ECOWAS Fund for the Facilitation of Cross-Border Cooperation would thus be greatly useful.
On the basis of these beginnings and achievements during the three year activity period, the C.I.P. would develop a feasibility study on a cross-border area observatory.
3.3.4 Relations between regional blocs: EPA ECOWAS – E.U
The new EU-ACP Agreements, which have resulted from the Cotonou Convention, foresees substituting the global relationship between the Africa-Caribbean-Pacific (ACP) countries and the European Union
6 The Madrid Convention, drafted by the Council of Europe in 1980, is a juridical text which founded cross-border cooperation in Europe.
(EU), with the Economic Partnership Agreements (EPA) – or free-trade zones – between the EU and the regional blocs. West Africa is relatively ahead in this process since it has already determined the group of countries (ECOWAS, along with Mauritania) with which to negotiate the new partnership and consequently form a regional bloc made up of a Euro-African free- trade zone. Due to the size of the ECOWAS zone market, this choice helps envisage that the region will be able to better take advantage of the productive complementarities.
Regional integration is the basis for the EPA’s implementation:
“Building on regional integration initiatives existing with the ACP, EPAs will contribute to consolidating and deepening these initiatives. They will help to make regional integration more effect and help to create larger markets7”.
The strengthening of West African regional integration and the creation of a single West African market is a condition for EPA implementation. While supporting the implementation of a large number of crossborder projects, cross-border cooperation would be able to play a key role in the actual lowering of internal border barriers and creating this market. In Europe, cross-border cooperation has however played this role and continues to be an essential component in regional integration policy8
Activity 8. Integration of cross-border cooperation in the implementation of the EPA. Through the Programme, ECOWAS will assure the coordination between the C.I.P. with the process leading to entering into force 1 January 2008, and the Economic Partnership Agreement EU-ECOWAS. This activity could be to a certain extent confused with Activity 6 by the possible means of financing an “ECOWAS Fund for the Facilitation of Cross-Border Cooperation” within the framework of the next Indicative Regional Programme (I.R.P.). It should also be noted that this activity would represent an opportunity to examine the European experience – which has already been established – of cross-border cooperation, and benefit from the accumulated knowledge of the European border movement.
3.3.5 Preparing for the future
All of these activities presented in the preceding points aim to test cross-border cooperation on the ground, to provide the region with a policy and juridical framework promoting this approach and the development of more cross-border projects.
Activity 9. International Conference on the future of cross-border cooperation in West Africa. It is essential to review the achievements of the programme and invite West Africans (State representatives, local public and private actors involved in the dialogue frameworks and pilot projects) to engage in strategic thinking with partners of programmes and aid agencies, on the future of cross-border cooperation. Such will be the theme of this conference which will mark the end of the programme and should help define eventual modalities to expand cooperation in West Africa.
3.4 Partnerships
Activity 10. Partnerships. All of the activities described in the previous point are based on already existing or developing partnerships, notably, in alphabetical order:
7 European Commission source document: “Economic Partnership Agreements: start of negotiations – a new approach in the relations between the European Union and the ACP countries; Directorate General Trade, Directorate General Development; 2002.
8 In Europe, the cross-border cooperation initiatives preceded the Single European Act signed in 1987 (Common External Tariff, free circulation of persons, goods and capital). But the development of support programmes for cross-border projects and those of European regions are in effect concomitant of the Single Act.
Association of European Border Regions. ECOWAS would like to solidify a partnership with the AEBR in order for West African border zones to benefit from the European ground experience. This could result in exchanges of experience, training, study trips and direct partnerships between European border regions and West African border regions.
CILSS. Close collaboration with the CILSS who provides the knowledge and legitimacy in order to promote Sahelian border interests and, more particularly, the zones at environmental and high social risk (ZARESES) will be essential.
Council of Europe. ECOWAS would like to formalise and develop its collaboration with the Regional Chamber of Congress of local and regional authorities who can provide precious support to defining and implementing the ECOWAS Cross-Border Cooperation Convention.
Municipal Development Partnership in West and Central Africa. ECOWAS would like to work closely with the MDP of which West African associations of locally-elected officials recognises its regional legitimacy. Furthermore, the MDP is developing a regional programme, of which one of the components is the border areas, in support of territorial development in collaboration with the WAEMU.
NEPAD. ECOWAS will define its efforts in the area of cross-border cooperation with those who are involved with the implementation of NEPAD. The current organisation of the New Partnership for Africa’s Development (NEPAD) divides the continent into five regions, of which one is West Africa (ECOWAS + Mauritania). This regional approach’s aim is to base the infrastructure policies on sufficiently homogeneous geographic, demographic, economic and social dynamics in order to maximise their duplicator effect. The value-added resulting from a better public policy adjustment to cross-border dynamics would surely be a significant achievement.
Sahel and West Africa Club/OECD. The Club will continue to support ECOWAS in the crossborder sector. Through the “West African Borders and Integration (WABI”) network which works in collaboration with the NGO ENDA-Diapol. The WABI network will encourage the dissemination of collaboration framework experiences and pilot projects (internet site http://www.afriquefrontieres.org/, synthesis documents, etc.). The Club will contribute to disseminating and debating the results of the programme at the centre of ECOWAS’ donors.
United Nations Office for West Africa (UNOWA). ECOWAS already collaborates with the UNOWA within the framework of the “Integrated Strategies for Sensitive Border Zones in West Africa”. This collaboration should be developed and strengthened. A certain number of collaboration frameworks and pilot projects implemented within the framework of the Programme should in effect touch directly on problems of security and management of post conflict situations.
WAEMU. ECOWAS already develops numerous partnerships with this sister organisation, notably on setting up juxtaposed customs posts. Furthermore, the WAEMU’s strategy is also in line with cross-border cooperation. ECOWAS would like to collaborate very closely with the WAEMU, notably in the implementation of the cross-border dialogue frameworks and pilot projects.
3.5 Implementation modalities
3.5.1 A special advisor to ECOWAS’ Executive Secretary for cross-border affairs
A special advisor, based at ECOWAS Headquarters and reporting directly to the Executive Secretary, will assure the general direction of the Programme. This advisor will be directly responsible for the implementation of:
Activity 4 (Involvement of the States)
Activity 5 (ECOWAS Cross-Border Convention)
Activity 6 (Feasibility study on an ECOWAS fund for cross-border cooperation)
Activity 7 (Feasibility study on a cross-border area observatory)
Activity 8 (Integration of cross-border cooperation in the implementation of the EPA)
Activity 9 (Conference on the future of cross-border cooperation)
Activity 10 (Partnerships).
The advisor shall be a West African personality having at the same time the understanding of the stakes and cross-border realities as well as the capacity for high level policy dialogue.
3.5.2 C.I.P. technical team
The technical team, based at ECOWAS Headquarters, will report directly to the special advisor. The team will be responsible for providing technical support to the special advisory for the specific tasks defined above and the implementation of:
- Activity 1 (Identify and review of cross-border initiatives)
- Activity 2 (Creation of cross-border dialogue frameworks)
- Activity 3 (Pilot projects).
The technical team will also be responsible for financial and logistical management, activity reports and financial reports.
The team will constitute:
- A team leader. A West African national, having a good understanding of realities on the ground in West Africa and extensive experience as regards setting up and managing projects on the ground.
- A West African expert also having extensive experience as regards setting up and managing projects on the ground.
- An assistant
The team will have the necessary means to engage expertise when needed.
3.5.3 A Steering Committee
The Steering Committee will be composed of:
- A representative from ECOWAS’ Executive Secretary
- A special advisor to ECOWAS’ Executive Secretary
- Representatives from the aid agencies financing the Programme
- A representative from the WAEMU
- A representative from the CILSS
- A representative from the MDP
- A representative from UNOWA
- A representative from the SWAC/OECD
The Steering Committee will be able to co-opt new members.
The Steering Committee will meet twice a year in order to discuss and guide the Programme’s implementation, to discuss and validate the financing choices concerning the cross-border dialogue frameworks and pilot projects.
3.7 Expected Results
The expected results can be summarised as follows:
Activity 1: Identification and review of cross-border initiatives.
- Publication and updating of a directory of cross-border initiatives in West Africa, thematic and spatial. Possibility of a comparative analysis of implementation methods.
- Promotion of these initiatives to aid agencies. Probable financing for several of these initiatives outside of the Programme by interested aid agencies.
Activity 2: Creation of cross-border dialogue frameworks
- Creation of 6 dialogue frameworks.
- In certain implicated zones: concrete improvement of security and fluidity thanks to permanent dialogue between all categories of actors.
- In certain implicated zones: emergence of financed concrete projects within the Programme’s framework or bilaterally by interested aid agencies.
- Operational lessons in order expand this approach.
The reader can refer to section 3.8.2 below for details on financing modalities and the types of activities of the dialogue frameworks.
Activity 3: Support of pilot projects.
- Approximately 12 pilot projects to be undertaken; modest but exemplary.
- Operational lessons in order to expand this approach.
The reader can refer to section 3.8.2 below for details on financing modalities and the types of activities of the pilot projects.
Activity 4: Foster concrete involvement of the States.
- Dissemination of the principle and modalities of cross-border cooperation within the governments of countries who wish to participate.
- An active participation by the governments in the implementation of dialogue frameworks and pilot projects.
- Active involvement by locally-elected officials associations.
- An ECOWAS juridical Convention approved by all of ECOWAS member States on which governments and locally-elected officials can rely for support in order to take action in border areas of countries who wish to participate.
- If necessary, additional bi- or tri-lateral conventions between particularly motivated countries.
Activity 6: Feasibility study on an ECOWAS Fund for the Facilitation of Cross-Border Cooperation.
- Concrete experience in the promotion and management of modest cross-border projects (Activities 2 et 3) and dialogue with representatives of the European cross-border experience aiding the definition of a realistic project.
Activity 7: Feasibility study on a cross-border area observatory.
- Concrete experience undertaken within the Programme’s framework aiding the definition of a realistic project.
Activity 8: Integrate cross-border cooperation in the implementation of the EPA.
- Officially taking into account cross-border cooperation in the EPA’s implementation strategy; including the EU’s participation as regards funds for facilitation (Activity 7).
Activity 9: International Conference on the future of cross-border cooperation in West Africa.
- Strategic thinking on the future of cross-border cooperation based first on the observations and analysis of actors implicated in the dialogue frameworks and pilot projects and on the debate between these actors and national and regional leaders and cooperation agencies.
- The validation and development of a credible and reasonable goal.
Activity 10: Partnerships.
- Partnerships having kept their autonomy and their agenda while contributing, within the Programme’s framework, but also outside of the Programme, to the development of cross-border cooperation in West Africa.
3.8 Budget
3.8.1
General Presentation
As set out in the following table, the Programme’s budget is established at US$1.7 million for a period of three years.
Operations on the ground, at the core of this approach, represent 50% of the total budget. They will have on the one hand an immediate effect on the improvement of livelihoods of the populations concerned. On the other hand, they will aim to demonstrate that political support and modest financial support can allow a local initiative to play an important role in the regional integration process in West Africa.
The regional team represents one third of the budget. The team members’ unit includes salaries, social charges, and various indemnities or charges (moving, family, etc.). The political function undertaken by the special advisor to the Executive Secretary is essential to solidifying the support of States and administrative structures and the direct participation of these structures to operations on the ground. The quality of the team’s work will depend in particular of its capacity to be on the ground and its proximity to public and private border actors. This explains why 5% of the budget is devoted to missions.
Production and editing documentsFixed price/year50003150001% Translation of documentsPage50500250001% MissionsMission2000501000006%
II. External expertise in support of the team857505% Review of initiativesExpert/day200100200001% Study identifying sites for dialogue frameworkExpert/day2503075000% Evaluation of dialogue frameworkExpert/day2503075000%
Support development of pilot projectsExpert/day20060120001% Feasibility Study on Facilitation FundExpert/day2503587501%
Experts from member States meeting (30 pers)Meeting300001300002% Conference on the future of cross-border coop (80 pers)Conference800001800005%
IV. Test operations on the ground80000047%
Support to cross-border dialogue frameworksFixed price/2yrs50000630000018%
Support to pilot projectsFixed price/projec 500001050000029%
3.8.2
Explanatory elements on the financing and nature of operations on the ground
The financing of cross-border dialogue frameworks must provide, notably, the following elements:
- Modest remuneration for an NGO or local association for organising dialogue framework meetings and supporting the development of activities over a certain period of time. This local structure will be responsible for producing documents regularly on the negotiation proceedings (for example border crossings), on the proceedings of the development of a project (for example the implementation of a cross-border subscription system allowing access to a health centre, etc.)
- Modest financing to facilitate the implementation of a specific cross-border activity to support or solidify the dialogue framework; for example contributing to a cross-border cultural festival; creation of signs at border posts explaining ECOWAS citizens’ rights; contribute to the physical installation of a mediation area in order to resolve cross-border differences (type “peace mirador”, refer to Annex°3); etc.
- Support radio campaigns raising awareness in areas concerned
- Organise dialogue framework meetings.
The financing of pilot project must be provided for already developed projects and in certain cases having undergone the first phase of implementation.
The amount allocated to these projects being relatively modest (US$50 000 maximum for each one), the Programme will provide support in preference to projects locally co-financed and could be replicable. In a certain number of cases, the co-financing provided to a project could serve as a lever to mobilise a more considerable budget from a cooperation agency or an international NGO.
ANNEX 1: MEMORANDUM APPROVED BY ECOWAS COUNCIL OF MINISTERS, JANUARY 2005
MEETING OF FOREIGN AFFAIRS MINISTERS ACCRA, 18 JANUARY 2005
MEMORANDUM
“CROSS-BORDER” CONCEPT OR LOCAL INTEGRATION
Executive Secretariat Abuja, January 2005
1- The strengthening of the regional integration process takes on a new dimension when new actors enter the process, namely local border populations. In effect, more and more cross-border dynamics are developing within common zones. Populations who live in these zones regularly take initiatives to collaboratively manage the borders.
2- On either side of the border, within a band of one hundred twenty kilometers it is not out of the ordinary for populations to share, in an informal manner, health, education and market facilities.
3- All of these initiatives converge with ECOWAS’ aim to strengthening regional integration.
4- However, surveys carried out on the ground reveal that these initiatives are scattered and not very well known. There is not enough institutional handover to the national and regional levels. The Republic of Mali, who understood early on the importance and significance of this approach, has committed to joint strategic thinking with the Sahel and West Africa Club and ENDA-Diapol on the border issues involving certain local actors, civil society, State structures, ECOWAS, the WAEMU with an aim to developing a tool to promote regional integration.
5- The Malian Initiative has come a long way because the Executive Secretariat, the Sahel and West Africa Club, the National Borders Directorate of Mali and ENDA-Diapol have, over a certain period of time, been able to outline the “Cross-border” concept. This Memorandum sets out the concept’s origin, focus and proposals for the concept to be made operational.
Origins
6- This innovative approach to the regional integration process was first put forward in early 2000 by Mr. Alpha Oumar Konaré, ex-President of Mali calling it “cross-border areas”. These areas share the same geographic space that could not be divided by physical borders. This was the beginning of a conceptual process of the “cross-border area” idea. Successive meetings of experts along with Ghanian and Malian Heads of State in March and May 2002 in Sikasso and subsequently in Accra have made it possible to better understand local border realities, to share various experiences of cross-border cooperation and to come to the following conclusions:
- To improve trade routes of agricultural and fishery products within common border zones;
- To implement an integrated public health programme improving access to health care by populations on both sides of the border;
- To share a common border market;
- To permanently carry out work on conflict mediation and prevention by the Youth Groups living in the border zones who meet each other regularly.
7- Convinced of the validity of this pragmatic approach to the regional integration process and above all of the potentials for integration in cross-border zones and for those who live there, the ECOWAS Executive Secretariat has become involved in the process.
8- Hence, ECOWAS took the initiative to organise a workshop from 27 to 29 October 2004 in Abuja, in conjunction with the Sahel and West Africa Club, on “Borders and Regional Integration”.
9- The Workshop brought together approximately sixty participants from regional cross-border zones. It resulted in, among other things, the adoption of a joint declaration on cross-border cooperation supporting the integration process.
10- In this regard, encouraged by the agreement and the richness of the debates and the vital role played by local actors, the ECOWAS Executive Secretariat and the Sahel and West Africa Club agreed to strengthen their cooperation by creating a Cross-border Initiatives Programme (CIT).
11- An ECOWAS Executive Secretariat Programme, the CIT aims to place cross-border cooperation at the heart of the regional integration process in West Africa and to promote it as an integration tool to support populations.
12- A technical meeting took place in Paris on 20 November 2004 bringing together ECOWAS, the Sahel and West Africa Club, the National Borders Directorate of Mali and ENDA-Diapol examining a cross-border initiatives programme.
13- At this meeting, the cross-border initiatives programme’s specific objectives were defined around four areas:
(1) The development of an agreement on cross-border cooperation in the ECOWAS zone to allow local border communities to conclude agreements between themselves.
(2) The awareness of cross-border initiatives in all of ECOWAS’ Member States
(3) The creation and implementation of cross-border pilot projects.
(4) The strengthening of cooperation with the European Cross-border Movement.
Concept’s content
14- From the field work carried out by the Sahel and West Africa Club, the National Borders Directorate of Mali and ENDA-Diapol at border villages it is obvious that there are numerous possibilities for exploitation of a local border integration policy
15- The case of a villager from one country cultivating land that is actually situated within a neighbouring country is cited. There is also the case of children in one country attending school in a neighbouring country; using neighbouring infrastructure can also be seen in the health sector. This can result in local health clinics being more advanced in one country than in another or a doctor’s reputation going beyond the border. The case of patients from a Malian village who seek treatment in Djibo in Burkina Faso because of the reputed surgeon in Djibo due to better medical training is also cited.
16- In the trade sector, there has been a lot of talk of border markets being frequented by populations residing in a neighbouring country. This is the case of the sub-regional market of Diaobé in Senegal. A system and market calendar exists throughout the region.
17- Transhumance pastoralism occrus all along the border. There are plenty of other examples in the sub-region. These are all telling signs of solid socio-cultural and economic links bonding the border zones.
Conclusion
18- At the same time as efforts undertaken within the framework of ECOWAS, the Member States develop other forms of strengthened cooperation in some areas.
19- Moreover, other actors, notably intra-state territorial communities regularly experiment with diverse types of collaboration which converge with regional integration. All of these efforts are complementary and can produce positive effects even more significant than if they were closely coordinated.
20- The Malian Initiative has already been integrated by ECOWAS whose regional mandate allows it to go beyond any division that may exist between Member States or between populations. ECOWAS’ should promote the “cross-border” concept and assure its implementation in the years to come because of its significance at all levels of the regional integration process.
21- With this view, at the meeting of Foreign Affair Ministers, the ECOWAS Executive Secretariat asked for the approval of the following proposals:
22- The introduction of the “Cross-border” concept on ECOWAS’ agenda.
23- The organisation by the Executive Secretariat of a meeting of Experts of Territorial Administration of ECOWAS Member States with a view to developing a draft agreement on cross-border cooperation at the ECOWAS level which would allow local border communities to work directly on themes of common interest. This meeting will also examine practical ways to create a “Cross-border” Observatory proposed by the Republic of Mali. Such an undertaking would further involve all of ECOWAS’ Member States in the strategic thinking concerning better decision-making to which they are committed.
24- Identification, creation of cross-border pilot projects on a participative basis involving ECOWAS, local actors, and development partners.
25- The acceptance of the “Cross-border” concept in all of ECOWAS’ Member States with a view to reduce the lack of information.
26- The creation of a Regional Association of West African Border Towns. This could be used as a framework of collaboration and dialogue among local actors. Given its regional dimension, ECOWAS can take the initiative to organise the constitutive meeting of this Association. The Association could then be accorded the statute of observer.
ANNEX 2: PALM OIL TRADE IN SOUTHERN SENEGAMBIA
Source: ENDA-Diapol
Palm oil trade represents a truly sub-regional industry. It symbolises perfectly the dynamic exchanges between the populations of the various states in the region. The main centre of these exchanges is the weekly market in Diaobe, a small Senegalese town which structures a large part of the sub-regional oil trade. Diaobe is located about 100 kilometres from Kolda, close to the Guinea and Guinea-Bissau borders. Substantial quantities of oil are traded there every week: on average 80,000 litres, according to information collected from wholesalers. This is considerably more than the 15,000 litres cited in official figures from 1997.
A vast majority of the oil sold at that market arrives from Guinea Conakry. Yet, the quantity of supply from Guinea-Bissau is not insignificant, even if the flows are more irregular than those coming from Guinea Conakry. While the forest resources of Guinea-Bissau are not as considerable as those of Guinea Conakry, it appears that Bissau’s weak communications infrastructure represents the primary obstacle to the development of production capacity.
Palm OilTradein Southern Senegambia
RegularflowsfromDiaobe
Intermittent flows
Maritime flowsinterruptedsince shipwreckofJoola
ENDA –DIAPOL andSWAC/OECD 2003. Source : ENDA -DIAPOL
Wholesalers working in Diaobe are mostly from Guinea and Guinea-Bissau. They bring palm oil in 200litre drums at the rate of several dozen per dealer per week. The drums are then sold to Peul women who have organised themselves into groups so as to negotiate better terms with the wholesalers: regarding, for example, group rates and credit. The network of women operates on the basis of trust developed through the regularity of their transactions, which accounts for the fact that entrance into the network is only possible through cooptation; the women co-opt one of their friends and act as the newcomer’s guarantor with the wholesaler, who then agrees to supply this new partner with oil on credit.
BANJUL
Kaolack
Tamba
Kolda
Zinguinchor
BISSAU
Bafata
DAKAR
Diaobe : Regional Marketfor Palm Oil
Diaobe : Regional Marketfor Palm Oil
Kayes
Main pavedroad Tracks Guinea
These women are also collectively organised for the purpose of transporting the drums, which are distributed not only in the regions of Kolda and Ziguinchor, but also in the loumos, the small border markets of Gambia and Guinea-Bissau (the Guinea-Bissau market is supplied when it runs a deficit). The oil also follows a much wider regional route, northwest to the urban markets of Dakar and Saint Louis, all the way to Mauritania, and east to Mali.
The regional trade in palm oil is closely scrutinised by the authorities of the countries within which it operates. In each area where the oil is produced, the forest services levy a tax and issue export licenses. Once the product crosses the border, the forest services control its circulation: they levy a small tax and issue a territorial circulation certificate. The control services of the various countries recognise the validity of documents issued by their neighbours, which facilitates the circulation of oil.
Even though customs barriers remain important, because the prevailing regulation is not properly enforced, other factors hinder the development of this regional sub-sector. All the industry actors and the local and regional authorities of the countries involved should collectively address these issues. This would enable them to deal concretely with common problems, such as the improvement of commercial infrastructure in Diaobe and transportation infrastructure within its sphere of influence, the development of oil processing and conditioning capacities (the industrial oil mill at Ziguinchor only processes peanuts), etc. Many of the most important issues can only be resolved if they are dealt with at both the local and regional levels.
ANNEX 3: THE “PEACE MIRADORS” BETWEEN SENEGAL AND GUINEA-BISSAU
Mr. Ndiobo Mballo, Coordinator for NGO 7A and Mr. Mballo, Chief of the village of Coumbacara (Senegal). July 2005
Following the “Journées du sésame” organized by NGO 7A, the people of Coumbacara (a village on the Bissau-Guinean border in Senegal) voiced the desire to construct a “peace mirador”9 Can you tell us more about this initiative?
“One day, Ousmane, Chief of the village of Saré Becar on the Bissau-Guinean side of the border, found the elders of the village of Coumbacara gathered beneath the palaver [discussion] tree. Seated together on the ground, they were discussing the problems of the village. Upon seeing this, Ousmane suggested building a mirador to enable people to meet together and talk. Once built, it became a site for discussion and decision-making on issues affecting the whole community. Women, youngsters, and men all made use of it. The village chief, for his part, would attend the meetings and then inform the village notables of the decisions made.
This mirador has served the needs not only of the village of Coumbacara, but also of villages in GuineaBissau. During religious festivities, decisions are made by the imam, but as a final recourse, they are submitted for consideration at the mirador. Similarly, when the Rural Council makes a decision, it first convenes the people of the village at the mirador. This activity thus represents a cohesive force for villages that disregard political parties, as well as religious and national bonds. This initiative originated among the people of Guinea-Bissau, who found in it a means for strengthening their ties with border villages in Senegal. The mirador, in fact, paved the way for the creation of a weekly market in Guinea-Bissau. This was where the Senegalese decided to support Bissau-Guinean efforts to open the market.
When problems in Guinea-Bissau hindered the travel of the Senegalese, solutions were sought out at the mirador (and vice versa). It was here that potential tensions were anticipated and conflicts were arbitrated.”
The peace mirador is one among many examples of traditional forms of conflict management. Tell us a little about the one referred to as the “Gamou of forgiveness”?
“In Coumbacara, there has never been a tradition of the Gamou10. The Gamou represents a time for strengthening faith and for engaging in discussions about the Koran. An influential imam from the region first introduced it, and we have since extended it to other aspects of village life. The element of forgiveness associated with the Gamou is specific to Coumbacara. In the past, there was a big cultural event which consisted in “bringing the road,” a Fulani phrase which means clearing a symbolic and unifying path between our village and Guinea-Bissau.
At each Gamou, the imam devotes some time to questioning the people about possible ways to strengthen their unity. Along these lines, debtors have been granted public pardons from their creditors without having their names openly revealed. Debts as high as two million CFA Francs have thus been erased, a process that rehabilitated severely deteriorating social relations within the village.
9 The mirador is a rectangle composed of bamboo laths with sides of between 10 to 15 meters in length. At times resting upon posts as high as 25 centimeters, with a piece of corrugated metal used as a roof. It serves as place of shelter and rest for travelers. When this is the case, it is situated at the entrance of a village or along a path linking one land concession to another. More commonly, the peace mirador is located at the center of the village under the palaver tree. Known as “diurè” in Pulaar, it occupies the same symbolic role as a place of arbitration and conflict resolution for the Diola and Mandingo communities.
10 At the beginning the big Gamou was the occasion to celebrate the birth of the prophet (Maouloud). Afterwards the Gamou became more frequent in Senegal. Their objective is not only to speak about the Coran. They also celebrate Marabouts from Tidjaniya.
The inhabitants of this rural community have forgiven debts accrued by Bissau-Guineans (and vice versa). This practice could theoretically be extended, but due to tight resources it is restricted to a limited area. The Gamou, much like the peace mirador, has laid the foundations for cross-border cooperation.”
As village chief, you embody a traditional form of authority. How do you view the relationship between modern law and customary forms of arbitration?
“Since we started the Gamou of forgiveness and the peace mirador, the role local authorities play in arbitration has been facilitated. Previously, in cases of cattle theft we would immediately call in the subprefect. Now, when there is a theft, the people involved resolve the situation under the supervision of the village chief and then inform the sub-prefect of their decisions. The administrative authorities, however, do not feel disregarded. To the contrary, they are relieved to be spared from the fastidious procedures required to settle such cross-border disputes. Moreover, if the administrative authorities are unable to travel to the Bissau-Guinean side of the border, the traditional chiefs can.
For the latter, such mechanisms represent useful tools for preventing villages from imploding, and for keeping relations between the two countries from growing embittered. Five miradors are now shared by villages in this rural community. Also the Miradors that exist in Guinea-Bissau have been initiated by the traditional chiefs from Guinea. For any dispute each member of the community can resort to it. The traditional chief will then arbitrate. This practice has been brought to the attention of administrative authorities so that they can officially sanction this peace initiative. As a result, the Senegalese authorities have been further legitimated, and they have in turn placed greater trust in the local people to handle their own problems.
Faced with constraints related to geographical isolation and to problems arising from differences in the regulations governing activities on each side of the border, these two grassroots initiatives serve to eliminate the border effect and establish a system of local justice.”
ANNEX 4: DAILY HEALTH CARE IN THE MOPTI ZONE (MALI) – OUAHIGOUYA
PLATEAU DOGON
Hopitalsecondaire
Oùles gens devraient aller pour des problèmes de santéde faible gravité
Oùles gens vont ou voudraient aller pour des problèmes de santéde faible gravité
Oùles gens devraient aller pour des problèmes de santégraves
Oùles gens vont ou voudraient aller pour des problèmes de santégraves
D.N.F Mali SCSAO/OCDE
Les zones frontalières sont, par définition, aux marges des politiques nationales. Elles bénéficient généralement d’un accès plus difficile aux services de base ; la lutte contre la pauvreté y est plus difficile car elles sont aux « limites des politiques ». Une approche transfrontalière devrait permettre de compenser ce désavantage tout en optimisant les coût de ces politiques et en donnant de la réalité au processus d’intégration régionale.
On a ici un bassin de population de l’ordre de 500 000 habitants. L’agglomération de Mopti (120 000 habitants) et Ouahigouya (80 000 habitants) sont l’une et l’autre dotées d’un hôpital à vocation « régionale » au sens infra-étatique. Chacun de ces hôpitaux est censé servir la population de chaque pays jusqu’à la frontière. Pour les problèmes de santé qui ne nécessitent pas d’aller à l’hôpital, il existe ce que nous appelons ici des « hôpitaux secondaires » dans certaines petites villes (Koro au Mali, Djibo et Tiou au Burkina). Pour les petits problèmes au jour le jour, il y a de nombreux dispensaires dans les villages des deux côtés de la frontière.
On voit bien sur le schéma au sens propre du terme, les limites des politiques nationales (en l’occurrence celles de la santé) dans un espace frontalier. Les gens vont (lorsqu’ils en ont les moyens) ou souhaitent aller dans le service médical le plus proche et/ou le plus performant.
Dans certains cas, des initiatives concrètes sont prises pour conformer « l’institutionnel » à la réalité. Ainsi, l’accueil en urgences de patients burkinabé à l’hôpital de Djibo a déjà fait l’objet d’un accord de prise en charge par une organisation mutuelle. En effet, les habitants de la commune de Djibo refusent de se rendre au centre de santé de Koro dont ils dépendent administrativement car il est beaucoup plus loin que celui de Djibo. Ils ont d’ailleurs refusé de participer à une mutuelle de santé qui devait assurer la prise en charge de malades venant en catastrophe et sans moyen à Koro.
(BURKINA FASO)
MOPTI
Koro
OUAHIGOUYA
Dinangourou
Djibo
Tiou
H Hopital
Mali
Burkina
En sens inverse, le souhait des autorités de Koro est de voir leur Centre de Santé de Référence doté d’un bloc opératoire pour en amplifier l’aire d’attraction. Des discussions avec les autorités de la ville jumelle de Tiou ont eu lieu dans ce sens ; une spécialisation médicale des deux localités a même été envisagée (à Koro un chirurgien, à Tiou un autre spécialiste). Mais pour l’heure on n’a pas dépassé le stade de l’idée.
Pour des maladies qui nécessitent un hôpital plus important, lorsque le médecin-chef du CSR de Koro délivre un certificat d’évacuation sur l’hôpital de Mopti à un malade, ce dernier préfère souvent aller à Ouahigouya pour se faire traiter…
Ces observations résultent d’entretiens avec les acteurs locaux du côté malien ; elles doivent être complétées par une démarche similaire du côté burkinabé. Mais d’ores et déjà, on sent bien que la mise en œuvre d’une stratégie pragmatique de santé transfrontalière est à la fois nécessaire et possible.
Pourquoi ne pas envisager un diagnostic transfrontalier par des professionnels de la santé publique, suivi d’une réunion de concertation réunissant les responsables des hôpitaux et centres de santé de la zone, les directeurs régionaux de la santé des deux côtés de la frontière, les élus locaux (Mopti et Ouahigouya ainsi que Koro et Tiou sont jumelées) et les responsables maliens et burkinabé des ministères de la santé et de l’administration territoriale ?
Cette réunion aurait pour but :
- De valider le diagnostic ;
- De faire des propositions concrètes à court terme : 1) Est-il possible de coordonner l’affectation des médecins et professionnels de santé des deux côtés de la frontière afin que les populations aient un accès facilité à une gamme aussi large que possible de spécialité médicale ? 2) Est-il possible d’organiser conjointement et à moindre coût les campagnes de vaccination ? 3) Les autorités des deux côtés de la frontière peuvent-elles envisager l’organisation d’un service unique d’ambulances ; etc.
- D’engager un processus, de nouvelles études plus approfondies pour, par exemple, jumeler les hôpitaux de Mopti et Ouahigouya en spécialisant certains services ? Est-il possible de développer et de mettre en œuvre un système fluide de compensation financière pour la prise en charge du malade dans les services d’urgence de part et d’autre de la frontière ?
- Est-il possible à cet effet de créer un cadre de concertation pour suivre l’évolution du dossier ; estil possible de mobiliser un bailleur de fonds autour de cette initiative ?
Une démarche de ce type serait utile aux populations de la zone qui, comme toutes les populations frontalières, ont un accès plus difficile aux services de base. Elle permettrait aussi d’ouvrir la voie, de montrer que « c’est possible » mais aussi de soulever (et on l’espère de solutionner) des problèmes génériques. En d’autres termes, il s’agirait aussi d’un laboratoire dont les résultats pourraient être reproduits.
