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Decentralisation, participation and accountability in Sahelian forestry: legal instruments of political-administrative control

Published online by Cambridge University Press:  07 December 2011

Jesse C. Ribot
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Colonial relations of political administration are being reproduced in the current era of participation and decentralisation. In natural resource management, participation and decentralisation are promoted on the basis that they can increase equity, yield greater efficiency, benefit the environment and contribute to rural development. Reaping these benefits is predicated on (1) the devolution of some real powers over natural resources to local populations, and (2) the existence of locally accountable authorities to whom those powers can be devolved. However, a limited set of highly circumscribed powers are being devolved to locally accountable authorities, and most local authorities to whom powers are being devolved are systematically structured to be upwardly accountable to the central state, rather than downwardly accountable to local populations. Many of the new laws being passed in the name of participation and decentralisation administer rather than enfranchise. The article examines the historical legal underpinnings of the powers and accountability of state-backed rural authorities (chiefs and rural councils), the authorities through which current natural resource management projects in Burkina Faso and in Mali represent local populations, and the decisions being devolved to local bodies in new natural resource management efforts. Without reform local interventions risk reproducing the inequities of their centralised political-administrative context. Rather than pitting the state against society by depicting the state as a negative force and society and non-state institutions as positive—as is done in many decentralisation and participatory efforts—this article suggests that representation through local government can be the basis of general and enduring participation by society in public affairs.

Résumé

Cet article suggère que les rapports coloniaux de l'administration politique sont reproduits dans l'ère actuelle de la participation et de la decentralisation. En matière de gestion des ressources naturelles, on encourage la participation et la décentralisation en partant du principe qu'elles accroissent l'équité rurale, augmentent les rendements, sont favorables à l'environnement et contribuent au développement rural. Les conditions de jouissance de ces bénéfices regroupent (1) le transfert aux populations locales de certains pouvoirs réels sur les ressources naturelles et (2) l'existence d'autorités responsables sur le plan local auxquelles ces pouvoirs peuvent être transférés. Or, seul un ensemble limité de pouvoirs fortement circonscrits sont actuellement transférés à des autorites responsables sur le plan local et la plupart des autorités locales qui bénéficient d'un transfert de pouvoirs sont systématiquement structurées de manière à être responsables devant l'Etat central, et non pas devant les populations locales. Parmi les nouvelles lois passées au nom de la participation et de la décentralisation, nombreuses sont celles qui administrent plutot qu'elles affranchissent. Cet article étudie les fondements juridiques historiques des pouvoirs et la responsabilité des autorités locales soutenues par l'Etat (chefs et comites ruraux), les autorités à travers lesquelles les projets de gestion des ressources naturelles au Burkina Faso et au Mali représented les populations locales ainsi que les décisions déléguées aux organismes locaux dans le cadre de nouveaux projets de gestion des ressources naturelles. Sans une réforme, les interventions locales risquent de reproduire les inégalités de leur contexte politico-administratif centralisé. Au lieu d'opposer l'Etat à la société en décrivant l'Etat comme une force négative et la société et les institutions non étatiques comme positives, comme c'est le cas dans de nombreuses initiatives de décentralisation et de participation, cet article suggère qu'une représentation passant par l'administration locale peut être la base d'une participation générate et durable de la société aux affaires publiques.

Type
Who's to control the forests?
Information
Africa , Volume 69 , Issue 1 , January 1999 , pp. 23 - 65
Copyright
Copyright © International African Institute 1999

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