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CAMEROON NATIONAL PROGRAMME ON GOOD GOVERNANCE
INTRODUCTION
Background
1.1 The Republic of Cameroon lies 4o north of the Equator and covers an area of 475,400 square kilometers. The population is estimated as 14.3 million as of 1996 with a growth rate of 3% annually. As of 12th July 1884 to 1916 Cameroon became a German protectorate. In June 1919 after the First World War following the Treaty of Versailles, Cameroon was divided into two separate leagues of Nations Mandated Territories, one under the French administration and the other under the British government. In 1946, both Cameroons became United Nation's Trust Territories still under same colonial powers. French and English reflect two different colonial heritages and have become the official languages in Cameroon.
On the 1st of January 1960, the French Cameroon gained her independence and the British Cameroon later became independent on the 1st of October 1961. both Cameroons (East and West) united and became Federal Republic of Cameroon. On the 20th of may 1972, a referendum was organized which favoured the change from Federal to United Republic of Cameroon. President Paul Biya in 1984 signed a decree concealing the word "United" in an effort to foster National integration leaving just the appellation Republic of Cameroon.
1.2 The Republic of Cameroon has been a one-party state since late President Ahmadou Ahidjo became president in 1960. However, in June 1990, President Paul Biya, during the Cameroon People Democratic Movement ordinary congress, ushered in the principles of Multiple-Partism and Democracy. Presently, the Republic of Cameroon has more than 139 political parties, with four in the last Parliamentary Assembly. There has been one opposition party with a coalition system of government since October 1992.
1.3 Cameroon's approach to socio-economic development strategy has revolved around the concept of "Self-reliance" and "Planned Liberalism" since 1966 to 1968. The concept of "Self-Reliance" according to president Ahidjo meant tailoring Cameroon's needs and development in accordance with the available resources. The concept of "Planned-liberalism" meant blending planned and free market economy ideologies. After the dawn of economic crisis in 1987. Cameroon's strategy has been guided by the need to formulate and implement policies that will contain the challenges of human, ecological and climatic diversities.
From 1965 to 1985 Cameroon enjoyed a high level of real economic growth rate, averaging 7.5% to 8 percent annually. During the period 1965 to 1980, agriculture accounted for well over 50 percent of export revenues. Agriculture still accounts for more than 75 percent of the active labour force. Oil contribution to the G.D.P. increased from 5 percent to 33 percent during the period 1977 to 1983. Unlike most oil producing developing countries, agriculture was not sacrificed. Cameroon had been described as an island of prosperity in the Sub-Saharan region before the economic crisis.
However, from 1986, until 1994, there has been a sharp decline in economic performance largely due to poor economic management and the fall in export prices. Real G.D.P. per capital contracted by 8 percent annually, since then leading to a drop per capital income in 1993 by more than 50 percent. Terms of Trade became unfavourable, balance of payment moved from a surplus (4.7 percent of G.D.P) in 1985 to a deficit (-9 percent) between 1991 to 1993. This phenomenon resulted in a galloping public debt totaling 4 billion U.S. dollars, representing 31 percent of G.D.P. with annual debt servicing approximately 18 percent of external debt rose to 9.2 billion U.S. dollars as a result of the 1994 devaluation of the CFA francs and accumulated arrears.
In May 1989 a Structural Adjustment Programme was concluded between the government of Cameroon and the World Bank. This programme was geared to correct the macro-economic disequilibrium in our economy.
II. THE CONTEXT OF THE GOVERNANCE PROGRAMME
Since 1986, cameroon became conscious of the economic crisis. Though initially conceived as an external phenomenon, it gradually became clear that the economic crisis had to do with the poor performances of those who had been appointed to manage state affairs. The Government had been responsible for both political and economic well being of Cameroon.
Faced wit this dilemma, the government had no choice but to turn to the international organizations to find a quick and lasting solution. Consequently, the need for a true democratic system was concertized on the 18th of January 1996 when the head of state signed into law the new constitution with the separation of powers and the need for decentralization.
2.1 Political and Institutional context
Since 1966 to 1991 Cameroon's political pasture has been dominated by a period of monopartism. This system of politics profoundly politicized the administration and its institutions. The absence of pluralism and free expression gave room to patrimonialism, tribalism, poor economic management, no accountability and certain groups of persons exploited the system for personal gains. In spite of the favourable economic climate (1965-1985) the economic crisis surfaced the very fragile nature of our economic system. In 1992 a truly democratic election was organized.
2.2 Public Administration
The Public Administrator in Cameroon is rather politicized. Instead of being an efficient instrument to execute government policies, most civil servants for want of favours are politicians, thus compromising the administrative machinery to the detriment of the government. There are equally structural and functional handicaps. These and many more hurdles need to be addressed if we wan the administration to be efficient and effective.
2.3 Decentralization
The new constitution gives a better perspective for decentralized powers. The recent municipal election and the current legislative election underway, puts a new impetus to our democratic process. Though decentralization still remains timid, there is the urge that the administration should move closer to the rural population. The local initiative be encouraged and that the grassroots population should participate in the decision-making fora through their councilors. Unfortunately most councils are suffering from lack of infrastructures, finance, know-how and even the legal framework does not permit them to be efficient and effective.
2.4 Judiciary
The law stipulates that in every democratic setting the judicial system should arbitrate and assure that justice is guaranteed both in the private and public fora. It therefore becomes incumbent that the judicial system be separated from the executive or legislative powers, be free and independent and have sufficient finances to function efficiently. Unfortunately, in spite of the new constitution and measures taken recently to improve the plight of magistrates, the true independence of the judicial system can only be guaranteed if they are independent.
2.5 Socio-Economic Management
for well over twenty years (1965-1985) Cameroon adopted the principle of "Planned Liberalism" whereby the state was responsible for determining the economic trend and development in Cameroon. Not only formulating macro and micro-economic policies, determined prix levels, carried out investments both economic and social. The Central Planning approach did not give room for the population to participate other than preparing the five-year plan where the elites from the least administrative structure to the National Planning Committee were solicited.
The final outcome of too much state intervention bore very little fruits. The purchasing power of the household dropped by over 40 percent. There were macroeconomic disequilibrium and state revenue dropped drastically. The state in 1987 instituted austerely measures and was obliged to implement a Structural Adjustment Programme (SAP) in 1988.
conscious that the SAP had its limitations, balancing the macro economic disequilibrium and containing the inflation rate, the CFA France was devalued by 50 percent on the 12th of January 1994. The government set in a competitive mechanism to stimulate exports. A reform programme was concluded between the IMF on the 14th of March 1994 which were approved by the World Bank, ADB, E.U., the Caisse Francaise de Develppement and the Paris Club. Results are still timid.
2.6 The role of the civil society
In any true democratic country, development calls for massive participation of all economic operators. The role of the state and the private sector is clear and distinct. Because of the limitations and handicaps of our civil society, its role has been marginalized and it is unable to promote good governance. To guarantee a truly democratic and transparent society, the state must disengage in areas that she has not been productive and to allow the civil society to play a fair and complementary role in the development of our nation.
2.7 The role of communication in good governance
The mass media (the press, radio and television) is a vehicle of communication in any country. Access to information is central to responsible and effective functioning at governments and the market economy. consequently, one of the most critical needs in African governance is improved access to qualitative and quantitative information.1
III. OBJECTIVES AND STRATEGIES
After the situation analyses of the Republic of Cameroon, it becomes necessary that immediate measures be taken to redress the morose situation in which Cameroon finds herself (economical, political and administrative). The need to transform the Government (Executive and Public Administration) into an efficient and effective system that calls for in any modern and democratic society cannot be underestimated.
The balance sheet presented by the Ad hoc committee on Administrative Reform Programme instituted by the Government's actions to have a State of Law and Good governance last June 1996. With reference to the priority areas (public administration, decentralization, justice, socio-economic management, communication and civil society certain activities have been undertaken in concordance with the donor agencies.
3.2 Strategies
3.2.1 The government has decided to restructure the ministries and reduce the number of public servants. Equally true are measures for voluntary and early retirement.
3.2.2 Decentralization, following the new constitution which was promulgated into law on the 18th of January 1996, the government is committed to confer the autonomy and authority of the local councils. The Ministry of Territorial Management has carried out studies on how well the councils can be made functional with their new responsibilities. Equally awaited is the creation of regions.
3.2.3 Concerning the Judiciary studies are underway to improve the status of magistrates. Of late, their salaries, amenities and retirement age have been reviewed.
3.2.4 For the economic management the Cameroon government in agreement with the multilateral and bilateral organizations has undertaken profound reforms. The liberalization of the economy, transparency and deconcentration of functions of civil servant is on tract.
3.2.5 The National Communication council is at work to guarantee transparency and free press as well as rationalizing the use of radio and the television networks in Cameroon.
3.2.6 The Civil Society has a greater stake in promoting good governance in any democratic setting. The participation of the rural population in the decision-making process and their contribution to nation-building is the essence of peace and economic growth.
IV. COMPONENTS OF GOOD GOVERNANCE PROGRAMME
Our national programme for good governance goes far beyond the horizon of simply restructuring the civil service, it is an attempt to postulate quality management of public affairs. It englobes the system of rules and regulations, procedures (formal and informal) by all the actors who govern the institutions in Cameroon with a commitment to ensure a peaceful and prosperous environment for the present and future generations. Six modules have been identified as crucial for our national programme to thrive.
4.1 The public Administration
The public administration is unadaptable with the realities of a democratic society. It is structurally weak, inefficient, corrupt, stagnant and too politicized. The judicial system is not transparent and the management of public affairs has been enormously compromised with private interest. The Administrative Reform exercise, restructuring the ministries to render them more efficient, effective and responsive to public demands still has a long way to go. There must be cultural and administrative performs which will permit fertile ground for efficiency, accountability and transparency the flourish.
In order to attain the above results and goals the ongoing Administrative Reform Programme must be completed in all the Ministries with results that will reduce the plethoric number of civil servants in the public administration and mass salary.
the institutional environment and managerial attitude of the public service must undergo a change (regulatory texts, the status and working conditions of civil servants) and that the civil service should be career oriented.
Administrative procedures must be simplified and a system of control put in place.
4.2 Decentralization
Is the progressive transfer of certain state function by the State to the decentralized collectivities (regions, local councils and traditional rulers) having legal and financial autonomy. According to the new constitution, articles 55-56 states that decentralized territorial collectives shall be freely administered by the elected councilors.
There ar still major problems which need to be resolved if decentralization should be effective:
the respect of rights and liberty of the decentralized collectivities, the legal framework and financial autonomy;
the reinforcement of the institutions and capacity-building;
building a mechanism that will permit the articulation of traditional authorities with other administrative structures especially at the grassroots;
drawing up blueprints measures and policies that will favour regional balance in development.
The quest to administer within proximity has been the wish of the civil society. Within the confines of the new constitution the regions councils and recognized tradition shall have moral personalities, administrative and financial autonomy to manage local affairs.
The have as objective to promote sustainable and durable economic development, better health for the rural population, educate the masses on their rights, cultural and sporting activities as well.
Decentralization facilitates peoples' participation, equitable distribution of development benefits, and promotes efficiency. It is equally important that women be involved in the development process and all the civil society institutions. If decentralization is effective, the rural poor will have access to public assets and services. Decentralization is the litmus test for true democracy.
4.3 Justice
The Rule of Law is the governing of a society by law. Affording citizens protection from capricious decision-making. Judicial administration and the judicial system directly affects the quality of the rule of law in a country. According to the new constitution an independent judicial body which can render binding decisions with respect to conflicts in the application of the rules is an essential element of the rule of law. The law loses its conflict-resolving and confidence inspiring functions, if there is no independent and credible judicial system which safeguards that contractual arrangements are respected and the law is applied uniformly by the executive.
For the Cameroonian judicial system to be effective and independent as already stipulated in the constitution, certain actions must be taken:
- the training of magistrates must be tailored to fit the democratic system;
- improvement of documentation by coding of texts of application, large diffusion and the elaboration of Official journals and jurisprudence texts;
- the creating of Judicial Data Banks and Libraries are very necessary;
- Judicial practical manuals should be professional and designed to state procedures and acts, should guarantee the stability and security of justice of all;
- procedural codes and deontology of judicial profession (magistrates and auxiliaries of justice) must be elaborated.
- studies must be carried out to determine how access to justice and judicial decisions can be applied.
The rule of law plays an essential role in identifying public private sector relationships. Investors need to know that contracts will be honoured, property rights will ensured and that laws will be administered with fairness and objectivity. Even with independent legal and judicial bodies, the makers of these laws and rules must not simply copy or continue applying colonial laws, but endeavor to frame more adapted policies, rules and regulations which command substantial support in the population.
4.4 Socio-Economic Management
The kind of administrative environment referred to in this programme, negatively affects the operational and marginal performance of public administration in the formulation and application of our policies and economic functions.
Since independence the approach to strategic development planning was based on "Centralized Planning system." The central government was in-charge of all human an economic development, leveling of taxes and determined the price level. But she forgot the most important elements of growth; efficiency, transparency, accountability, effectiveness and the spirit of creativity. While strong in terms of over centralized authority the bureaucracy at the same time was weak to impose effective control to ensure the implementation of policies. This weakness gave room to procrastination, bureaucratic delays and corruption.
In order to improve the socio-economic environment certain measures have to be taken:
- quality training for planners, statisticians and economic managers;
- studies should be elaborated on the measures taken by government to incorporate the private sector and the civil society in development;
- reinforce the system and the quality of collecting, as well as analyzing statistical data;
- a mechanism for the coordination of policies should be established; and
- studies should be carried out to see how the informal sector can become more productive.
The combination of all these factors, i.e., patrimonial approach to management, all powerful centralized planning, lack of accountability, bureaucratic delays and corruption have been the root cause of our economic depression.
Effective stabilization and structural adjustment programmes require support form politicians, business community, labour organizations and the civil society to succeed, because they generally affect distribution of income. The government administrative capacity is crucial to promote good governance. If there is the political will and all of the above action undertaken, with a stable political environment, the pasture for economic growth will be assured. An appropriate environment for economic operators must be created, as well as contribution to the reinforcement of a coordinating mechanism between the administration and economic operators for Sustainable Human Development.
4.5 Participation of the Civil Society
In a true democratic society, the path of development calls for effective participation of all responsible actors. The State should be able to play its role and let the civil society to complement the developmental process.
The promotion of good governance should integrate the Civil Society. In Cameroon, the role of the civil society is more visible through the activities of the Non-governmental organizations, the Religious bodies and Common Initiative Groups. Before and even after independence the state has always been handicapped or limited to exercise certain and social responsibilities and it is thanks to the civil society that some Cameroonians have seen better days.
Unfortunately, some difficulties still inhibit the proper functioning of these Non-governmental organizations and Missionaries. It is evident that the 19 December 1990 law relative to the liberty of associations will have to be reviewed because it is not explicit and complete.
These include among others:
- to reinforce the participation in the decision-making process, especially the women;
- to reinforce the mechanisms to regulate and coordinate civil society activities;
- facilitate and encourage private and international investments and make available credit lines to the informal sector;
- reinforce the capacity of the private sector to have access to information;
- reviewing the existing texts;
- create a data bank for the civil society;
- organize and carry out studies that will elaborate the appropriate instruments for the civil society;
- restructure and exploit the capacity and potentials of the civil society; and
- equally true is the necessity to ensure that the legal status and the role of the civil society be reviewed to allow them to become fully operational.
In general, all these programmes and strategies are aimed at establishing the best possible conditions for sustainable local, regional and national development that would eliminate poverty in both rural and urban poor areas, indigenous communities and the informal sector.
4.6 Communication in good governance
The mass media (the press, radio and television) is weak in most of sub-saharan countries. The recent involvement of private entrepreneurs in the ownership is still a novelty. Access to information is not very easy. Hence, one of the most critical needs in African governance is improved access to quality information. The weakness of the mass media in economic and financial analysis increases the bureaucrats' ability to keep the budgetary process opaque. In order to promote transparency and accountability, some measures must be taken. These include:
a) Print media
- run editorial and commentaries;
- open features and documentary columns;
- conduct interviews;
- carry out interpretative and educational reporting;
- run advertisements and news reportage.
b) Audio-visual Media
- Radio news and news casts (Network, Wakeups commentaries in major news casts in English and French);
- News magazines and educational magazines, various forms of programmes to highlight the merits of good governance. Provincial radio stations will broadcast in National languages to the grassroots population.
c) Television
- Newscasts and News Magazines;
- Programmes, educational, entertainment, documentaries.
The end result of these activities is that information be given out to the population without demagogy, partisan publicity. The population will be encouraged to participate in nation-building. Government officials will be very careful how they perform their duties. There will be transparency; accountability and corruption will be contained.
V. PROCEDURE FOR COORDINATION AND IMPLEMENTATION
The strategy put in place to permit the success of the national governance programme consists of articulating the activities stipulated in the six thermal areas identified by the government. Because the programme is multi-sectoral, it has been placed under the authority of the Prime Minister and Head of Government. A Pilot Committee of the Government Programme will be created to monitor and evaluate the progress being made.
Members of this committee will include:
- Senior Government Officials;
- Representatives of the civil society;
- Presidents of the sectoral committees (6);
- A Coordinator of the programme; and
- National as well as International experts.
The National Coordinator will be designated by the Prime Minister with the approval of UNDP, Cameroon.
It is envisaged that the programme will last for five (5) years. The first nine months consists of constituting the teams up to approving of the programme document at UNDP headquarters New York.
As concerns the modalities to execute the programme, the Prime Minister is charged with its implementation. The National Coordinator is responsible for the programming and monitoring of activities. As secretary of the programme, he will propose to the PM who is President of the interministerial committee, programmes and dates for meetings, coordinate activities of the sectoral committees and write a report to the President concerning their plans of action. The Department of Assistance to Development and Management Services (DADSG) of the United Nations will send consultants to the programmes and the Management Development and Governance Decision (MDGD) will assist in the capacity-building and execution. They will carry out mid-term evaluation and tripartite meetings. The evaluation will enable the authorities to assess the impact of the various activities of the governance programme.
Because the programme calls for mass participation, seminars and workshops shall be indispensable both at the national, regional and community levels.
VI. FINANCIAL PLAN
For Cameroon's governance programme to become a reality, the government of Cameroon, Donor Agencies, the Bilateral and the Multi-lateral organizations have to contribute in financing the programme.
Many African countries are already deriving significant benefits from having adopted viable economic policies reform measures, pluralistic and democratic system. Cameroon has taken encouraging measures in like direction. Our handicap is the inability t raise required funds. Our participation in this very important forum is to bring before the international community our government's resolve to promote good governance and mobilize funds for the implementation.
The total cost of Cameroon's governance programme is still and estimate. However, the Norwegian has given the sum of $5 US for carrying out studies and the presentation of the programme at the United Nation Headquarters. The United Nations Development Programmer has equally budgeted the sum of 1.57 million dollars US as partial funds for the implementation of the various modules. The government of Cameroon is still reviewing its budgetary heads for reforms and Governance which will be presented to the National Assembly in June 1997.
We hope to obligate the total amount in the following areas:
- Public Administration
- Decentralization
- Justice
- Economic Management
- Civil Society
- Communications.
