Role of Parliament in addressing the challenges facing the Sahel.
I.
INTRODUCTION
The Sahel region is currently facing a multitude of challenges, which rose in 2012 to the level of
a region in crisis. Indeed, The Instability in Mali and increased arms flows from Libya into the
region, have collided with a humanitarian crisis brought on by drought and poor harvests to
pressure livelihoods,
and precipitated the region into a crisis best described as complex
emergency that threatens international peace and stability..
While the acute security and humanitarian challenges facing the Sahel today demand a robust
international response, we must remember that the crisis will not be resolved if we fail to address
the longstanding political and economic fragility that make the Sahel susceptible to persistent
crisis and conflict.
We believe indeed that at the core of this crisis is the failure of the state to perform its key
functions.
In particular, its inability to supply basic services,
to promote constitutional
governance, as well as grievances over distribution of state resources have all contributed to
erode its legitimacy in many countries of the sahel.
The fragility of governments impacts on the stability of the entire West Africa region and its
ability to combat both poverty and security threats, which are on the rise. Restoring the state
authority and people trust in government are therefore key in resolving the current crisis.
As a key institution in charge of mediating differing interest in a country, debate and establish
policies, laws and resource priorities, Parliament has a role to play in addressing the Sahel’s
deep-seated security, political and development challenges. However, for Parliament to be a
meaningful player in the resolution of the current crisis, it will have to reform itself and receive
enhanced support from both national governments and international development partners.
This presentation is structured in two parts: Part one discusses the challenges in the Sahel and
the role the Parliament can play in addressing them and Part II recommend a set of actions that
must be taken to enable Parliament to provide an effective response to the crisis.
To better understand the role the Parliament can play, let’s first discuss the current challenges
facing the Sahel.
II.
SAHEL : A REGION IN CRISIS
While the difficulties facing the Sahel present a complex and intertwined set of circumstances, it
is possible to identify three dominant categories of challenges:
A.
chronic underdevelopment due to a combination of demography, environment,
and weak institutions;
B.
Recurrent humanitarian crises as result of conflict, drought and/or flood
C.
Underlying political and security concerns, such as terrorism and organized
crime.
A. Chronic underdevelopment due to a combination of demography,
environment, and weak institutions;
o All 11 countries of the Sahel at the bottom of the HDI and most have done so
consistently
o Despite huge stride in recent years, most Sahel countries will not achieve their
MDGs target in 2015. Some countries like Chad and Niger off track of all but one
or two goals.
o
o Most Sahelian countries face a demographic challenge with life expectancies in
the low 50s, while the global average is around 70 years.
o The maternal mortality rates in countries of the sahel are two, three, and even
five times the global average.
o Infant and under-five mortality rates are more than twice the global average in
countries like Burkina Faso, Chad, Mali, and Nigeria.
o In Chad, Mauritania, and Niger, less than half the population has access to clean
drinking water. This—coupled with lack of access to doctors, medicine, and
medical facilities in many areas—has clear implications for public health.
o The Sahel countries have some of the highest fertility rates in the world. From
115 million people in 2012, the Sahel population is estimated to reach 150 million
by 2040. Burkina Faso, Chad, Mali, and Nigeria all have fertility rates more than
twice the global average, and Niger is the most fertile country in the world with
more than seven births per woman. As a result, a number of countries now find
themselves in the throws of a youth bulge.
B. II. FOOD SECURITY AND HUMANITARIAN CRISES
o Recurrent humanitarian crisis, 2005, 2011 and 2012. These crisis have become
more frequent over the last decade.
o In 2012 a severe drought and failed harvests put 18.7 million people at risk for
food insecurity, and one million children at risk of severe acute malnutrition. In
2013, the number of people that are food unsecured is still at 11 million.
o Complicating crisis response are the thousands of refugees and IDPs fleeing the
security crisis in Mali.
o Since the beginning of the conflict in Mali, more than 475,000 Malians have been
displaced internally or across borders, further straining already stretched
resources. Burkina Faso, Mauritania and Niger have generously welcomed some
175,000 refugees, despite their own food insecurity. While in Niger and Sudan
one in five people is undernourished, in Chad more
than a third of the
population is chronically undernourished. Indeed, even in “good” years, 250,000
children die of severe acute malnutrition in the region, and in a crisis year like
2012, 1 million children were at risk.
C. POLITICS AND SECURITY CHALLENGES
o In Mali, actions by Taureg fighters and Salafist militias, and a coup d’état in
Bamako, fostered partition of the country followed by external intervention to
salvage the state.
o In Northern Nigeria, a Salafist insurgency generally known as Boko Haram has
staged a campaign of violence and destabilization, embroiling security forces and
local communities.
o Several militias, among them Al Qaeda in the Maghreb (AQIM), are active in a
broad area ranging from southern Algeria through Mauritania, southern Libya,
Mali, Niger, Nigeria and possibly Chad, Nigeria and Northern Cameroon.
o Existing ethnic tensions are being exacerbated in, for instance, northern Nigeria,
Western Sudan, and Mali.
o Chad, Mali, and Niger have all experienced sporadic separatist fighting and coups
attempts.
o Transnational organized crime and terrorism are also on the rise as result of the
availability of ungoverned territory which make it extremely easy to traffic
contraband including drugs, commodities, and people. Funds from trafficking are
in turn used to finance rebels and terrorists alike.
o These security challenges are gathering momentum and scope and threaten
international peace and stability.
Addressing the Sahel’s intertwined security and humanitarian problems demands a
comprehensive approach.
o Many development partners, including the US, the European Union, the United
Kingdom, and France, are engaging in efforts to create multidimensional, Sahelwide strategies.
o The UN has formulated an integrated strategy to respond to the immediate
security threat posed by violent extremists and transnational criminal networks,
while at the same time building the institutional capacity needed to address the
Sahel’s political economic and humanitarian challenges.
All these partners have recognized that the crisis will not be resolved if we fail to address the
longstanding political and economic fragility that make the Sahel susceptible to persistent crisis
and conflict. Poor governance, weak democratic institutions, and a lack of development and
economic opportunity cultivate fertile ground for instability. Helping these countries to
strengthen their institutions and be more responsive and inclusive is equally critical to addressing
the region’s deep-seated security, political and development challenges. Parliament has a role to
play.
III. ROLE OF PARLIAMENT IN ADDRESSING THE CRISIS IN THE SAHEL
Parliaments are an essential component of national governance systems. The key functions of
parliaments are legislation, oversight and representation. By playing these roles effectively,
parliaments can contribute to enhance state capability, accountability and responsiveness.
a. Law-making

One of the core functions of Parliaments is law making. This includes initiating bills,
endorsing and discussing bills initiated by the executive or led by private citizens, and the
ratification of treaties and international agreements where applicable. Through this
function, Parliaments can pass laws to address issues of armed violence, economic
management, protection of human rights and promotion of gender parity, management of
natural resources, social protection and provision of safety nets to the most vulnerable,
promotion of rule of law, national reconciliation etc…

They can increase the political participation of women and promote a legal framework
for gender equity and equality; they can also improve laws that generate better
distribution of resource, like they did in Nigeria for example with the bill that parliament
voted to establish the Niger Delta Development Corportation which is charged among
others, to use the crude oil proceeds for the development of the communities and 20 the
Act for the Allocation of Revenue Bill aimed at ensuring equitable distribution and
management of oil revenue.

Parliaments in the Sahel countries could also pass laws to domesticate international
conventions such as the ECOWAS Convention on Small Arms and Light Weapons, the
United Nations Convention against Trans-National Organized Crime, and the global
convention on Terrorism that is being prepared. Pass law to support their government
cooperation in the finalization of the Comprehensive Convention on International
Terrorism.

Parliaments must also ask governments to prepare and submit to them draft legislation
aimed at strengthening democratic institutions, heightening the effectiveness of State
administrations, enhancing the independence and functioning of the judicial apparatus
and stepping up the fight against corruption. Should the governments fail to do this,
parliaments must use their right of legislative initiative.

Promote laws that compel government to put in place appropriate and well-resourced
early warning system for the prevention and management of conflict and natural disaster

Parliament could also pass laws to support the democratic process, just like it was done in
Cote D’Ivoire where the National Assembly, adopted a Special Law on naturalization
that resolved the Nationality question( even partially), and paved the way for the
organization of elections. In the same vain, the Guinean interim Parliament (the National
Transition Council) created the needed constitutional bases for the transitioning of
Guinea into a constitutional democracy.

On human trafficking for example, parliaments in the region could enact laws that
compel government 1) to prohibit and prevent trafficking and related acts;
2) to
investigate, prosecute and punish traffickers; and 3) to protect victims of trafficking.
b. Oversight
Parliaments generally play a monitoring role, evaluating the work carried out by Governments,
ensuring that they carry out their mandate, as well as ensuring that the legislation enacted by
Parliament meets the needs of the society. In this regard, Parliament should exercise more
oversight and scrutiny of government actions with all the tools at their disposal and with the aid
of other monitoring institutions.
In so doing, Parliament could adopt and/or strengthen processes in the following ways:

Institute and/or reinforce mechanisms within parliament for bringing government to
account, including through questions to the government, optimum use of committees to
scrutinize government business.

In this regard, Parliaments may consider establishing and/or strengthening special
committees that deal with public accounts; social safety nets for the most vulnerables,
ensure that government policies are pro-poor and that aid and economic growth really
contribute to the achievement of the MDGs.

In reviewing the budget, ensure that appropriate resources are allocated to early warning
system as well as for the prevention and mitigation of natural disasters such as drought,
flood etc… Ensure that national independent reconciliation institutions and mechanisms,
such as National Human Right commissions have adequate resoruces to investigate and
address citizen’s grievances; Institute transparent and stringent mechanisms for the
approval of government budget to ensure that it respond to actual needs of the people and
protect the most vulnerable.
c. Representation

As representatives of the electorate, Parliamentarians are expected to articulate the needs,
aspirations and hopes of their constituencies at the national level and to ensure a fair
representation of the population, which includes women and minority groups.

In this regard, Parliaments can provide a forum for the concerns of diverse societal actors
(including women and minority groups) to be aired and incorporated in processes of
dialogue, reconstruction and conflict resolution.

Parliaments can be considered as a normative force, charged with the responsibility of
navigating the interaction between citizens, the state and citizens, and between the state
and its external environment.

As such, Parliaments provide the instruments and platforms for the prevention of armed
violence and the negotiation of the necessary spaces for mediating in conflicts when they
occur, in order to forestall their exacerbation.

In voicing the concern of the people, parliament could work closely with CSO
organization like they did in Sierra Leone in organizing discussion with CSOs that led to
the adoption of gender sensitive laws such as domestic violence act, devolution of estate
act and customary marriage have all been passed with the active advocacy of CSO.

Parliament could also support the fight against extremism through public awareness
campaigns; introduction of civic education in school curricula, etc. and pass laws that
encourage the public to denounce and condemn corruption, terrorism, radicalism and
violent extremism.
While the role of parliament in addressing the crisis in the Sahel is acknowledged, many
parliaments in the region lack the capacity to fulfill this role effectively and efficiently.
IV. Challenges of Parliaments in the Sahel Region
There are various reasons for poor parliamentary performance. In fact, Parliaments are
confronted to 4 type of challenges: 1) the lack of support facilities 2) the over-politicisation of
issues in Parliament, 3) limited investigative capacities that under mine their oversight role, 4)
powerful executives that interfere with parliamentary work.
Lack of support facilities and funds
o Premises of parliaments are not conducive, basic material resources are lacking,
not enough sources of information are available. These are causes of
ineffectiveness that are beyond the control of parliaments. There is also lack of
funds to carry out some key functions such as:
o constituency visits in the communities. In many instances, Parliamentarians
have undertaken such missions with personal funds. This has made it difficult
to heed early warning signs to avert conflict, understand the needs of the
communities and armed violence.
o Monitoring of implementation of programs, projects and activities for which
budgetary allocation has been made, because of the lack of funds. As a result,
they have not been able to verify how government funds are disbursed and
who gets what.
Lack of information
o Lack of research staff with the capacity to provide background papers, briefing
notes and monitoring and evaluation information among others.
o What makes all these more problematic is that many parliamentarians in Africa
are uneducated; they do not speak in the official language used by parliament, nor
do they understand parliamentary procedures or major concepts such as
democracy, the rule of law, constitutionalism, etc. Parliamentary staff is usually
also unenlightened in these and other aspects of parliamentary business.
Over - politicisation of issues in Parliament

In some countries, the opposition more often colludes with the executive to rub it of it
own powers, thus underscoring a lack of understanding of the role of parliament.

The ruling party usually libels the opposition party in parliament, creating a wall which
makes truthful and candid communication impossible, and thus undermine the culture of
parliamentary debate.

In addition, interference by party officials and the party machinery stands in the way of
the consensus-building process that is central to parliamentary work. The over-bearing
influence of political parties makes it difficult for most parliamentarians to effectively
discuss some issues such as security, governance without politicizing them.
Strong Executives
Powerful Executives can frustrate the work of Parliamentarians. In some countries an important
number of MPs are still appointed by the Executive.
In the context of the Presidential System of government adopted by some countries in the Sahel,
the Executive has the power to dissolve the Parliament. In turns Parliaments become vulnerable
and mostly play a role of “registrar chambers”.
Most of the laws passed the Parliament are initiated by the executive and rubber stamped by the
majority of PMs from the party in power.
Furthermore, the lack of official opposition does not augur well for democracy.
The greatest weakness of a number of Parliaments in the sub-region is the fact that they are
extremely money-conscious. Parliaments seem to crystallise the democratic system in the Sahel,
which is consumed by corruption. The result of this is a large number of MPs not involved and
alleged to be blocking important security-laws laws that would restore the authority of the state.
III.
Requirements for Parliament to be an effectively player in the Sahel
As indicated earlier, the crisis in the Sahel called for a new approach, an approach that foster
regional cooperation, but also effective partnership with all key stakeholders both at national and
international levels. For Parliament to play its role, a new approach is also required in the
support that should be provided to them.
A. Parliament should be considered as key partner in the resolution of the crisis and be
engaged accordingly. So far discussions have focused only on governments and CSOs.
Parliament has to be more engaged for instance in the review and approval of all donor
strategies in the sahel countries, including the UN integrated strategy that are currently
formulated on the Sahel.
B. Governments need to allocated appropriate resources to Parliament to enable it to
perform its function.
C. Donors should also increase volume and quality of aid to Parliament. Their interventions
should go beyond simply awareness raising, provision of equipment, individual training,
and networking and will have to include support to structural reform of parliament.
D. There is need for greater integration of Parliament’s initiatives into the domestic political
process, greater involvement of Parliaments on national security matters, economic and
social issues, governance and reconciliation issues as well as a greater emphasis on
capacity building for parliamentarians.
E. Donor should also continue to support the ECOWAS Parliament which provides a
platform for dialogue among its members on the one hand and its members and various
stakeholders on another hand. Through its learning and sharing platform, the Community
Parliament engages on the identification of innovative ways to effectively contribute to
the security and democratic stability of the sub-region. Within its limited mandate, the
ECOWAS Parliament can be effective in addressing the crisis in the Shale particularly in
countries confronted to armed violence such as Mali. They were in past instrumental in
engaging the LUDD in Liberia. In response to the crisis in Niger and Guinea, the
ECOWAS Parliament has also set up an adhoc committee to engage the actors and
stakeholders involved in the quest to find non-violent solutions to the crisis. They should
be encouraged to do continue these efforts.
CONCLUSION
There is no doubt that Parliament could be a formidable actor In the resolution of the crisis in the
Sahel if they are exposed to needed knowledge, have the requisite support structures and are able to
see their roles as critical to the collective international effort that are under way to address the
challenges. We hope that this workshop is a step forward in engaging Parliaments in the Sahel.
I thank you for your attention