Good Governance Programme

INTRODUCTION

The International Crisis Group is about to embark on the second phase of its mission in the West African nation of Sierra Leone. Over the next twelve months, ICG will implement a Good Governance Project aimed at securing and accelerating Sierra Leone's transition to democratic, accountable and responsible government and building the conditions for a civil society at the local level. ICG will implement the project in collaboration with indigenous organisations and individuals in Sierra Leone. These include women's groups, cultural awareness-raising groups and leaders of Sierra Leone's embryonic human rights movement. In addition, ICG will initiate discussions with leading international financial institutions and donor governments to facilitate the development of an international aid strategy for Sierra Leone which supports and encourages good governance. ICG believes that the next six to twelve months in Sierra Leone will be critical. The same combination of international pressure and overwhelming popular grassroots support which ensured that the February 1996 elections went ahead is now needed again to ensure that the new government in Freetown is steered in the direction of democratisation and increased accountability. If the international community relaxes, or if popular interest wanes, there will be less incentive for the government to put in place the structures necessary for good governance and the historic elections for which many sacrifices were made will have been in vain.

CONTEXT

ICG embarked on its mission in Sierra Leone in November 1995. A field team was sent to Freetown for an initial period of two months to carry out a comprehensive assessment of the main factors contributing to the worsening situation in Sierra Leone. The team travelled extensively throughout the country and consulted with a range of local people, organisations, officials and international representatives. The assessment produced the following key conclusions:

1. Sierra Leone is a country in a serious state of political, economic and humanitarian crisis.

2. The country currently faces a window of opportunity for change with the prospect of a smooth transition to a democratically-elected civilian government, peace talks between the government and the RUF and a growing sense of political and cultural awareness among the civilian population.

3. The causes of Sierra Leone's crisis stem from years of corrupt and dictatorial governments evading the needs of the people and openly profiting from the country's abundant resources. Government institutions have collapsed and the civil service does not function. The cause of the crisis in Sierra Leone is not the rebel war as many claim but years of poor governance and economic mismanagement. The gulf between the lifestyles of the corrupt elite and the neglected masses is enormous. There is widespread resentment of government and a lack of faith in politicians. The large proportion of Sierra Leone's population that is under 25 is especially disaffected, distant from government and hostile to traditional forms of authority.

4. The war is largely the result-rather than the cause-of the country's current political and economic crisis. At the same time, the sustained violence that war has brought has tended to compound existing problems, accelerating the crisis and creating a pressing humanitarian emergency.

5. ICG remains unconvinced that any government that emerges from the elections will move towards a more responsible and accountable model of governance on its own. If the new government is to be deterred from falling back into the bad practices of its predecessors then both the international community and the civil society movement within Sierra Leone will need to maintain their vigil and insist on a continuing process of democratisation and greater government accountability.

BROAD AIMS OF THE PROJECT

The elections have not solved Sierra Leone's problems. They are merely the staring point from which Sierra Leone can begin to move in the direction of better, more responsible and more democratic governance ICG intends to help secure and accelerate this process by applying a twin-track approach. First, ICG will bolster the capacity of the local civil society movement in Sierra Leone by increasing the ability of key individuals, NGOs and media organisations to raise popular awareness and bring pressure to bear on the government in Freetown. Secondly, ICG will collaborate with the major international financial institutions and donor governments to encourage aid interventions that support democratic institution-building and the emergent civil society movement in Sierra Leone. The broad aims of ICG's Good Governance Project in Sierra Leone are:

• To contribute to a strengthening of the democratic institutions of government by raising awareness among civil servants and others of the roles and responsibilities of the state in a liberal democracy.

• To contribute to the strengthening of civil society in Sierra Leone by providing resources, training and other forms of assistance to local NGOs and the media.

• To facilitate the development of a more strategic approach by donor institutions and governments to encourage good governance in Sierra Leone

• To establish an essential link between, on the one hand, donor institutions and governments and, on the other, local civil society-building initiatives in Sierra Leone.

IMMEDIATE OBJECTIVES

The project has six immediate objectives:

1. To initiate and support a campaign for good governance in Sierra Leone

2. To train key personnel within specific institutions of government

3. To build up the capacity of local NGOs and human rights groups

4. To build up the capacity of the local press and broadcast media

5. To facilitate dialogue between donors and local groups

6. To provide written reports on progress towards democratisation and better governance

STRATEGY FOR ACHIEVING IMMEDIATE OBJECTIVES

Initiating and supporting a campaign for good governance in Sierra Leone

• ICG will establish a local Good Governance Working Group to act as a catalyst for a national campaign for better governance. The working group will initiate and coordinate good governance projects and public education programs. The group will be supported by an ICG field officer.

• The working group will meet on a regular basis to coordinate progress and to plan activities and projects.

• A regular update will be issued to board members, aid donors and the media monitoring the performance of the government and progress of the indigenous civil society movement.

• A regular Index of Good Governance, analysing and assessing the new government's decisions will be produced and disseminated locally.

Training key personnel within specific institutions of government

• ICG will develop, deliver and evaluate training workshops for key officials in the judiciary, the Cabinet, parliament and the civil service.

• Three workshops will be held for each of the areas of government listed above. The following themes will be emphasised:

• the roles, responsibilities and powers of each area of government

• checks and balances on state power

• administrative accountability and transparency

• citizen's rights

• political and moral leadership

• Follow-up workshops will be delivered by local trainers to consolidate newly acquired competencies.

Building up the capacity of local NGOs and human rights groups

• ICG will target women's groups; youth organisations; unions; religious groups; human rights groups; and displaced persons

• A series of workshops will be developed, delivered and evaluated with the aim of training NGO staff and volunteers in the following critical areas:

• fund-raising skills

• organisational development and management skills

• workshop facilitation and popular education campaigning skills

• Follow-up workshops will be delivered by local trainers to consolidate newly acquired competencies.

• Regular briefings will be provided to NGO staff on issues such as obligations of government and the rights of the citizen in a democracy; and the operation of Sierra Leonean law and international law

Building up the capacity of the press and broadcast media

• ICG will identify key individuals in the local media

• A needs analysis will be conducted to identify the current resource and training needs of the press and broadcast media in Sierra Leone.

• Training programs will be developed on the basis of the needs analysis to help equip local journalists with the skills they need to increase their effectiveness. The programs will be developed in collaboration with the Institute for the Advancement of Journalism in South Africa which has already carried out valuable work in this area. Evaluation will be built into the design of the training programs.

• Follow-up workshops will be delivered by local trainers to consolidate newly acquired competencies.

Facilitating dialogue between donors and local groups

• ICG will arrange a meeting of donor organisations and governments to discuss on the extent and objectives of aid programs, identifying gaps in current provision and designing strategies for filling those gaps. The outcome of the meeting will be a written international aid strategy.

• ICG will facilitate ongoing liaison between donors and local NGOs and encourage greater exchange of information and discussion of donor and recipient needs and priorities.

Providing written reports on progress towards democratisation and better governance

• A monthly report will be published detailing progress towards democratisation and better governance and raise issues that require a response from local and international supporters.

PERFORMANCE INDICATORS FOR MEASURING ACHIEVEMENT OF IMMEDIATE OBJECTIVES

The following performance indicators will be used to determine the extent to which the project has been successful in achieving its immediate objectives:

1. A Good Governance Working Party is established; meets regularly; initiates and coordinates good governance projects; and files regular and thorough reports on the effect of its activities and on the state of progress towards democratisation and better governance.

2. Twelve training programs focusing on principles of good governance have been delivered to key personnel in the judiciary, Cabinet, parliament and the civil service. Pre- and post-workshop evaluation has identified a positive transfer of knowledge, skills and attributes to workshop participants.

3. Workshops on basic NGO operational competencies have been delivered to workers and volunteers in key organisations that make up Sierra Leone's civil society movement. Pre- and post-workshop evaluation has identified a positive transfer of knowledge, skills and attributes to workshop participants.

4. A needs analysis of the local media sector has been carried out: identifying the training needs of journalists and highlighting ways in which the capacity and independence of the press and broadcast media can be strengthened.

5. Training programs designed to upgrade the operational competencies of journalists working in the press and broadcast media have been delivered to local journalists. Pre- and post-workshop evaluation has identified a positive transfer of knowledge, skills and attributes to workshop participants.

6. A coordinated donor strategy has been developed and agreed by key donor institutions and governments. The strategy encourages good governance and is responsive to the needs of the local civil society movement.

7. Twelve reports on progress towards democratisation and good governance and a regular editions of an Index of Good Governance have been published and disseminated.

PERFORMANCE INDICATORS FOR MEASURING ACHIEVMENT OF BROAD AIMS

1. The new administration in Sierra Leone governs within the constitution, in a democratic manner, respects human rights and seeks to implement its electoral mandate.

2. An increasingly competent and effective NGO sector emerges in Sierra Leone and a free press flourishes.

3. Efforts to improve governance and bring about greater democracy and accountability in Sierra Leone are supported by the international community through a coordinated international aid strategy..

4. There is continuing interaction between decision-makers in donor institutions and governments and representatives of key civil society and human rights NGOs in Sierra Leone.

ASSUMPTIONS

• That the new administration in Sierra Leone will tolerate NGO activity and permit NGOs to mount a good governance campaign

• That the new administration will allow decision-makers in various institutions of state to attend workshops on the role and responsibilities of the state in a liberal democracy.

• That the new administration will tolerate a free and critical press and will not revert to old practice of censorship

• That donors will agree to enter into discussion with one another and with the civil society movement in Sierra Leone to identify gaps in current aid coverage and set clear priorities and objectives to support the push for better governance in Sierra Leone.

INPUTS

• Two international operations staff-one in Sierra Leone (field officer and trainer) and one moving between London and Sierra Leone (Project Coordinator)

• A local coordinator

• A local administrative assistant

• International experts to deliver training program.

• The Good Governance Working Group. Three civic leaders have been invited to serve on the working group.

BUDGET

ICG Field
Salaries, travel, allowances and insurance for 2 expatriate staff:
ICG field coordinator @ £3,200 per month x12 months	£38,400
ICG field officer and trainer @ £3,000 per month x 12 months	£36,000
Local vehicle and driver (£20 per day x 300 days)	£6,000
Office support	£3,600
Support for Good Governance Working Group
Salaries:
Campaign Coordinator @ £500 per month x 12 months	£6,000
Administrator @ £350 per month x 12 months	£4,200
Travel:
Car, internal flights	£8,500
Administration:
Administrative, utility and equipment costs	£4,000
Workshops for state officials
Four workshop facilitators @ £3,000 each	£12,000
Four local trainers @ £300 each	£1,200
Follow-up sessions (3) at £1,000 each	£3,000
Other costs (venue hire, materials, travel)	£6,000
Capacity-building for local NGOs
Workshop facilitators, materials, travel, follow-up meetings	£10,000
Media support training
Needs analysis and report	£800
Training workshops	£2,000
Travel costs for experts	£8,000
Follow-up courses by local trainers	£5,000
Facilitating international donor strategy and link between donors and local NGO community in Sierra Leone
Conference costs (travel, accommodation, materials)	£20,000
Maintaining electronic links between donors and NGOs	£1,500
Publication and distribution of progress reports:
One report per month @ £200 each	£2,400
Contribution to London office costs	£10,000
TOTAL	£188,600

APPENDIX A

The following three Sierra Leonean civic leaders have agreed to serve on the proposed Good Governance Working Group:

• Zainab Bangura: currently, chair of WOMEN (Women Organised for a Morally Enlightened Nation). WOMEN operates a centre for women's development, democracy, human rights and good governance. It is one of the country's principal and most effective NGOs. Ms Bangura will serve on the working group and fill the position of local project coordinator

• Julius Spencer: professor at Fourah Bay University and former editor of a national newspaper. Mr Spencer was jailed for writing editorials critical of the last government. He is currently involved in the production of popular radio and TV programs designed to stimulate democratic awareness.

• Joe Opala: an anthropologist who has published a number of books on the history and culture of Sierra Leone which have played an important role in raising the level of national consciousness among Sierra Leoneans.