Janet
Reuben (Ms)
Sociologist, Dar es Salaam, Tanzania
Presentation
at the Panel on
Re-thinking African Development
CODESRIA General Assembly Meeting
Nile
Hotel, Kampala, Uganda
December
2002
Africa has had a proliferation of NGOs over the past forty years or so. Many of these are purported to aid in the development process of African societies in various fields. While some successes have been recorded, many of these NGOs seem to be towing the lines of donor agencies so that whenever such lines change they also follow suit accordingly. Moreover, save for self-evaluation sessions, it is not very common to have independent studies as regards the work and effectiveness of these NGOs. The purpose of this presentation is to discuss findings from a preliminary study of some NGOs in Tanzania and see how effective they have been in the development process. Focusing on selected NGOs, the study examines the nature and extent of women participation in various development activities implemented by such NGOs involved in the promotion of women’s development and welfare in Tanzania. The study attempts to investigate how the said NGOs are succeeding or failing to put the concept of “Women’s participation” into practice. This presentation examines women’s knowledge of, as well as their involvement, and/or participation, in development and welfare. From the outset, the paper’s hypotheses is that there is still a discrepancy between theory and practice of women’s participatory development despite the need to involve all women in these NGOs. The presentation relates the hypothesis to the degree of women’s participation that seems to be shaped by rational calculation of cost and benefits. The second hypotheses that the study examines is that most of these NGOs are donor-driven and are, thus, leaning more towards developmentalism; and that this can be counter-productive. The third hypothesis emanates from the recent discussions that resulted into the passing of a bill in the parliament of Tanzania regarding the nature and role of NGOs in Tanzania, focussing on the accusations and counter accusations that resulted from the debate. The testing of these and other hypotheses is followed by suggestions as regards the role of NGOs as we rethink Africa’s development in the new millennium.
Tanzania is one of the poorest countries in the world with a very low level of social and economic development. Since independence in 1961, the government of Tanzania has been preoccupied with three development problems: ignorance, poverty and diseases. Like other third world countries Tanzania has serious economic problems thus making it difficult for the country to cover the basic needs of its people. Incidences like the harboring of hundreds of thousands of refugees from neighboring countries, natural disasters such as draught and heavy rains (enino), and diseases like malaria and HIV/AIDS have enhanced the severity of the situation.
Since the 1990s Tanzania has experienced a rapidly growing number of NGOs working with the civil society and donors on the social and economic well being of the communities. Delivery of services through NGOs in the country has been a major contribution. Yet, paradoxically, as shall be seen in the course of our discussion, that has also been a major concern. Despite the fact that today there are several NGOs in the country that direct their activities in both urban and rural areas, and that there is a growing number of NGO activities in the country, the effects of these NGOs have not been clearly recorded. This is more so with regards to rural areas where most of the NGO activities are directed. An intelligent guess for the reasons for this state of affairs may be that it is because very few research studies have been conducted to assess the impact of NGOs in the development of Tanzania.
For the records, the number of NGOs in Tanzania is increasing rapidly. According to FES (2000) Between 1961 and 1980, there were only 25 registered NGOs. By 1990 this rose to 41. Between 1990 and 1993 the number rose to 224, and from 1996 there has been more than 6000 registered NGOs. According to the Registrar of Societies, Tanzania had 8499 NGOs as of September 1998. By December 2000, there were more than 10000 registered NGOs (V.P. Office, NGO Calendar). Most of the NGOs are concerned with issues of environment, professionalism, human rights, religion, education, gender, poverty alleviation, and peoples’ livelihoods. This number is far higher than in Uganda where there are slightly over one thousand and in Kenya where there are more than six hundred NGOs registered under the national council of NGOs (FES, 2000)
This paper proposes to use the yardstick of women development to gauge the effects of NGOs in development. After such deliberations, the paper will deal with the general role and functions of NGOs in a country’s development by visiting the most recent debates that culminated into the aforementioned passing of a bill in the parliament of Tanzania specifically dealing with NGOs.
The role of non-governmental organizations involved in third world relief and development work has received increasing attention in recent years, to such an extent that some scholars (Nelson and Wright, 1995:181) have termed the 1980s as “the decade of NGOs”. This reflects a widely held opinion that NGOs are in some way better at relief and development work than other bilateral/multilateral aid agencies. This positive view of NGOs is a result of dissatisfaction with official aid agencies, and a paradigm shift in development thinking that stresses the active participation of local people in the development process; an approach traditionally characteristic of NGOs. However, much as this view might be true and appealing, the adoption of the rhetoric does not necessarily entail an automatic practice. The problem lies in putting the participation rhetoric into practice at different social cultural circumstances. The term NGOs is also an umbrella concept that covers a wide range of organizations with different backgrounds based on target beneficiaries, donors, areas of operational focus, principles, mission and overall development goals.
In this presentation, participation of women in development activities is specifically examined with a focus on the experience and activities of selected development NGOs operating in various parts of Tanzania. In responding to a question on the responsibility of women in enhancing participation in the NGOs activities, 34% of the respondents were of the view that women should answer the call of the NGOs and participate in the development activities. Meanwhile, 32% of the respondents were of the view that women should educate themselves on the activities of the NGOs and in turn NGOs should publish their activities to increase majority understanding of their activities. 10% of the respondents to the question were of the view that women should take the initiative, motivate themselves and identify their problems in the NGOs. The study also reveals that 24% of the respondents were of the opinion that women should be motivated by giving them priority to participate.
Different international organizations, including UN agencies, have practiced participatory development in different programmes across the world. People’s participation is central to UNDP’s approach for bringing about sustainable human development. The World Bank supports programmes that involve the participation and development of community, in which third world NGOs take on a major implementation role. The growing interest shown by the United Nations NGOs is to reach the disadvantaged section of the population, particularly women (UNDP, 1994).
Despite the importance placed upon people’s participation as a requisite for development programmes to succeed, many NGOs still experience poor participation of women in various development programmes. Since women comprise the majority of rural inhabitants in Africa, and they are major contributors in production, there arises an urgent need to encourage their involvement in NGO-supported activities.
Through this presentation’s examination of NGOs’ role in participatory development, the study also seeks to uncover the obstacles or successes so far experienced. The presentation explores how the concept of participation is put into practice with regards to women as one of the underrepresented sections of the community. The significance of this presentation lies in its attempt to bridge the gap between theory and practice of participatory development. It focuses on problems as well as on potentials of women as actors in development.
The apparent dichotomy between theory and practice with regard to women’s participation in the development process as envisaged/shown by the NGOs
There is an assumption that NGOs, as opposed to other organizations, are experts in conveying the concept of participation. This theoretical assumption has to be put into practice to realize its validity in different socio-economic and social cultural environments. The present author asked a number of women to give their opinions on what the NGOs should do to enhance their participation in decision concerning their development, and the development of the whole community. A survey conducted in Kibaha, Dar es Salaam, Tanzania in 1999 found that despite the same label of “women” given to this group, there is a diversity of views and opinions concerning different aspects of life depending on a number of factors. The responses given point to the social position of a particular category of women and their perception of what is best or needed for their survival and wellbeing. 33% of the respondents were of the opinion that NGOs should provide loans to enable women establish small business ventures. The percentage is similar to those who said they didn’t know what the responsibilities of NGOs are or should be. Experience of what NGOs have been doing may have prompted 46% of the respondents who held the view that responsibility of NGOs in enhancing participation is through assisting the development of the whole community. The respondents were aware that assisting the community through establishing projects would automatically entail the participation of women as they have experienced in the previous or on-going projects in their respective communities. Among the NGOs that were frequently mentioned by women in the study and therefore used as selected NGOs for the study were; TAMWA – Tanzania Media Women’s Association, TGNP – Tanzania Gender Networking Programme, EOTF – Equal Opportunity to all Trust Fund, CARE – Cooperative for Assistance and Relief Everywhere, PRIDE – Promotion of Rural Appraisal and Development Enterprise, PLAN International and TANGO – Tanzania Associations of Non–Governmental Organizations.
Cost Benefit analysis of Participatory Involvement in NGOs and development activities
The assumption behind this presentation is that human beings are rational in their everyday conduct and that one may enter into an endeavor that seems to have positive and useful outcomes. It should be noted here that participation in any activity requires an investment in terms of time, energy, skill and responsibility. Some of the interviewed women indicated that they are well informed of this reality and their reaction to any participatory activity takes consideration of this fact. A study done in 2000 on Feminism and its Developmental Impact on the Tanzanian Society, found that there exists a difference in the perception of costs and benefits of participating in NGOs between women and the professional NGO officials. Whereas women view NGOs and development activity benefits in terms of immediate short-term effects, the professional NGO officials’ perception is centered on long-term social transformational impacts of the development activities supported by the NGOs.
The majority of the interviewed women in Tanzania were of the opinion that there was a need to establish activities that were more direct and especially concerned with women conditions. For instance, facilitating women with working tools, capital and credit facilities were more emphasized as against social transformation. However, this does not imply that women were blind on the need to have social transformation, but rather this explains the fact that apart from having such huge general projects, women saw the importance of establishing activities that were responsive to their needs and aspirations. The findings relate to an argument by Paul (1987) that for participation to yield sustainable result, it has to involve all the people in information sharing, consultation, decision-making and initiating action. The difficulties in meeting the legitimate needs of every particular participant in participatory processes makes the role and nature and functioning of NGO’s vis-à-vis participatory theory and practice even more intricate.
The nature of NGOs and donors relationship
Guijt and Shah (1998) argue that too much pressure from donors to incorporate gender concerns in projects has resulted in many organizations (including NGOs) taking gender issues in a mechanistic fashion. The gender issues are incorporated into many programmes only to meet a requirement for resource mobilization. This has not allowed organizations to let gender issues evolve in an organic manner as part of pursuing participatory processes. It has also led to resistance from many indigenous organizations as “gender” is perceived to be an agenda from outside and regarded as being a women’s issue.
The study reveals that in order to ensure the availability of funds, there should be an involvement of donors and other stakeholders in the process of any NGO project design to ensure production of quality proposals that can be funded. In some cases some donors have demanded the inclusion of certain stakeholders in to the projects as a condition for funding; for instance working in partnership with districts whereby in some areas districts contribution to projects was difficult to be realized as agreed, thus hindering the effectiveness of the development activities. The findings also indicated that most donors are not willing to fund long-term projects and these cause NGOs to most of the time adhere to the donor’s regulations by formulating short term projects, in order to mobilize funds which are sometimes counter productive.
Debate on the role and functions of NGOs in Tanzania.
There have been debates and discussions in Tanzania that have instigated the government of Tanzania to pass a bill in the parliament which means NGOs will be closely monitored by the government through provisions for registration, coordination and regulation by the Board. The bill also provides for the procedure promulgation of a code of conduct for NGOs. A Special Bill Supplement of the NGOs Bill was passed in the parliament on the 13th of November 2002. It happens that most stakeholders had been involved in the preparation of the bill.
The debates had been raised due to fact that NGOs in Tanzania have mushroomed so fast, and this has caused mistrust on the NGOs. Moreover, it was felt that some NGOs seem to have lost focus. Tanzanians are wondering what a large numbers of NGOs are doing in regards to development. The Tanzanian daily newspaper, The Guardian of 14th November 2002, cites examples of NGO actions that have performed contrary to their constitutions. Many examples of such acts were given by the parliamentarians during the debates in the parliament. For example, a case was cited whereby a person whose NGO was given 20m US dollars, had deposited the money into his personal account. Another case was said to have happened in a certain region in Tanzania whereby members of an NGO, which deals with anti-HIV/AIDS campaigns, were given 28 million Tanzanian Shillings but spent only 5 million and the rest was pocketed. It is this kind of NGOs that the Tanzanian government has decided to deal with. The parliamentarians also mentioned that there were some NGOs that involve themselves in politicking in their respective constituencies.
Speculating from the debates I wish to raise some questions as we rethink African development judging from what transpired in Tanzania What is the relevance of NGOs to the development of Africa? How are the NGOs performance evaluated? How much politicking should these NGOs involve themselves in? It would also be interesting to hear about fellow participants’ experiences with regards to the role and conduct of NGOs in their respective African countries.
Conclusions and Recommendations
As has been shown in the presentation, women’s involvement in various development activities may be seen as a means to enhance efficiency, effectiveness and sustainability by installing a sense of ownership amongst the stakeholders in the process of development. However, the NGOs need to do more in inculcating the culture of empowerment, participation and self-motivation to the women in the Tanzanian community.
There is also confusion about how to incorporate a participatory framework in the development activities. If the NGOs are not initiated in a participatory way, and if stakeholders are not involved in their design, it is unrealistic to expect a high level of local participation in the implementation and evaluation stages of their activities. A sophisticated organizational framework must be in place to facilitate such participatory sense in all the stages of the cycle of development activities of NGOs.
NGOs are usually result-oriented in nature. This may imply that results must be seen within a short time in order for an NGO to gain more members and qualify for continued support. Experience has shown, however, that the processes of social change are gradual, and often development is so uneven that it is not a race against time or meeting deadlines. There are no shortcuts; there is only one route to follow and that entails the participatory approach.
On the basis of the preliminary findings and conclusions, various measures are recommended that may be useful to both women as the targeted community and NGOs in their efforts to realize women empowerment and raising the participation of women in the various activities. Though specifically applying to women empowerment and participation, the following recommendations may, in turn, aid in drawing lessons for general use in most NGOs, be they oriented towards the development and participation of women or not.
· This presentation has been compiled from experience gained from one country, Tanzania. Since there are NGO operations throughout the continent it is recommended that similar studies be carried out in other countries in Africa for comparative purposes.
· Research should be done at grass-root levels in order to identify more sophisticated ways of incorporating women in the development activities more effectively.
· The NGOs need to sensitize and empower women so that they take part in the development activities. Empowerment and sensitization can be done through workshops and seminars at the community level. Involvement of women in planning and decision making at all levels of the NGO activities is also a necessary step.
· The NGOs should collaborate with each other and work with people at the grassroots levels from the process of planning up to the implementation stage. Such a move will impart a sense of ownership among the participants and enhance sustainability of the respective development measures. This will also reduce the chances of duplicating NGO efforts.
· NGOs should have an understanding of the concept of participation both as a means to improve the effectiveness of their development intervention in order to have long-term sustainability and building a sense of self directed development and social transformation process on the part of women. The fact that the NGOs are credited for being independent, non-bureaucratic, flexible, and accountable to the people should not make such NGOs to forget to reassess and evaluate their strengths and weaknesses from time to time. NGOs’ greatest strengths should not turn into becoming their greatest weaknesses.
Bibliography
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