(This text was printed within the each day newspapers Fraternité, Nouvelle Tribune and L ‘autre Quotidien, on Might four and 6, 2005). WARNING :We start today, following our testimony, the publication of the collection of articles printed by M Richard Adjaho in our each day life on the event of the tenth anniversary of his sudden disappearance. Articles from the gathering Good governance in Benin Flamboyant editions (X).
We’re satisfied that the persona of this sensible man whom we certified as "nice clerk of the State" however who stays little identified to most people, deserves to be celebrated not just for what he did for our nation however for the standard of his writings, a few of which date again to the 1990s. The readability of the evaluation and the relevance of his proposals present hopefully that his writings haven’t aged a single wrinkle and are nonetheless extraordinarily topical.
The primary of his texts , the Beninese state or the march of an invertebrate, whose title says rather a lot in regards to the content material, is an uncompromising criticism of our administration perceived by Richard Adjaho as incompetent, poorly skilled and incapable of driving improvement. He deduces from this that Benin should cease placing itself on the fringes of planet earth, first by copying what’s greatest on the earth when it comes to coaching heart however above all by favoring the systematic coaching of the executives of our administration for make it in a position to meet the necessities of improvement.
The Ena which he proposes have to be, from his standpoint, hooked up to not the college however to the Ministry of the Civil Service with high-level executives at its head (magistrates, senior officers of the central administration) to alongside teachers who’re extra inclined in direction of theoretical schooling.
Part 1: The State Beninese or strolling a invertebrate
I’ve allowed myself to assimilate the Beninese state to an invertebrate as a consequence of the truth that, clearly, it lacks a vertebral column, axis round which the upper mammals are organized and structured. The controversy on the revision of the Structure will cease as quickly because the political or authorized circumstances for its feasibility are now not met. This debate is a crucial second in our political life, however it is going to move. In actuality, the actual drawback for Benin at the moment is to search out the methods and means to make sure a peaceable departure for political retirement for the person who led, along with his ups and downs, his advances as his setbacks, his drifts as its moments of appeasement, our Nation for nearly three a long time. As soon as this drawback is resolved, the thorny questions regarding the governance of our nation will stay. This is the reason, it’s distressing in my eyes, even despairing, to notice that in Benin at the moment, more often than not, in nearly all of our organs of mass dissemination and in Beninese circles nonetheless well-informed, the actual ones Questions which situation the steadiness, the event of our nation and the efficient well-being of its populations, now and for the a long time to return, are hardly posed or are barely touched upon.
As we speak nearly everyone seems to be polarized on the one who might be elected Head of State of Benin in April 2006, however nearly nobody wonders what this man or this lady, within the highest operate of our nation, will have the ability to do to successfully change the visibly chaotic state of affairs during which Benin finds itself in 2005. Virtually nobody is questioning, apparently not less than, what the brand new Head of State will have the ability to do to enhance truly the lifetime of the Beninese, what he can do or have finished to place Benin on the trail of “Alafia” outlined within the potential reflections on Benin in 2025 and keep away from it the trail of “Wahala” which can be, alas , one of many potentialities obtainable to the nation. Only a few folks surprise with whom this Prime Justice of the Peace of our nation will work and particularly on which Beninese administration he might be primarily based? Nevertheless, no Head of State as smart and as highly effective as he can reach advancing his nation with out counting on a high quality authorities and above all on an environment friendly and motivated administration. If a Head of State dares to represent a mediocre authorities, composed of incompetent, courtiers or businessmen, his international and sectoral aims will essentially be ill-defined, his initiatives clearly badly carried out, the general public applications essentially badly executed and finally the nation results in drift. I’m wondering if Benin may be very far at the moment from such a state of affairs. However the entire thing for a rustic is to not have a very good Government, it additionally wants a very good Administration, that’s to say, the suitable administrative constructions and group and particularly the lads it takes to guide and animate them. Certainly, if the Administration which the Head of State and the Authorities use as the primary working instrument is lower than the challenges, all of the efforts of the governors might be wasted, as at the moment, within the routine, mediocrity and finally failure, Too many individuals in Benin imagine they’re very succesful, and above all imagine that they will enhance the administration of the nation in the event that they have been in enterprise. What illusions! Earlier than returning later to the challenges that await those that will train energy from April 2006, I wish to deal with right here the query, which is of nice concern to me, of the state of the Beninese administration.
1 – The clicking and the commentary
Virtually everybody at the moment agrees on the superior deterioration of the financial, social and cultural state of affairs in our nation. It’s true that there’s apparently no famine, nor critical political or social unrest, however the financial base of the nation has collapsed, public funds in dangerous form. The few public corporations are managed in violation of established guidelines, non-public corporations stick out their tongue, for lack of orders and funding, the casual sector is in a state of synthetic survival, as a result of, it activates itself. One of many indicators of a rustic's good well being is the morale of its youth.
Way more than at every other time within the trendy historical past of our nation, younger persons are determined. Greater schooling levels have been unemployed for 10 years and a few colleges of the Nationwide College have success charges of lower than 10%! Younger folks get BTS, DTS galore and don't know what to do with it. A really small phase of the inhabitants, not even zero, 1%, finds its account in a sector that it has itself killed by its inconsistencies. Poverty and distress settle within the cities. This record is way from full. However, who the hell is answerable for all of this? Beninese executives in fact! That is what President Kérékou himself stated on August 1, 2004.
In a wonderful editorial, Mr Alexis Azonwakin, editor-in-chief of the each day Fraternité, in its publication of August 2, 2004, stories this: “On this state of affairs of superior deterioration of the financial system of our nation, which settles increasingly the folks in distress, the duty of Beninese executives is essentially engaged ”, At all times quoting President Kérékou, he continues“ There’s the query of understanding whose fault it’s, if the conduct of improvement initiatives and the administration of corporations in our nation present a lot incompetence, laxity and moral deviance on the a part of nationwide executives having benefited from the fruits of the labor and the sacrifices of our populations for his or her coaching. It’s just so as a result of the tradition of impunity has grow to be the rule. "
2 The explanations for this "Chaos"
The state of affairs described above is sadly true, within the sense that incompetence, laxity, the moral deviance of managers are widespread; however opposite to the opinion expressed by the Head of State, Basic Mathieu Kérékou, this example is just not primarily as a consequence of the truth that the tradition of impunity has grow to be the rule. Impunity is just one of many explanatory components. My opinion is that the Beninese executives are, by themselves, nearly answerable for nothing and the Beninese state has solely the executives that it deserves. The latter have a constant conduct, being for probably the most half poor managers of public providers, predators of public enterprises, and subsequently finally gravediggers of the nationwide financial system, actual vampires. Not content material to convey · little or no added worth to the administration of its public or semi-public enterprises, they plunder them more often than not. They drag recordsdata, even delicate, on the degree of common administration. In brief, they’re altogether dangerous to the nation which noticed them being born, which fed them, skilled them. Higher nonetheless, in the midst of the democratic expertise ensuing from the Nationwide Convention, they’ve become formidable manipulators of members of successive governments and so-called "seasoned" politicians. Alas, as some philosophical circles say, "What’s beneath is like what’s above". In March 2006, we’ll start to take inventory of the primary three years of decentralization, on which many Beninese and Benin companions have labored laborious, and which we had a lot known as for. It’s removed from established that almost all of the four,500 to five,000 native authorities officers and the 1,200 native elected officers are exemplary!
three The issue background
The fundamental drawback is that the Beninese State, with the notable exception of the safety and protection forces, doesn’t prepare or now not trains its massive executives, that’s to say those that are known as upon to oversee, lead the “military” of the 50 to 60,000 brokers in our administration. The state doesn’t even care! Formally, it’s for twenty years (1986) that the Beninese State has now not shaped its
‘Nice clerks”. Those that had been skilled within the 60s and 70s in colonial colleges, who though of excellent high quality, weren’t completely tailored to our wants, have already died or gone to
retirement. As we speak, a lot of the central administration officers from our Ministries, from the assorted Régies, Places of work, Businesses, and so on., come, at greatest, from the class of auxiliary state brokers who, out of the College from the mid-80s have been instantly affected within the Beninese administration once they knew virtually nothing. Just because having realized nothing in regards to the state, about administration, its foundations, its mechanisms, its strategies, its objective. They weren’t chosen based on their aptitudes for particular duties, however on the time, dumped "haphazardly" within the Ministries! They weren’t subjected to any multidisciplinary coaching, launched to the methods of structure and processing of recordsdata, aware of the frameworks of interministerial work or with the phases and constraints of intergovernmental or worldwide negotiations. They’ve obtained no coaching in administrative ethics and nobody has ever instilled in them the sense of state and the greatness there may be in serving it correctly. How then, if we aren’t unaware of sure realities or if we don’t need to play Tartuffe, be shocked at their conduct at the moment? With a number of exceptions, it’s these executives, who haven’t left any mould, who’re in management positions in nearly all of our Ministries at the moment who might be there in April 2006! The identical causes producing the identical results, the Beninese executives will behave in the identical manner from April 2006 vis-à-vis the brand new Energy. What appears to me dismaying, even comical in Benin, is the obvious naivety of the Ministers, members of successive governments who blissfully imagine the cadres who serve beneath their orders and who proclaim their political edges or their Events! As quickly as they depart workplace, their false supporters soften like snow within the solar! When they aren’t cautious, they put "their financial savings" within the administration of their "events" to the final penny! After their departure from the Authorities, as a result of being Minister is just not a job however a short lived operate, they solely have their eyes to cry. In 2006, it is going to be obligatory to place an finish to this method during which the members of the federal government are directed and manipulated by executives in the hunt for positions, and wager on competence, expertise, patriotism. If we don’t work to alter the very worrying state of affairs described above, it’s assured failure for the governments which might be known as to command our nation from April 2006.
four – Forgive them, as a result of they don't know !
Might these of subordinate and senior Beninese executives who don’t really feel involved please forgive me. And, I do know a variety of them! This precaution is just not meant to denigrate the remaining, however to insistently name for a nationwide begin. Talking with modesty, however from the peak of my 30 years of expertise (1975 2005), in 5 completely different however massive Beninese administrations, I remorse to say that a big a part of the Beninese administrative executives and officers of our administrations have no idea write a report, they have no idea learn how to make a trustworthy report or dependable minutes of the conferences during which they take part! More often than not, they don't know learn how to plan their work, neither know learn how to put together, not to mention lead a gathering. It is sufficient to be satisfied to see the dysfunction and the just about everlasting improvisation during which the Beninese administration is bathed! Our executives and administrative managers barely distinguish the pursuits of our nation, the pursuits of their administrations, from their very own pursuits. They confuse the state heritage with theirs, barely know what public service and its necessities. Typically, whereas assuming vital capabilities, few can learn an organization stability sheet, learn or put together the price range of a public physique, set up a provisional working account. They have no idea learn how to put together stable recordsdata or work in a gaggle. They don’t actually know the way ministerial or interdepartmental committees function, that are constructions for getting ready ministerial or authorities choices. They have no idea learn how to put together and current choices to their Ministers by writing clear abstract notes. They have no idea learn how to conduct exchanges, and even conduct negotiations, with their employees or with organized constructions akin to unions. In our nation, negotiations with representatives of worldwide establishments or international delegations are typically poorly ready, as a result of they’re swiftly approached with empty or abstract recordsdata by executives busy with who is aware of what. This is the reason we typically typically undertake the conclusions that the Establishments provide us with their very own analysis grid and their very own tradition. I owe it to the reality to additionally reveal that, with uncommon exceptions, our executives can not write speeches! They often put together you tasteless papers that you must spend lengthy intervals of seasoning. The one ones who make plans for acceptable speeches are the officers of the Ministry of International Affairs. I famous it two years throughout which, from 1991 to 1993, due to the previous hyperlinks which united us, I assumed the interim of Théodore Holo, Minister of International Affairs, The executives of International Affairs can subsequently write, however they produce other flaws amongst which, all the time wanting to remain between them and particularly going all to station. To take action, "They don't care" as a well-liked Creole music would say. The executives of our administration have no idea learn how to write regulatory texts (decrees, orders) OR normative and instructive (circulars). I noticed it once more throughout 2000-2001 after I noticed indigestible decrees on the management our bodies, One of many penalties of this international incompetence is that our administration doesn’t know learn how to develop and implement, within the quick and medium phrases, sectoral insurance policies in a constant manner. So who can say with readability the agricultural coverage that our nation follows, its industrial coverage, its vacationer or college coverage or vocational coaching? Why, for instance, for months, two cottonseed crushing factories have been pressured to put off 1,000 brokers on technical unemployment and launch a press marketing campaign in order to not disappear,
This lengthy record was not made out of the need to humiliate anybody, however just because it constitutes the each day lifetime of senior administration. And it’s this each day newspaper which helps to outline, which determines, which helps all facets of the administration of public affairs, be it monetary, financial, agricultural, industrial, vacationer, exterior, cultural coverage and so on. From the nation. I don’t imply to say that our managers can do nothing. However they do what they will, they tinker! On the monetary aspect, for instance, our public accountants and fund managers both have no idea or faux to disregard that the annual rendering of accounts is an crucial obligation.
Though Africa is lagging behind others
continents for a lot of causes together with some historic and structural, the poor high quality of the administration of many nations explains the shortcoming of the Governments to measure and to face the challenges of our time. The state of affairs described above is subsequently not particular to Benin.
Our courageous executives or administrators of central administrations, when they aren’t common managers, are usually not missing in good will, however it isn’t with good will that we grasp the methods and cogs of administration and even much less of senior administration. They have to be realized, practiced, mastered. The executives of our administration and our public sector haven’t been sorted out, shaped in the proper molds, as a result of the College is just not the proper mould.
One of many penalties, and never the least, of this example is the overload of presidency work which offers too typically with minor points! So what can we nonetheless do at the moment?
Part 2 – The poor state of the administrationBenin. What to do ?
Along with malaria and AIDS, dangerous governance is sadly probably the most widespread factor in Africa. Koffi Annan, The proficient Secretary Basic of the United Nations has not hesitated to ask African leaders firmly and repeatedly
adjust to the foundations of excellent governance. Worldwide monetary and financial organizations proceed to argue in the identical course. Though African evils have extra distant roots akin to slavery and colonization, it’s obligatory to brush away at the moment and produce the rulers to be extra accountable. Nobody is forcing African leaders to mismanage their nations!
– II Administration The acute urgency of coaching in specialised facilities
You can not do good administration, usefully help a director of providers, direct a service, coordinate a set of providers or instructions, with out coaching in a faculty or a specialised institute, whether or not nationwide or worldwide. It’s apparent that many African leaders appear to disregard and that the present and future leaders of Benin should get of their heads. Why on earth do they ship, for instance, troopers to nationwide or international coaching colleges, college students of scientific lessons in engineering colleges, pilot candidates to flight colleges and why do they imagine that the administration can’t be realized in specialised establishments. Are they so ignorant? Actually not, since these of them who’ve nationwide plane, for instance, don’t run the danger of entrusting the pilot to the primary pilot who comes, as a result of they know the dangers they run! They entrust these delicate technique of transport to skilled and well-paid pilots in an effort to protect their lives.
I wish to rapidly point out right here three fashions of coaching within the discipline of administrative sciences. The French Nationwide College of Administration, the well-known ENA, the German College of Administration at Speyer and the Nationwide College of Public Administration ENAP in Canada. There are a number of administrative colleges in some African nations akin to Senegal, Burkina-Faso or Côte d'Ivoire. They’ve the benefit of present, however their historical past is much less identified and particularly their popularity stays to be finished. Perhaps we should always work on it.
To coach good directors of males and issues are costly. That is definitely one of many weaknesses of the African Faculties. France, Germany and Canada are among the many most developed nations on the earth since they’re all members of the Membership of the 7 most industrialized nations. Nevertheless, these nations, of very completely different cultures, take explicit care within the coaching of their senior administrative managers. We might not be of this opinion, however France, the fourth financial energy on the earth, with a inhabitants of 62 million, an administration of 5.2 million brokers together with three.5 million civil servants serving the state , 1.5 serving native communities, 200,000 to 300,000 serving in hospitals, can’t be what it’s at the moment with out the ENA. Based 60 years in the past by Basic de Gaulle and Michel Debré, it has undergone just a few slight reforms. Successor to a system primarily based on particular person competitions for the combination of huge state our bodies, management physique, diplomatic, prefectural, civil directors. , The ENA's mission is to supply uniform preliminary coaching for senior French officers. The entry system, though at the moment diversified, stays a strict entry choice, entry to the excessive capabilities of the State in strict and nearly unchangeable operate of the exit rank, high-level skilled and postgraduate coaching, a supervision primarily offered by famend professionals. The spine of the French administration is made up of roughly 5,000 (5 thousand) enarchs in management positions in all administrations of the nation, in all diplomatic representations and enormous nationwide corporations. They’re additionally in a powerful place in European and worldwide establishments but in addition in massive corporations within the non-public sector. On the degree of the French common administration, the enarques are assisted by executives of excellent degree too, skilled within the Regional Institutes of public administration (IRAP). IRAP have skilled since their creation within the years
70 80, between 20 and 30,000 public administration attachés. These are these 35 to 40,000 executives, chosen, skilled, periodically retrained, with the good technical our bodies, who function the French administrative machine with out which the French State wouldn’t be what it’s, the French financial system does wouldn’t be on the degree the place it’s, the affect of France wouldn’t be at this peak!
It could be famous in passing that the ENA trains senior officers for a lot of different nations, particularly Europeans and that since 1945 the most important contingent of foreigners shaped has been made up of "German enarchs". Along with their good preliminary coaching, executives of the French senior administration are assured a very good profession, profit from good remuneration, are usually not on the mercy of the fantasies of visiting Ministers. They subsequently stay at their posts for a very long time and serve the French State and their nation!
2 – Past of french mannequin
The coaching of senior officers from Germany, a rustic of 90 million inhabitants and the world's third largest financial energy, has adopted two instructions since 1947. This coaching, which takes place exterior the Bakov (Bundesakademie fur Offentliche Verwaltung) primarily on the Speyer's Greater Administrative College (in RhEnaniePalatinate, in West Central Germany) was nearly modeled, which might have believed it , on the French ENA, that’s: monopoly place of the College for entry to larger administrative jobs, sensible objective of coaching combining schooling and internships, disciplinary opening in legislation, economics, sciences: political and social and in addition social recruitment, promotion of center managers, assured hiring at exit and open prospect of a beautiful profession. However beneath the affect of assorted components together with that of the historic German mannequin, the sensible improvement of the Speyer's College deviated considerably from the French mannequin. Thus, the disciplinary opening fell again in favor of postgraduate authorized coaching, the institution of an impartial analysis mission and later persevering with schooling. The College presents practically 500 listeners, towards 100 college students for the ENA, throughout every of the 2 college semesters of the 12 months, programs and seminars on the concrete exercise of the State and administration. These classes are offered by college professors and lecturers from state and municipal administration, financial and authorized circles. The Speyer College now not has a monopoly on coaching for public administration, however it’s in reality a benchmark of excellence. Thus, each the French ENA and the College of Speyer, prepare senior directors, able to figuring out and analyzing political and financial conditions and issues collectively, of figuring out room for maneuver and '' think about progressive options, use trendy strategies of administration and choices, negotiate and defend choices each inside and outdoors the administration. From 1991, the College arrange what it known as the "Speyer Administration School" meant for the upgrading of the chosen ministerial heads of service and within the technique of taking on the administration of departments.
The Nationwide College of Public Administration of Canada Quebec, the ENAP, was created in 1969. Just like the French ENA and the Speyer College in Germany is a high-level preliminary coaching heart, but in addition a coaching heart carry on going. Enap combines the custom of French-speaking coaching, primarily based on seminars, working teams, compiling recordsdata, internships, and so on. with the superior methods of the North American system. The College additionally presents many potentialities for worldwide cooperation. It trains the overwhelming majority of managers in public administration in Quebec.
Virtually all European nations, Italy, Spain, Portugal, Poland and so on. have coaching techniques for the leaders of their senior administration roughly modeled on the French ENA or the Speyer's College. The American system, primarily based on stable coaching in massive universities with nice sources and the service of high-level academics, is considerably completely different. Basé aussi sur l’excellence de ses produits, il mérite une réflexion séparée. Même, en Russie, ancienne Union soviétique, il existe aujourd’hui une Ecole d’administration, presque copie conforme de l’ENA
Part three : L’origine du mal
Je ne voudrais pas donner l’impression de ne réagir qu’aux écrits de nos amis journalistes. Le lengthy article que j’ai écrit, début mai 2005, sur la gouvernance dans notre pays répondait déjà à l’édito d’un jour du mois d’aout 2004 de M. Azonwakin de Fraternité, Mais si j’ai senti le besoin de revenir sur Ce que j’ai publié Sur le désastreux état de l’administration béninoise, c’est à trigger d’un article d’un grand homme de média, Maurille Agbokou. Dans sa parution du 6 mai 2006, il écrit dans Adjinakou, “Le pays va mal. De mal en pis.” Il décrit dans cet article “les difficultés d’approvisionnement en produits pétroliers par les consommateurs béninois, la valse des prix des mêmes produits, la cherté de la vie, la montée vertigineuse du chômage, les problèmes de sécurité caractérisés entre autres par les coupeurs de route et les échauffourées urbaines et les incessants braquages. Remark comprendre qu’une easy révolte urbaine à Cotonou se soit soldé par trois morts, beaucoup de blessés et d’importants dégâts matériels ! Maurille Agbokou poursuit “Face à cet horizon assombri, le gouvernement semble n’être d’aucune utilité … le gouvernement semble tétanisé et n’a aucune pièce de rechange pour tirer le pays d’affaire. II. Tout cela est-il lié à ce qu’il appelle
“atmosphère de fin de règne du Président Kérékou “? Peut-être, automobile lorsque l’autorité n’est plus ce qu’elle était, plus rien ne tient la route. Mais, ma conviction est que l’Etat béninois, comme beaucoup d’Etats africains, est beaucoup plus formel que réel. Il est assis sur une administration malade automobile en grande partie inorganisée, globalement incompétente, laxiste, largement corrompue et irresponsable and so on. L’essentiel du mal vient de là. J’affirme que le Président Kérékou démissionnerait demain, un nouveau chef de l’Etat élu et installé, si la fondation de l’Etat béninois n’est pas revue, corrigée, réorientée, le pays n’irait pas mieux et nos maux qui ont noms, baisse de la manufacturing agricole, chute de nos produits d’exportation, marasme du secteur industriel, aggravation du chômage, state of affairs sanitaire globalement préoccupante, insécurité et pauvreté grandissantes
. . . ne trouveront aucune answer. II est totalement
erroné de croire que celui qui est à la tête d’un pays peut tout faire, qu’il est responsable de tout, que les options à tous les problèmes dépendent de lui. Souvent, dans un pays organise, un “easy” chef de service est en mesure de régler un problème relativement vital sans qu’il ne soit besoin de monter plus haut. Un Directeur peut donner une impulsion décisive à une affaire s’il faisait simplement son travail. Je souris souvent en entendant dans la plupart de nos média, nos braves compatriotes, faire appel au Président Kérékou pour régler un problème mineur qui se pose ici ou là. Par ailleurs, un gouvernement tout seul ne peut pas grand-chose. II doit appliquer les grandes orientations arrêtées par le Chef de l’Exécutif, définir et mettre en œuvre des politiques sectorielles cohérentes et appliquer des programmes d’actions solides. En effet, même si un gouvernement avait 50 membres, que représente-t-il face à une armée des fonctionnaires qui doit bien aujourd’hui approcher le chiffre de 70 000 tous corps confondus.
1 – Pourquoi l’administration est incontournable
L’Administration est incontournable parce qu’elle représente le bras arme, le principal instrument de travail et d’motion du Gouvernement d’un pays. C’est l’Administration qui dans différents secteurs, économique, financier, agricole, industriel, sanitaire, method, social, sécuritaire et autres dispose des hommes et des femmes fees de missions précises au revenue de la Nation. C’est elle qui possède les moyens financiers et matériels permettant d’atteindre les objectifs du gouvernement. C’est l’Administration qui applique et fait appliquer les lois et les actes réglementaires pris par le gouvernement. C’est elle qui met en œuvre les circulaires ministérielles. Elle dispose même, pour accomplir ses différentes missions de pouvoirs qui souvent dérogent au droit commun.
L’état de l’administration béninoise est connu. Les Etats généraux de 1994 et l’commentary de tous les jours en témoignent largement. Les paperwork officiels même affirment que notre administration n’est pas performante, qu’elle est caractérisée par un faible rendement, une corruption généralisée et endémique, une médiocrité diffuse, un encadrement médiocre, un laxisme préoccupant, une lenteur préjudiciable à l’avancement des dossiers and so on.. Par ailleurs, notre administration est archaïque pour au moins deux raisons. Curieusement, malgré le tapage ambiant, les nouvelles applied sciences l’on peut pénétrer en dehors du classique traitement de texte. Peu de Ministères, même parmi les plus importants ont un réseau interne pour assurer un fonctionnement maximal. Ils sont encore moins connectés entre eux afin de faciliter le travail gouvernemental. Rares sont ceux qui sont sur le internet alors qu’il est aujourd’hui la plus grande bibliothèque et la plus grande base de données du monde. Notre administration est aussi archaïque parce que ses méthodes de travail ne sont pas adaptées aux problèmes de notre temps . Je me suis davantage rendu compte de ces tares et dysfonctionnements lors d’un audit des réformes au Ministère des funds que j’ai conduit en 1999′ pendant près de 9 mois, à la demande du Ministre Abdoulaye Bio Tchané. C’est pour toutes ces raisons et beaucoup d’autres qu’il est impérieux que les 1500 a 2000 hommes, Cooks de providers centraux, Directeurs methods, Directeurs d’administration centrale, Directeurs de cupboard, Secrétaires généraux, Directeurs généraux et Directeurs des entreprises publiques … qui encadrent l’administration et le secteur public béninois changent de comportement et de méthodes, bref, changent, de tradition. C’est pourquoi, nos responsables d’administration centrale doivent être reformés automobile leur formation et les valeurs qui guident leurs actions ne sont pas compatibles avec le progrès de notre pays. Aucune nation développée n’a progressé sans que ses élites vouent un profond amour à leur pays, sans qu’elles assimilent et respectent un sure nombre de valeurs et font un most d’effort pour préserver ce qui a été bâti avant eux.
2 – Recyclage, formation préalable et formation proceed
Les administrateurs béninois qui assurent les fonctions de course dans I ‘administration publique béninoise aujourd’hui sont mal formés. Depuis longtemps, le moule destiné à cette fin n’a plus Servi à cela. II a servi à former des cadres pour le secteur privé et le chômage. Les moules extérieurs ne sont plus ou très peu utilises ou ne sont pas appropriés, C’est la raison pour laquelle l’administration publique béninoise va ” à vau l’eau”. II n’y a aucune raison pour que les cadres béninois et notamment ceux qui sont chargés des fonctions d’encadrement général aient les compétences requises indispensables à l’exercice regular de leurs fonctions, qu’ils soient patriotes, respectueux de leur pays et du bien public, si dans leur formation, ces notions ne leur ont pas
été enseignées, développées, inculquées. Il n’y a aucune raison pour qu’ils respectent le bien public s’il ne leur a pas été enseigné que celui-ci est sacré, que le pouvoir qui leur est délégué l’est pour le bon fonctionnement du service public. Il n’y a aucune raison pour qu’ils craignent l’argent public comme la peste s’ils ne savent pas que la reddition des comptes est un impératif pour les funds publiques et que quiconque viole ses règles doit en payer le prix. Dans le système francophone d’enseignement supérieur, ce ne sont pas des notions que l’on enseigne sur les bancs des facultés à quelque niveau que ce soit.
Ce sont les écoles d’administration et les écoles professionnelles qui ont vocation à donner ces enseignements. J’ai évoqué dans un récent article, hélas un peu lengthy, le système en vigueur en France, en Allemagne, au CanadaQuébec, mais aussi dans presque tous les pays européens. L’élite administrative de pays de dizaines de hundreds of thousands d’hommes, disposant d’une administration de plusieurs hundreds of thousands de membres est généralement de quelques dizaines de milliers d’hommes. En France, ii n’est pas tout à fait juste de ne parler que des énarques et de leurs assistants formés dans les Instituts régionaux d’administration publique. Cette armée de 40000 à 50000 brokers d’encadrement supérieurs sont efficacement secondés par des collaborateurs formés dans différentes disciplines, à différents niveaux et auxquels sont inculqués les fondamentaux qui constituent le fondement de leurs actions. C’est ainsi que les cooks de service, les sous-directeurs, les cooks de division qui sont certainement quelques centaines de milliers assurent la cohésion et la pérennité du système.
three C’est parce que …
C’est parce que l’administration béninoise est de piètre qualité que les politiques publiques, quel que soit le domaine concerné, définies par le gouvernement sont menées de façon artisanale, inefficace, chaotique et irresponsable. C’est parce que cette administration est mal organisée, mal structurée, mal dirigée, qu’elle n’arrive pas à conduire à terme OU avec d’énormes difficultés et beaucoup de retard les grands projets ‘ qu’elle n’a pas de mémoire. C’est parce que notre administration repose sur des hommes qui n’ont pas intègré les valeurs qui devraient être les siennes que les politiques sectorielles, qu’elles soient agricoles, industrielles, éducatives, sanitaires, and so on. sont menées de façon inconséquente. Si nous ne changeons pas, progressivement certes, mais radicalement cette state of affairs, il faut perdre l’phantasm selon laquelle un changement de Chef d’Etat et de gouvernement suffira à nous sortir des innombrables problèmes d’aujourd’hui et de demain.
four – Ce qu’il faut faire
Comme ii est très difficile de redresser un bois qui est déjà sec, l’Etat béninois doit se donner comme principale préoccupation de recycler de manière très rigoureuse ceux et celles qui sont aujourd’hui en place de responsabilité dans nos administrations publiques et qui par leurs comportements quotidiens contribuent à appauvrir et à couler notre pays.
II est pressing, extrêmement pressing, que l’Administration béninoise redevienne d’abord une administration au service des populations. II faut que les hommes et les femmes qui la dirigent soient très bien formés ou reformés, périodiquement recyclés, pour se consacrer effectivement et efficacement au service de leurs compatriotes. II faut qu’on leur apprenne et qu’ils assimilent les connaissances nécessaires, qu’ils acquièrent les repères, qu’ils assimilent les valeurs essentielles au bon fonctionnement des constructions qu’ils dirigent. II faut que l’Ecole nationale d’administration et de magistrature devienne très rapidement un centre d’excellence destiné presque exclusivement at la formation de notre élite administrative et judiciaire. Ceux qui sont aujourd’hui en fonction doivent être recyclés en urgence. Si le Pouvoir qui va s’installer aux commandes de notre pays en avril 2006 n’en fait pas son credo, la gestion des affaires publiques, en fait la gouvernance de notre pays continuera sur la pente de la médiocrité et peut-être un jour finira dans le chaos.
Nous devons aussi sortir de l’phantasm que le Benin, par le travail de ses fils, la sagesse et le savoir de ses gouvernants peut se mettre à l’abri, se sortir seul d’affaires. Nous devrions œuvrer au sein des ensembles sous régionaux, Uemoa, Cedeao, pour que des systèmes de formation de l’élite administrative de la sousrégion soient mis en place. De telles constructions, par le brassage des élites qu’elles vont instaurer, permettront une avancée significative dans le traitement des problèmes bilatéraux et sousrégionaux.
Conclusion
La query de la qualité et du rôle de l’administration béninoise peut paraître banale à certains. Ceux-ci pourraient privilégier le problème politique de la désignation du premier magistrat du pays ou alors celui de l’équipe gouvernementale qu’il mettra en place. Bien que ce soit des questions majeures dignes du plus grand intérêt, je soutiens que la qualité de l’administration de notre pays constitue un nœud pour la bonne gestion des affaires publiques.
II convient de trouver une answer urgente à l’indigence qui la caractérise aujourd’hui afin de sortir l’ensemble du système de gouvernance publique de la médiocrité et de l’ornière, 11 me parait impérieux de prendre, le second des réformes venu, les mesures suivantes :
• Détacher sans délai, c’estàdire des mai 2006, l’Ecole nationale d’administration et de magistrature ENAM de l’Université nationale du Bénin et du Ministère de l’Enseignement supérieur. Malgré la qualité de l’actuelle Course de l’école, équipe que je connais et que j’apprécie, une Ecole d’administration n’est pas une faculté ou on va apprendre des généralités ! Dans une école d’administration, on apprend de manière concrète à gérer les affaires publiques.
Rattacher l’Enam au Ministère de la fonction publique dans la mesure où ceux qui y sont formés sont d’abord et avant tout destinés au service de l’Etat. 11 est arrivé pendant plusieurs années que l’Ena béninoise ait formé des secrétaires de course, des archivistes, et procède au recyclage de journalistes !
Nommer, pour orienter et surveiller le fonctionnement de l’Enam, un Conseil d’administration d’une dizaine de membres, composé de hauts fonctionnaires ou de personnalités servant ou ayant servi l’Etat au plus haut niveau , qui savent ce qu’il est et qui en ont le sens.
Mettre à la tête de l’Ecole nationale d’administration non pas un professeur de l’enseignement supérieur, mais une équipe composée d’un administrateur et d’un magistrat de haut niveau.
Assurer pendant une période transitoire de cinq ans une formation initiale pour des promotions composées de 80 à 100 élevés rigoureusement et sévèrement sélectionnées.
Assurer un recyclage approfondi d’environ three mois à tous ceux qui exercent des fonctions de course et de cooks de service dans nos administrations publiques. Les administrations naissantes de nos communes pourront en profiter. Revoir le mode de fonctionnement de toutes nos écoles et instituts professionnels (Douanes, Impôts and so on.) et autres, formant des cadres pour l’administration publique afin de les remettre dans le sens des véritables et nouvelles missions de l’Etat. 11 faut aussi travailler à assurer une bonne articulation et une cohérence de ces centres de formation avec l’ensemble de l’administration.
Au plan régional, il convient que l’Etat béninois œuvre fermement à la création au niveau des eight pays de l’Uemoa et des 15 pays de la Cedeao d’une construction de formation de courte durée et de haut niveau pour assurer le brassage des élites administratives sousrégionales …
Bien évidemment, une profonde réforme de l’Enam et l’amélioration du fonctionnement des autres constructions de formation des fonctionnaires béninois ne suffira pas à régler les graves dysfonctionnements de l’administration et l’inefficacité de l’Etat béninois. 11 faut aussi s’attaquer à la réforme de
l’Etat lui-même en le recentrant sur ses fonctions essentielles et en le dotant de constructions performantes et efficaces. A titre d’exemple, la création urgente d’une Cour des comptes, juridiction financière de droit commun pour enfin discipliner les comptables et les gestionnaires des fonds publics, la rationalisation du rôle de l’Inspection générale des funds, efficace, mais confiée à des taches secondaires et sans impression sur la gestion économique et financière du pays, rendre efficace les inspections ministérielles dont la plupart végètent aujourd’hui alors qu’elles sont indispensables au bon fonctionnement de l’Etat. Ces mesures et beaucoup d’autres sont à prendre à très court docket terme et sans faiblesse. Au whole des réformes institutionnelles, économiques, financières, administratives sont impérieuses. Remark par exemple ne pas revoir les bases de notre économie productive et espérer qu’une seule filière agricole, celle du coton, peut assurer la prospérité du Benin pendant 30 ans ! Au lieu de travailler rigoureusement à la diversification de nos productions agricoles et rendre performante notre rôle de pays de providers, nous passons le plus clair de notre temps à émettre des vœux et pousser des jérémiades, à organiser des séminaires émaillés de pauses café ! La décentralisation, c’estàdire l’existence de communes autonomes, est aujourd’hui une nouvelle donne que l’Etat qui l’a voulue, initiée et mise en œuvre, doit nécessairement prendre en compte. Rendant à César ce qui est à César, on est obligé de reconnaître que le Président Nicéphore Soglo, que l’on soit de son bord on non, que l’on l’apprécie ou pas, a été, tous régimes confondus, le seul dirigeant de notre pays à penser, parler et agir “développement économique” six ans durant. C’est cette voie, en évitant autant que doable les erreurs de parcours, qu’il faudra nécessairement reprendre et creuser à partir de 2006 si nous voulons éviter le chaos à notre pays et le désespoir à nos enfants.
L’Etat béninois ou la marche d’un invertébré extrait p7à57
Bonne gouvernance au Bénin: ma contribution, Éditions du Flamboyant, 2005, 148 pages Copyright flamboyant
