Benin: An Experiment in Direct Democracy for Education
Last May, members of Benin's Parliamentary Commission for Education, Culture, Employment and Social Affairs toured the country's provinces to hold hearings and solicit the opinions of the people on a proposed education law. The author, a communication consultant who participated in the consultation, delivers back his impressions on this unique experience.
Elected officials often vote laws in Parliament without regard for public opinion, because no public debate was ever solicited. "Elect us and we will do the rest," they seem to say.
A national consultation on the education legislation initiated in May 2000 by Benin's Parliamentary Commission for Education, Culture, Employment and Social Affairs took the opposite tack. With support from ADEA, the commission organized hearings with all actors in education in the twelve provinces of Benin.
For both the MPs and the actors in education, these meetings were an opportunity for dialogue and an example of direct democracy, all of which are enriching Benin's political experience. If the proposed legislation is voted, it will replace the 1975 ordinance that continues to govern the country's education system.
The communication strategy
The purpose of the consultation was to raise awareness of the proposed law on the future direction for education, to gather suggestions and reactions, and to elicit the concerns of the various actors in education. Held in the country's schools and universities, the hearings were prepared by the provincial directors of education. Representatives of the main actors of the education sector (students, parents, members of the teachers' unions, NGOs, and others) were invited. The hearings were well attended, with an average of about one hundred people at each one.
The working sessions began with a reading of the legislation, followed by a discussion of the text. This process also gave participants a chance to learn about the procedures of the General Assembly.
At the end of these discussions, the Commission's secretariat and a representative of the participants jointly wrote a report of the proceedings of the consultation, which summarized proposals, suggestions, and opinions expressed in the meetings. The Commission will examine the report of the proceedings and discuss amendments to the legislation during an open session of the Parliament. A representative of each province participating in the meetings will be invited to follow the debate.
Holding off the media
One aspect of the communication strategy was to keep the media away from the hearings. This decision was made to keep hearings from appearing to be partisan political debates and to keep them focused on values shared by a whole nation: the right to education in conditions acceptable to all. This strategy also demonstrated that public reflection, meaningful work, and a political event can be a communication activity which can take place without media coverage.
Accustomed to media exposure, the MPs were somewhat surprised by this approach. "Where are the journalists?" could be overheard during the lunch hour.
Some observations
Despite the difficulties facing education throughout Africa (lack of funds, under-qualified teachers, high drop-out rates, low rates of schooling for girls, and so on), participants at these hearings expressed their desire for a functional and operational framework that responds to the fundamental educational rights defined by the Constitution. For example, at a hearing in the northern town of Parakou, parents expressed the difficulty students have in accessing universities, which are in the south of the country. In Cotonou and Porto-Novo, teachers find themselves constantly challenged by competing sources of information and communication, which perform the same role of teaching, building awareness, and education. They are horrified by the Brazilian soap operas broadcast on local television that transmit negative values. They oppose video clips of Congolese music, which they feel pervert the good morals of their pupils. Unfortunately, these teachers are not aware of the opportunities offered by rival sources of information and entertainment to help them improve the quality of their teaching.
According to a representative from an NGO, Aide et Action, a deeper problem undermines education in Benin: the inadequacy of teaching and training to meet the needs of the workforce. In an environment where, to a certain extent, the informal sector has a commanding influence on the economy, the content of the curriculum is not adapted to the country's needs. The education system trains more and more graduates who cannot be employed. Another problem is the lack of thought given to the role of computers and other new communications tools in education. Representatives of universities expressed the view that the foundations of the Benin educational system need rebuilding.
Dialogue and consensus, the two pillars of democracy in Benin
Since 1990, Benin has been opening up a space where men and women, leaders and opinion makers, pressure groups and organizations and ordinary civilians live together in "civilized cohabitation." For nearly ten years the country has sought to ground its political life in a spirit of consensus and dialogue.
The hearings were a perfect example of what the people and their elected officials have attained. The important issues of education have facilitated the practice of a democratic dialogue among elected officials and participants. Finally, participants' propositions and suggestions have given new impetus to the understanding of education issues in Benin.
The Commission's heterogeneous membership was a true measure of the non-political nature of the debate and the honest dialogue carried on with students, parents, unions, and teachers. It marked the first time that elected officials of different political colors have joined together for a common cause and the opportunity for the two parties to establish a real dialogue on a subject, which, up to now, was monopolized by the education specialists. This consultative procedure was an innovation that was greeted favorably by the Parliament. It was closely followed by all the other commissions of the Parliament.
Conclusion
In earlier years, legislators made many political decisions without recognizing the importance of public opinion on the issues at hand. Since the National Conference of 1990, politicians have used communication as a management tool. They recognize that public opinion is a necessary partner to good governance.
The hearings were, by their very existence, a communication vector. In fact, seeking out public opinion outside of an electoral campaign period constituted a revolution in Benin. Despite some difficulties encountered in organizing this consultation, all participants cooperated. They understood the meaning the Commission had wanted to give to the hearings. The MPs also realized that to pass legislation behind closed doors not only gives the unfavorable image of the usual political bashing (of which the Parliament is accustomed), but also risks bringing about interminable discussions over any necessary amendments.
This type of consultation might become more common, if, instead of attempting to substitute their own views for public opinion, MPs made more effort to understand and take into account the contradictions, unanswered questions, and difficulties in building the future. One must hope that, in the future, meetings between local officials and those whom they govern will increase in order to reinforce democracy in Benin.
Justin Dovoedo
Communication consultant
Image et Strategie
Cotonou, Benin
Previous Article: COMED and the United Nations Special Initiative for Africa | Contents Page | Next Article: Uganda: Desiging Communication and Education Programs to Combat HIV/AIDS
![[ADEA logo]](../../pics/top_main.gif)
![[Table]](../../pics/top_right.gif)
![[ADEA Newsletter Image]](../../pics/newsletter.jpg)
