The Question

This question was posted on behalf of Gibrilla Murray Jusu, Electoral Management Body, Sierra Leone

Paramount chieftaincy is a traditional system of local government and an integral element of governance in some African countries such as Sierra Leone, Ghana, Liberia and Ivory Coast. In Sierra Leone, paramount chiefs are community leaders and their tasks involve - among others - protecting community safety and resolving disputes. We are now interested in how this system has been integrated into modern representative democratic government, and, are you aware of material or publications related to paramount chieftaincies?

Summary of responses

Botswana is cited as an example where paramount chieftaincy has successfully been integrated into a modern democracy: here paramount chiefs meet in the second chamber and are regularly consulted on a number of matters. In addition, they also administer local justice through customary law.

In Zambia, although local chiefs are barred from competing in formal elections, they are “of fundamental importance to local governance and are regularly consulted in local and national matters.” In Cameroon, on the other hand, local chiefs are permitted, and often do, take part in formal elections. Many are elected to positions of local governance (votes are often cast along traditional lines of loyalty) and some as national members of parliament.  In addition, chiefs in Cameroon play an important role in encouraging people to turn out and vote.

On a more theoretical level, the concept of poly-centric decentralized democratic governance is advocated as an appropriate model for integrating the traditional into the modern. This is a system with “multiple decision-making centres” which interact to solve common problems and the management of collective resources. One expert sees this system as a particularly fitting model for the relationship between the modern state and traditional African power structures, given many societies’ tradition of collectively sharing responsibilities within a common framework.

A number of material and publications were mentioned and are listed below under ‘External Resources.’

Examples of related ACE Articles and Resources
Materials
• Namibia: Council of Traditional Leaders Act (1997)

External Resources
• Beyene, Kiros.  Polycentric Decentralized Governance in the Context of Eritrea. Presentation given at the Eritrean Festival, Frankfurt, Germany, 6-8 July 2010.
• Ostrom, E., Schroeder, L., & Wynne, S.  Institutional incentives and sustainable development: Infrastructure policies in perspective. Boulder: Westview Press, 1993
• Wang, P. (n.d.). On the Viability of Polycentric Governance Theory and Approach to Contemporary China, School of Government, Peking University, Beijing, China.
• Cohen, D. L., Parson, Jack.  Politics and Society in Botswana. Dept. of Political and Administrative Studies, University of Botswana and Swaziland, 1976
• Mabuyakhulu, Michael.  Traditional Leadership and Democracy – How Far We Have Come in KwaZulu-Natal?
• Dunn, John & Robertson, A.F.  Dependence and Opportunity: Political Change in Ahafo. Cambridge University Press,  1973
• Baldwin, Kate, Ph.D. Big men and ballots The effects of traditional leaders on elections and distributive politics in Zambia.  Columbia University, 2010
• International IDEA. Traditional Justice and Reconciliation after Violent Conflict: Learning from African Experiences, 2008

Names of contributors
1. Kiros Beyene
2. Jeremias Blaser
3. Ron Gould
4. Khalid Waheed
5. Ola Pettersson
6. Atem Oben Henry Ekpeni

 I find your question very interesting. I had similar question in the past on how to create a viable system of government at all levels, especially, in the context of my country, Eritrea, the only country in Africa with no election and electoral system for the last 20 years. As a result, our politicians have totally disregarded the traditional governance structure and our society is found in confusion because Eritreans are denied their century long self-rule and democratic rule. 

My suggestion for you is to read on poly-centric decentralized democratic governance advocated by professors Vincent and Elinor Ostrom. Poly-centric governance system as a political order exists when multiple decision-making centres formally and independently act to solve their collective problems related to the management and uses of common-pool-resources- be it land, fisheries, forestry, water resources, grazing lands, security, conflict resolution, defense, etc. I certainly believe there are interesting elements in the principles and practices of poly-centric democratic governance specifically elements that fits to African traditional structure. According to the poly-centric governance system there are many centres of decision-making.

For example, in traditional Africa roles and responsibilities were shared between different elements. In rural Africa resources such as forests, land, grazing land, water and others used to be managed by the beneficiaries themselves. The management of these common pool resources was shared by different groups though answerable to their chiefs. This can be linked to the modern structure without creating complications, for example, the state my demand from each community a established rules and regulations on community election matters and keep these rules and regulations as records for the state for any future reference and enforcement. In my opinion the state should not be stretched unnecessarily to micro-manage the community common resources and community affairs unless community needs it as these can be effectively managed by communities themselves.

I would like to refer you to my presentation last year that has some references on the issues of poly-centric governance-  http://harnnet.org/index.php/news-and-articles/625-polycentric-decentralized-governance-in-the-context-of-eritrea. 

I also encourage you to read on the vast empirical researches on poly-centric governance by professors Vincent and Elinor Ostrom and Wang P on the viability of poly-centric governance for china. 

I hope this helps you.

Kiros Beyene

You might be interested in investigating a little more the case of Botswana. Botswana's paramount chiefs meet regularly in a second chamber and are consulted on matters of customary law, culture, tradition and the like. In addition they organise at the local level the so-called Kgotla meetings to discuss various issues but most importantly to administer justice through customary law (approximately 90% of potential court matters are handled by the kgotlas). It's a system that is cheap, effective and legitimate. South Africa might also be a very good example how traditional leadership has been integrated at the local level. Various publication refer to these cases (e.g. politcs and society in Botswana; Traditional Leadership and Democracy etc.) The basis of this system is of course that traditional authorities have a "traditional" type of legitimacy (in the weberian sense). I understand that in Liberia which is just next door to Sierra Leone, the paramount chiefs used to be elected back in the days and today appointed, they do not have "traditional" legitimacy and are basically picked from the various community. I don't know how the situation is in Sierra Leone but recall also that there are a couple of publications on the matter. You should be able to find the reference on the internet.

Best

Jeremias

This comment is posted on behalf of Ron Gould ([email protected]) refering to an email Mr Gould had received from a colleague of his, relating to the issue of litterature on chieftancy issues:

Dear Ron,

Local chieftaincy system exist in many countries specially in third world and developing countries. These chiefs either get chieftaincy in inheritance or through local elections.

In tribal areas of Pakistan,India and Afghanistan this system is working for the past centuries.

The chiefs usually are elected by inheritance and if the inherent s are more than one or not nominated by out going chief than election is conducted to elect one. These chief rule the tribe according to their own traditions and take decisions in important issues in consultation with his aides. Governments generally not interferes in their routine matters.However,in major issues like joint defence of country, developmental schemes and external affairs the Governments enjoys full control.

I will try to search more on it and submit in detail shortly.

Khalid Waheed

The reply was posted on behalf of Ola Pettersson, Second Secretary, Democracy and Governance, Embassy of Sweden Lusaka

In Zambia, local chiefs are prohibited by the constitution to take part in the formal election race (for example running as MPs). They are however of fundamental importance to local governance and they are regularly consulted in local and national matters.

There is a recent dissertation from Columbia University covering this topic: Big men and ballots: The effects of traditional leaders on elections and distributive politics in Zambia.

In Cameroon, local chiefs play an important role in conflicts management, settlement of land disputes, ensuring hygiene and sanitation, security issues through the installation of local peace keeping forces and this attributions have earned them respect and trust from their people especially in the northern regions of Cameroon. They are an anxillary to the administration and their local laws are respected.  Some of them play an important role in sensitizing their people to take part in democratic processes and without such interventions from the chief, many will abstain. Most polling stations were even located in the residence of chiefs but their active politicipation in elections as candidates have called the location of these polling sites to questioning, and many have been transfered to public buildings. Since these chiefs are highly respected, they turn to attract votes to the list in which they belong and statistics have shown that many of them are either Municipal Councillors or Mayor and a few have managed they way to Parliament. It is believed that culture still plays an important role in elections in many African Countries.