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                                                                           No. 48 January 2000




             Togo : Creating Partnerships in Development Initiatives


Supported by a World Bank credit of US$5 million, the Government of Togo implemented the
Grassroots Development Initiatives Project ( GDIP ) from 1990 to 1998. This project was the
first in Togo to pilot the use of participatory approaches and to work directly with NGOs
through FONGTO ¾ the Federation of NGOs in Togo. It would eventually generate important
lessons for the design of a first social fund project in Togo. The objective of the project was to
improve the living standards and working conditions of the country’s poorest communities.. The
GDIP provided direct assistance to NGOs, who were the key implementation partners, and
strengthened their capacity to prepare, implement and manage community-level projects. The
project included 4 major components : (i) grant financing for micro-projects, using NGOs as
implementing partners; (ii) technical support to a Steering Committee responsible for
coordinating and overseeing project activities; (iii) technical support for the program of Local
and participatory Development Division ( PLPD) in the Ministry of Planning ; and (iv) technical
assistance and institutional support for NGOs.

Impact on the ground

Five hundred thousand inhabitants in 195 villages ( representing more than 10 percent of Togo’s
population ) saw their living and working conditions improved and about 3,000 jobs were
generated in rural areas as a result of sub-projects supported by GDIP.

The project helped to improve beneficiaries’ quality of life through : increased income,
improved working conditions for teachers and students, greater access to health posts and
pharmacies, increased food security, reduced crop losses and premature crop sales, reduced
women’s water-carrying burden in rural areas, increased diversification of production, and
improved product marketing.

One hundred and ninety five village communities benefited from social infrastructure and
equipment (wells, mills, storage facilities, schools, small bridges, and health posts).

Three hundred and sixty eight associations ( of at least 7 people each ) received support for
income-generating activities.
Lessons learned

Building a relationship between government and NGO is time-consuming, particularly if there is
initial reticence to work together, but is worthwhile if done well.

For projects which are critically dependent on a participatory approach involving all
stakeholders, beneficiaries, NGOs and government, it is essential to clearly define the roles and
responsibilities of each set of actors. Beneficiaries and NGOs should be involved in project
design, execution and management; government should be involved in providing policy
guidance, but not day-to-day management.

With NGOs as intermediaries in a project, it is important to have eligibility criteria and a pre-
selection process to ensure that they have the technical and financial capacity to carry out sub-
projects.

Well-designed training programs for NGOs, as well as for associations or groups of
beneficiaries should be a priority.

While contribution by beneficiaries to sub-projects is critical to ensure ownership and
maintenance, the amount should not be set so high as to discourage the poorest beneficiaries.

Sub-project sustainability, particularly of infrastructure and equipment, cannot be achieved
unless a mechanism is established for operation and maintenance after construction, including
the collection of funds.

In order to ensure that sponsoring NGOs provide the necessary support to communities, they
need to be partially compensated for the expenses incurred on preparation, execution and
operation of sub-projects.

Income-generating activities should be financed by loans, instead of grants, to encourage
financial discipline on the part of beneficiaries. Although the NGO receives the fund as a grant,
they establish a revolving fund for on-lending to beneficiaries. Also, the lack of working capital
and efficient marketing are problems to be overcome.

Among the income-generating activities, the most successful sub-projects were small livestock
breeding, storage facilities, and micro-finance.

Sub-projects should focus more on women’s needs.

Illiteracy makes it difficult for beneficiary groups to participate in a range of activities,
especially when dealing with banks and managing funds allocated to them.

Sub-projects need to consider and factor in the relevant socio-cultural aspects.

Sub-projects would have a greater developmental impact if they were prepared as part of an
inter-related program of complementary activities.

Sub-projects should emphasize not only the economic and social aspects, but also capacity
building and institutional support for grassroots community organizations.



This Infobrief is excerpted from the article " Togo : Creating Partnerships in Grassroots
Development Initiatives" by Kossi R. Eguida, in the publication , A Tapestry of Hopes : How
NGO/Civil Society Field Staff in Africa promote Participation, Inclusion, and the Social
Agenda, Poverty Reduction and Social Development Unit, Africa Region, World Bank, 1999.
For more information, please contact Kossi Eguida : Keguida@worldbank.org