Strategic plan of the National Assembly of Burkina Faso ( )

Transcription

1 Strategic plan of the National Assembly of Burkina Faso ( ) September 2016

2 66 Slater Street, Suite 1000 Ottawa, Ontario K1P 5H1, Canada W T Dalhousie St. Ottawa, Ontario K1N 7E5, Canada bhubert@pgf.ca W T This document has been developed by the Canadian Parliamentary Centre with the support of PGF Consultants Inc. as part of the project Support for democracy in Burkina Faso. This project is undertaken with the financial support of the Government of Canada through Global Affairs Canada.

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4 TABLE OF CONTENTS FOREWORD CONTEXT APPROACH Needs Assessment Strategic Diagnosis Summary of Participants' Contributions to the Strategic Retreat Strategic Foundation Strategic Directions and Results Key Activities Results Architecture of the National Assembly Strategic Plan CONCLUSION Appendix 1. Summary of Key Challenges of the National Assembly Appendix 2. Policy Priorities of the Current Legislature Appendix 3. Contributions by Working Groups of Strategic Retreat... 22

5 FOREWORD The Governments of Burkina Faso and Canada have signed a Memorandum of Understanding to support Burkina Faso in its efforts to consolidate democracy by strengthening the capacity of the National Assembly. The Canadian Parliamentary Centre is the implementing agency for this project. The objective of this project is to support the National Assembly of Burkina Faso by ensuring that Members of Parliament and the staff that support them can address the concerns and aspirations of the citizens of Burkina Faso by performing their key functions more effectively. It is important that the mission of the National Assembly, as envisioned in the Constitution, can be fully realized. The current political and economic context requires that the National Assembly - which is the center of political activity and the place of debates reflecting expectations of various political opinions can be perceived by citizens as a source of solutions to meet their challenges and expectations. It is worth noting that challenges vis-à-vis the Burkinabe population will require a cooperative approach from its leaders, fostered by a constructive dialogue based on knowledge and verifiable facts. The goal is to ensure that citizens are protected from the threats of climate change, insecurity, terrorism, extreme poverty, youth unemployment, marginalization of women and vulnerable people, the lack the rule of law, among others. The National Assembly has to play its role of representation, of oversight over the executive as well as its legislative role to contribute to the preparation and adoption of laws for the benefit of the citizens. The leadership of the National Assembly, following the political events and the return to democracy through elections in November 2015, decided to endow the institution with a guiding compass for the duration of its term, which is due to end in 2020, as a way to ensure the improved functioning of the institution. This compass is in fact this Strategic Plan, which is envisioned to be implemented with the support of the international community once adopted by the National Assembly. The Strategic Plan shall be supplemented by an operational plan which will be developed in order to indicate more precisely the approach of how the four-year strategic plan will be implemented. 2 Page

6 1 CONTEXT The role of a National Assembly is central and its functions essential in order to support the functioning of the State, to put in place and to help consolidate the rule of law and to guarantee a democratic process through clear division of powers. In Burkina Faso, the beginnings of parliamentarism date back to the 1950s with the decolonization process. Since 1960, the country has had several experiences of parliamentary life essentially marked by unicameralism, with the exception of a decade of bicameralism experienced in the 1990s. Burkina Faso is currently experiencing a fragile political and socio-economic situation. Although economic growth has increased with an average of 5.5% per year between 2011 and 2015, shortcomings in performance of the national economy has not helped reduce social inequality, regional disparities, unemployment or poverty levels. This growth has only resulted in a small improvement in the population's access to basic social services, including education and training, health and employment. In 2014, 40.1% of the population of Burkina Faso lived below the poverty line. The form of government practiced by the regime, where the legislative power has thus far been limited, has not allowed the National Assembly to fully play its role to hold the government to account as a way to guarantee good governance, political stability, economic development and consolidation of democracy in Burkina Faso. In addition, over the years a deterioration can be noticed in the sound management of the economy, the security, a participatory social dialogue, justice, a civic engagement, state authority and equitable participation of men and women in national development process. This difficult situation reached its climax with the popular uprising of October 30 th and 31 st in 2014, ultimately resulting in the fall of the Fourth Republic. A transitional government was established following the popular uprising, with a particular responsibility to preparing for the holding of free and democratic elections. After the transitional period, parliamentary elections were held on November 29, 2015, after which a new, pluralistic National Assembly was established. Its ability to perform its functions effectively and transparently will be vital to ensure return to democratic and sustainable constitutional order in Burkina Faso. This also comes at a time when expectations for good governance are high by civil society, the media and the population at large. The development of the Strategic Plan of the National Assembly of Burkina Faso covering the period of , was done with the support of the project Support to democracy in Burkina Faso, funded by the Government of Canada and for which the Parliamentary Centre which is the implementing agency. This initiative aims at building strengthening the National Assembly of Burkina Faso by reinforcing the capacities of MPs and parliamentary staff to effectively and efficiently perform their main functions of representation, lawmaking and oversight of government action at a time when the country is experiencing a unique democratic renaissance. The methodology and approach used for developing the Strategic Plan included: implementation of a needs assessment study conducted by the Parliamentary Centre (April-June, 2016); preparation of a strategic diagnosis conducted by the firm PGF; and organization of a strategic retreat (August 2-4, 2016 in Tenkodogo), with the participation of the Steering Committee of the National Assembly composed of MPs and parliamentary staff in order to agree on the broad lines of the strategic plan. The development of the Strategic Plan has thus proved to be a prerequisite for the implementation of the capacity building program of the National Assembly. This plan can also bees seen as a tool that will help the Assembly to better meet the needs of populations. In addition, the Strategic Plan can be seen as a compass enabling to focus the support and interventions, especially those of the international donor community and other partners who provide support to the National Assembly of Burkina Faso. 3 Page

7 2 APPROACH As part of an inclusive and participatory approach, more than fifty participants which included Members of Parliament from all political groups and key networks, as well as parliamentary staff representing all departments of the institution came together to discuss the strategic vision and direction of the National Assembly. This strategic planning retreat consisted both of smaller group discussions and plenary sessions. Participants agreed on a common understanding of the future of the institution. The discussions took place in several stages during which participants sequentially: defined the strategic foundation of the National Assembly in agreeing on the vision and values of the National Assembly; identified strategic areas required to guide the actions of the Seventh Parliament and the strategic and intermediate outcomes; and proceeded to identify structuring activities to support the implementation of the strategic plan for the period NEEDS ASSESSMENT Without being exhaustive, the key needs identified in the needs assessment conducted between April and June 2016 were classified into three categories: 1. needs relating to the capabilities and knowledge of MPs and parliamentary administration staff; 2. the need for development and improvement of procedures and processes; and, 3. infrastructure needs, needs in tools and work resources. SKILLS AND KNOWLEDGE OF MPS AND PARLIAMENTARY STAFF Building the technical capacity and enhancing the knowledge of MPs and parliamentary staff is a key requirements to be met by the National Assembly of Burkina Faso in order to become more effective, transparent and accountable. It is also necessary to build their capacity in key thematic areas to better support the work of the various parliamentary committees, for example in the area of analysis of the budget, the oversight of the implementation of the State budget, as well as issues relating to gender. The ability of members to submit legislative initiatives and to propose amendments to proposed laws by the government are limited due to insufficient expertise (human and technical resources) made available to MPs and parliamentary committees during deliberations in parliament. The lack of capacity of parliamentary staff to conduct and the ability of MPs to access pertinent research was also identified as a factor that considerably limits the ability of members to assume their legislative function fully. Capacity building of Members of Parliament and parliamentary staff in communication techniques, as well as in parliamentary and protocol practices were also identified as needs to address. DEVELOPMENT AND IMPROVEMENT OF PROCEDURES AND PROCESSES The needs assessment found that the lack of clear procedures and processes for the entire National Assembly is a critical need to address in order to optimize management processes and to help make the National Assembly more efficient. The key needs identified include the development of manuals to improve the functioning of parliamentary administration, including on procurement, financial management and accounting, and human resources management. The requirements also include the need to develop uniform guidelines regarding legislative procedure of parliamentary committees, legislative drafting, and human and financial resources management. 4 Page

8 There is a need to provide the National Assembly with an external communication plan and simplified practices for MPs to better communicate with and to engage effectively the citizens in the legislative process. Development of an internal communication plan and clear communication procedures among the various structures of the National Assembly is also an important need in terms of improvement of procedures and processes. INFRASTRUCTURE AND INFORMATION MANAGEMENT Lack of adequate working spaces and facilities as well as access to information limit the ability of MPs and staff of the National Assembly to assume their respective functions. Thus, the very limited numbers of offices and meeting rooms, lack of access to equipment and new technologies, including computers, software and other communications tools, significantly hamper the smooth functioning of the institution. Furthermore, development of an internal system of information and data security management is one of the needs identified with regards to infrastructure, tools and work resources. 2.2 STRATEGIC DIAGNOSIS A strategic diagnosis marked the first important step towards the development of the four-year strategic plan of the National Assembly. It consisted of an analysis of the internal and external environment. The analysis of the internal environment was made from the literature review and consultations with various MPs and parliamentary staff of the National Assembly. To assess the capacity of the National Assembly to fulfill its constitutional mission (representation, legislation and oversight of government action), an analysis of its key functions was conducted on the basis of consultations with various stakeholders and review of previous studies including needs assessment conducted by the Parliamentary Centre with the support of PGF consultants and an organizational diagnosis conducted by Yons Associates. This diagnosis identified the strengths and weaknesses of the National Assembly with regard to its internal environment. Linked to its external environment, the analytical diagnosis highlighted opportunities to seize and threats that should be addressed. The various strengths, weaknesses, opportunities and threats (SWOT) of the National Assembly as identified within the framework of the analysis of internal and external environment were the subject of a priority setting exercise by participants to the strategic retreat. During this prioritization exercise, six key issues were identified, namely: human resources management; financial resources management; relationship with populations; relations between parliamentarians and civil society; visibility of activities of the National Assembly; and institutional and infrastructural strengthening. The tables below present the Strengths, Weaknesses, Opportunities and Threats (SWOT) from which the orientations of the strategic plan were selected. 5 Page

9 Tables of Strengths, Weaknesses, Opportunities and Threats (SWOT) STRENGTHS Standing Orders of the National Assembly are more innovative Existence of a law establishing a Parliamentary Public Service Consensus in the establishment of the organs of the National Assembly Will of the National Assembly to be more open and closer to the people Support mechanism for MPs has been in place for nearly 23 years and the main functions are established The current configuration of the National Assembly is not characterized by an overwhelming majority as was the case with previous legislatures Financial autonomy of the National Assembly The National Assembly has MPs who have parliamentary experience Existence of tools to oversee government action The National Assembly is member of several parliamentary associations and developed cooperative relations with other parliaments in order to draw on best practices Members of Parliament increasingly take people's needs into account in their actions and are more vigilant with regards to overseeing the work of the Executive WEAKNESSES Loss of the main infrastructure hosting services of the National Assembly Lack of internal and external communication plan (to promote the image of the institution, its legitimacy, the role of MPs, parliamentary committees and groups, building bridges with the population, facilitating internal collaboration and vulgarization of laws in national languages) Poor command of the use of information and communications technology Destruction of the archival collections of the National Assembly during the uprising Weakness in monitoring mechanism of compliance with laws and recommendations from of parliamentary enquiry committees Deadlines for review of legislation are relatively short and do not give enough time to properly examine bills Internal audit functions and financial control remain more or less absent on the entire expenditure chain of the institution Lack of institutional responsibility regarding financial control Laws passed by the National Assembly are not sufficiently disseminated and explained to the people Expertise in support of Members of Parliament in the drafting, discussion and adoption of laws process is insufficient Effective and efficient management tools are lacking (procedure manuals, wealth management and logistics system, master plan, archiving, digitization of data, job descriptions, performance evaluation system, career planning, training plan, human resources mobility plan, internal mobility plan, human resource management manual, strategy and staff motivation plan) Government action oversight tools are not very effective 6 Page

10 OPPORTUNITIES Enthusiasm of technical and financial partners (PFTs) to support the activities of the Seventh Parliament Existence of political will at the highest level with the adoption of the National Economic and Social Development Plan (PNDES) Existence of regional parliaments 1 and those of other countries (share experiences) Burkina Faso also has many former Members of Parliament who could help train new members Dynamism of civil society organizations provides an opportunity for the National Assembly to be accompanied and to be closer to the people Mass media, a fairly dynamic sector with several media houses The National Assembly is made up mostly of members who are in their first term and are open to new working methods Positive social and political climate: citizens' will to support and involvement in the public institutions' improvement process THREATS Possible dissolution of the National Assembly People have great expectations which could increase social demands Public policy generally drawn from foreign practices may be out of step with people's expectations Education and poverty levels of the population Volatility of national and regional security including terrorism Potential failure of state authority Increased politicization of the administration Slow process of national reconciliation could pose a threat to sustainable peace Systematic tendency of some members to align with guidelines of political parties and membership in parties while voting laws 2.3 SUMMARY OF PARTICIPANTS' CONTRIBUTIONS TO THE STRATEGIC RETREAT RELATIONS BETWEEN THE NATIONAL ASSEMBLY AND THE CITIZENS The participants all agreed that the relations between the National Assembly and the people on the one hand, and civil society on the other hand, including traditional leaders, heads of religious denominations and representatives of the private sector, undoubtedly affect the people's perceptions of the effectiveness of the National Assembly. One of the conclusions of the analysis of the external environment, which stated that some segments of the population do not know the role of MPs, Parliamentary committees or parliamentary groups. This was also confirmed by the participants at the strategic retreat. In addition, some people are also not aware of the principle of separation of powers and do not necessarily distinguish between the executive and legislative powers. The education level of the population is very low in Burkina Faso, therefore an important awareness raising needs to be done. In addition, some segments of the population do not know that MPs are required to ensure legislative duties, oversight of government action as well as representation. The MP is generally perceived as a local development officer and is therefore regularly asked to overcome shortcomings arising from lack of a functioning social security system. It therefore proves vital that MPs find innovative mechanisms to account for their activities, and thus clarify their roles vis-à-vis the citizens. 1 Parliaments of ECOWAS, UEMOA 7 Page

11 While recognizing the contribution that civil society organizations are expected to bring in consolidating the role of the National Assembly and the consolidation of democracy in Burkina Faso, discussions indicated that there is mistrust between MPs and civil society organizations. The challenge is to find an effective way to involve civil society organizations in parliamentary activities as some participants felt that some civil society organizations, especially at the national level, seem to be tied to particular political parties. The importance of setting up a plan for external communication for the National Assembly focused on the relations between parliamentarians and citizens, as well as with civil society organizations, was adopted by participants as the one of the priority needs of the National Assembly. The objectives of the communication plan should include to enable ownership, improve participation, and contribute to improved transparency and building the public confidence in the National Assembly. VISIBILITY OF THE NATIONAL ASSEMBLY Participants in the strategic planning retreat all agreed that the National Assembly suffers from a lack of visibility especially among the citizens as well as national and international partners. The lack of an external communication strategy that serves to help improve the image and legitimacy of the National Assembly, in addition to help facilitate the rapprochement between the elected representatives, the citizens and other partners. Participants agreed on the need for MPs to find innovative mechanisms to improve the visibility of the activities of the National Assembly vis-à-vis the citizens and its partners. INSTITUTIONAL AND INFRASTRUCTURAL STRENGTHENING Participants agreed that Burkina Faso needs a strong, stable National Assembly to consolidate democracy in order to better meet the aspirations of the people. Concerns about institutional strengthening of the National Assembly are wide-ranging. Human resource management should serve to strengthen the technical capacity and knowledge of MPs and parliamentary staff. This also relates to the capacity in the respective knowledge spheres of the respective parliamentary committees. There are specific needs to bridge the capacity gap linked to the budget debate, oversight of the implementation of the State budget and issues relating to gender. In addition, there is a lack of expertise available to MPs and parliamentary committees to support the development and presentation of legislative proposals and initiatives, as well as to review, analyze and make amendments to the proposed laws by the Government. Capacity building of Members of Parliament and staff of the parliamentary administration in communication techniques and in parliamentary and protocol practices was also identified as a need to address. Other areas have also been identified as part of institutional strengthening. This applies to documentation and archives management, material resources management for which different tools and procedures are lacking. In terms of infrastructure, the lack of a hemicycle and a building that can accommodate the services of the National Assembly was retained as main issue, resulting in the lack of adequate working spaces and appropriate equipment for MPs and staff of the various structures of the National Assembly, thus limiting the ability of the National Assembly to fully perform its various functions. Thus, the very limited numbers of offices and meeting rooms, lack of access to equipment and new technologies, including computers, software and other communications tools, significantly hamper the effective functioning of the institution. Furthermore, development of an internal information management system and data security are part of the needs in infrastructure, tools and work resources identified. 8 Page

12 HUMAN RESOURCE MANAGEMENT One of the main focuses during the discussion on human resources management was about the human resources capacity building plan. The strategic diagnosis identified that the seventh Parliament already has such a plan intended precisely to build the capacity of parliamentary staff. According to discussions at the strategic planning retreat, the operationalization of the human resources training plan, however, is not effective, thereby making of human resources management one of the key issues hindering the effectiveness of the National Assembly. FINANCIAL RESOURCES MANAGEMENT There is a tension between the principle of financial autonomy of the National Assembly, as laid down in Burkina Faso's Constitution and confirmed in the Rules of Procedure of the National Assembly, and the transparency requirements that any institution in a democracy must comply with. In terms of financial resources management, the opinions of the participants in the strategic planning retreat of the National Assembly were divided on the need for an external control of the management of the financial resources of the National Assembly. For some participants, no institution should forgo the external control principle under the rule of law. To them, the introduction of external control in the management of financial resources of the National Assembly (by the Court of Auditors or another independent auditor) is a way for the National Assembly to become a more transparent institution and to continue to earn the trust of society. To other participants, the internal control mechanisms currently provided by the internal financial audit directorate is reliable and any external control mechanism could jeopardize the principle of financial autonomy of the National Assembly. All, however, recognize the need to revitalize the existing internal audit function of the National Assembly. 9 Page

13 2.4 STRATEGIC FOUNDATION MISSION The main functions of the National Assembly of Burkina Faso are to : exercise its legislative power by passing laws that govern political, economic, social and cultural organization of the country; ensure oversight of the executive power; represent the people; and oversee the use of public funds. VISION The vision of the National Assembly is as follows: "In 2020, the National Assembly of Burkina Faso is a strong, modern, innovative and accessible institution effectively serving the people." In compliance with the Constitution, the National Assembly aspires to be an institution that actively participates in the consolidation of the rule of law by being an institution bearing aspirations of the population and ensuring better communication between elected representatives and the population. VALUES The National Assembly is committed to promoting the values of integrity, accountability, responsibility, transparency and solidarity within the institution and in the performance of its duties and functions. These values help guide the daily actions and behavior of MPs and parliamentary staff. Integrity Members and staff of the parliamentary administration shall demonstrate exemplary behavior and rigorously observe the rules of morality, duties and the institution's regulations. Accountability The National Assembly is an institution which regularly reports on its activities and management to the people. Responsibility MPs and parliamentary staff shall be accountable for their actions in all circumstances. Transparency The National Assembly is accessible to the population, systematically shares its work with relevant audiences in a timely manner and inform the people about the laws and resolutions with the people. Solidarity The National Assembly is characterized by dynamic team work, cooperation, idea sharing and mutual support process which enable a good working environment which serves to produce better results. 2.5 STRATEGIC DIRECTIONS AND RESULTS In order to achieve its mission and vision, the National Assembly set out the below strategic directions, which were identified through the analysis of strengths, weaknesses, opportunities and threats, and which correspond to two categories of challenges that the Seventh Parliament is faced with, more precisely the challenges linked to institutional efficiency and to the exercise of the key functions of the National Assembly (legislation, oversight and representation). 10 Page

14 The four main areas of intervention shown below take into account the particular context in which the National Assembly of Burkina Faso is expected to achieve its mission: The first and third strategic directions (Enhancement of the legislative function; and Oversight of Government action) aim at concrete results for the people and respond to the challenges relating to effectively assuming the three parliamentary functions. The second strategic direction (Representation and outreach) aims at strengthening the function of representation to the people and partners, and Finally, the fourth strategic direction (Strengthening organizational capacity) consists in enabling the National Assembly to assume effectively, efficiently and transparently the missions it is entrusted with. Vision In 2020, the National Assembly of Burkina Faso is a strong institution, modern, innovative, accessible and serving the people Mission Exercise legislative power Ensure oversight of the executive power Represent the people Oversight of the use of public funds Values Integrity Accountability Responsibility Solidarity - Transparency Strategic Direction 1 Consolidation of the legislative function Strategic Directions Strategic Direction 2 Representation and Outreach Strategic Direction 4 Strengthening Organizational Capacity Strategic Direction 3 Oversight of Government action The next sections describe each of the identified strategic areas, through description of the reasons behind their choice as well as intermediate and strategic outcomes. STRATEGIC DIRECTION 1: CONSOLIDATION OF THE LEGISLATIVE FUNCTION The strengthening and the consolidation of the legislative function arises from various issues identified in relation to this function. Those include: the lack of expert support to MPs in the process of adopting laws; the lack of a specific research unit; the existence of a knowledge deficit in legislative research techniques; the lack of tools and logistical support that would allow Members of Parliament to propose their own legislative initiatives or make amendments to Government initiatives; the lack of procedural guidelines clarifying the different support processes of law-making process; and the absence of procedures harmonizing the functioning of parliamentary committees; the obsolescence of organic laws; and the lack of inventory of existing texts and laws to be updated. These gaps are barriers to informed decision making and adoption of quality laws. The development of a research function could also be supported by improving the interaction between MPs and citizens in order to make the process of drafting and analyzing laws more efficient. Civil society organizations, including traditional leaders, leaders of religious groups and private sector representatives, often act as intermediaries between the citizens and the deputies. They could increasingly be called upon to contribute to the effectiveness of the legislative function of the National Assembly. 11 Page

15 Strategic outcome R.1. Laws are consistent with the expectations of the people Intermediate Results R.1.1. The development of research services facilitating decision-making for the MPs is effective R.1.2. The law-making and analysis process is reviewed R.1.3. Interaction between MPs and the citizens the legislative drafting and review process is enhanced. STRATEGIC DIRECTION 2: REPRESENTATION AND OUTREACH The lack of an internal and external communication strategy combined with a lack of clear communication practices between the different structures of the National Assembly, in addition to the lack of a formal strategy for parliamentary cooperation are some of the key challenges facing the seventh legislature. The lack of an external communication strategy poses a challenge to improve of the image and the legitimacy of the National Assembly as well as for rapprochement between MPs and the citizens. It therefore becomes imperative that the Assembly makes progress in the development of a new image, which also corresponds to the new ambitions articulated in the strategic plan. Among the main challenges relating to the function of representation of MPs are the lack of tools, mechanisms and logistical means. In addition, the capacity of MPs to report on their actions and to dialogue with the citizens to hear their concerns are also often a challenge. With regards to the relations of elected representatives with the citizens, the needs assessment identified that MPs would like to have access to innovative methods to enable people to directly express their views on the work and performance of the National Assembly. The preferred mechanisms include the National Assembly website, public hearings, and surveys by or SMS. These consultations are a way for MPs to be closer to the citizens. It is therefore necessary to identify and retain the most efficient communication mechanisms so that MPs can fully assume their role of representation. Finally, with respect to outreach of the National Assembly, one of the main challenges identified is the lack of a formal strategy for parliamentary cooperation. Parliamentary cooperation is intended to develop mechanisms for exchanges of information and improve working relationships between the National Assembly of Burkina Faso and other Parliaments around the world, on the one hand, and with Community Parliaments, Regional Parliaments and Inter-Parliamentary Organizations, on the other hand. The ability to act transparently and efficiently is vital to assure a return to a sustainable democratic constitutional order in Burkina Faso. As new legislature, Burkina Faso's National Assembly would therefore benefit from the parliamentary experience of other countries, community parliaments and inter-parliamentary organizations. The National Assembly is member of several parliamentary associations and has developed bilateral cooperation relations with other parliaments. A formal strategy to boost parliamentary cooperation is essential to ensure effective outreach of the National Assembly at the international level. Partners resources from bilateral and inter-parliamentary cooperation that support strengthening of good governance in Burkina Faso could be mobilized for capacity building of the National Assembly. 12 Page

16 Strategic outcome Intermediate Results R.2. The National Assembly has a strong reputation among the citizens and its partners R.2.1. The reputation of the National Assembly among the people is strengthened R.2.2. Dialogue frameworks between the elected representatives and the citizens are functional R.2.3. The National Assembly is active on the international parliamentary scene STRATEGIC DIRECTION 3: OVERSIGHT OF GOVERNMENTAL ACTION The oversight of the executive power is one of the fundamental pillars of a genuine democracy and rule of law. In Burkina Faso, the National Assembly usually assumes this function. Mechanisms for this oversight function are: questions to governments, parliamentary inquiries and fact-finding missions, referrals to the High Court of Justice, 2 budgetary oversight, petitions and vote of motions of censure. Despite the existence of these mechanisms, a number of challenges remain for effective oversight of government action. The challenges identified in relation to oversight of government action include, among others, the difficulty for members to access information to monitor the enforcement of laws, including the State budget, as well as the adherence of the recommendations of the General Committees and parliamentary commissions of inquiry. Weaknesses can also be noted in the use of mechanisms allowing for parliamentary oversight of government actions at the national, regional and local levels, in the relationship with the Court of Auditors, in addition to a lack of knowledge of the procedures in place that enable MPs to communicate with the executive power. Strategic outcome R.3. Public affairs management in Burkina Faso is improved through effective parliamentary oversight of government action Intermediate Results R.3.1. The follow-up of the recommendations resulting from the oversight of the government action is reinforced R.3.2. The effective functioning of the High Court of Justice contributes to improving public affairs management R.3.3. Measures provided for the general committees and parliamentary commissions of inquiry are fully exercised 2 Pursuant to Title IX, Section 138 of the Constitution, Chapter XXVII of the NA Standing Orders 13 Page

17 STRATEGIC DIRECTION 4: STRENGTHENING ORGANIZATIONAL CAPACITY According to the survey administered to members of the seventh Parliament, almost 80% of respondents found that the lack of human, financial, informational and material resources, in addition to the poor condition of some tools, do not allow MPs to effectively fulfill their roles and responsibilities. The strengthening of the organizational capacity of the National Assembly relate to several areas. The challenges identified by the different parliamentary directorates and structures include the lack of formal management procedures, lack of working tools as well as technical equipment, the lack of external control mechanism for financial management of the National Assembly, and the inefficiency of the internal audit and control function. In terms of technical management and logistics, challenges include the lack of a procedures manual for various functions (namely procurement, finance and accounting) to promote transparency in management. The lack effective and efficient management tools, such as systems for management manuals, a system for parliamentary asset and logistics management, in combination with the lack of an information technology blueprint, digital archiving and document management systems and the slow progress of implementing an Intranet network are also problematic. The very poor Internet connection in the parliamentary building, the technological obsolescence, and the low level of IT security, in combination with a poor work environment (lack of office space and equipment) are also part of the challenges identified in relation to capacity building. Strategic outcome Intermediate Results R.4.1. Human resources of the National Assembly are determined, motivated and competent R.4. The National Assembly is modern, innovative and well-functioning R.4.2. Modern and appropriate management tools are functional R.4.3. Financial management of the National Assembly is optimized R.4.4. Audit and internal controls are effective and guarantee performance R.4.5. The National Assembly is digitized R.4.6. The work environment is characterized by serenity and good collaboration R.4.7. The work environment and working conditions are modern, responsive and efficient 14 Page

18 2.6 KEY ACTIVITIES To achieve the intermediate and strategic outcomes identified in this strategic plan of the National Assembly, a set of structural activities were also identified to clarify those that contribute to change in terms of knowledge and abilities of Members of Parliament and Parliamentary staff over the next four years. These activities will be reviewed and specified in the operational plan which will be produced with the structures responsible for the implementation of the priorities that have been defined. Strategic Outcomes / Intermediate Results Structuring activities R.1. R.1.1. Laws are consistent with the expectations of the citizens The development of research services facilitating decisionmaking for MPs is effective R.1.2. The law-making and analysis process is reviewed R.1.3. Interaction between MPs and the citizens the legislative drafting and review process is enhanced. Create a unit dedicated to research in the governance structure of the National Assembly Build the research capacity of MPs and parliamentary staff Rehabilitate, strengthen and equip the Documentation and Archives Directorate Develop a manual of procedures for drafting and reviewing laws Develop and implement a MPs and parliamentary staff capacity building plan Review the Standing Orders of the National Assembly to streamline deadlines for the submission and consideration of laws Establish mechanisms for interaction with citizens upstream and downstream of the legislative development and review processes R.2. The National Assembly has a strong reputation among the citizens and its partners R.2.1. The reputation of the Develop and implement an internal and external communication National Assembly among the citizens is enhanced plan Implement a system for translation and interpreting in the official national languages for Members of Parliament Implement an electronic system for simultaneous transcription of debates R.2.2. Dialogue frameworks between the elected representatives and the citizens are functional Define and formalize frameworks for dialogue between elected representatives and the people R.2.3. The National Assembly is Develop a strategy to boost parliamentary diplomacy active on the international parliamentary scene R.3. Public affairs management in Burkina Faso has improved through effective parliamentary oversight of government action R.3.1. The follow-up of the recommendations resulting from the oversight of the government action is reinforced Establish a board of experts to help general committees to monitor implementation of the recommendations (experts in monitoring and evaluation) Create and operationalize an ad hoc committee responsible to monitor law enforcement Create a framework for a permanent dialogue between the National Assembly and the Court of Auditors 15 Page

19 R.3.2. Strategic Outcomes / Intermediate Results The effective functioning of the High Court of Justice contributes to improving public affairs management R.3.3. Measures provided for the general committees and parliamentary commissions of inquiry are fully exercised R.4. The National Assembly is modern, innovative and efficient R.4.1. R.4.2. R.4.3. R.4.4. R.4.5. R.4.6. R.4.7. Human resources of the National Assembly are determined, motivated and competent Modern and appropriate management tools are functional Financial management of the National Assembly is optimized Audit and internal controls are effective and guarantee performance The National Assembly is digitized The work environment is a serene and collaborative environment The work environment and working conditions are modern, responsive and efficient Structuring activities Log and process all impeachment dossiers Review the organic law on composition and functioning of the High Court of Justice and applicable procedures (for further operationalization) Ensure transparency in the follow-up of the measures provided for the general committees and parliamentary committees of inquiry Develop and implement a multi-year capacity building plan for Members and parliamentary administration staff Establish a performance appraisal system of parliamentary staff Develop an estimated schedule of resource needs for human resources management Develop a strategy and implement an action plan for improved motivation Develop and implement a gender policy for the National Assembly Create a specific decoration order of the National Assembly Draft and adopt a manual of administrative, financial and accounting procedures Draft and adopt a procurement manual Acquire an adequate integrated resources and computer equipment management software Create and operationalize the internal audit service Strengthen the Financial Control Department (personnel and equipment) Develop and implement the IT blueprint Establish a reliable digital archiving system Train staff in modern archiving techniques Create a framework for exchange between the parliamentary administration staff and Members of Parliament (staff retirement and end-of-year party) Conduct periodic satisfaction surveys of Members of Parliament vis-à-vis the parliamentary administration staff (vice versa) Build and equip the new National Assembly Establish a supplementary pension benefit Assess the insurance system during illness and suggest a better healthcare coverage Improve the technical facilities of the health center of the National Assembly Develop a procurement plan for logistical means 16 Page

20 2.7 RESULTS ARCHITECTURE OF THE NATIONAL ASSEMBLY STRATEGIC PLAN R.1. Vision In 2020, the National Assembly of Burkina Faso is a strong institution, modern, innovative, accessible and serving the people Mission Exercise legislative power Ensure oversight of the executive power Represent the people Oversight of the use of public funds Strategic Direction 1 Consolidation of the legislative function Laws are consistent with the expectations of the citizens R1.1 The development of research services for the MPs is effective R1.2 The law-making and analysis process is reviewed R1.3 Interaction between MPs and he citizens the legislative drafting and review process is enhanced R.2. Strategic Direction 2 Representation and Outreach The National Assembly has a strong reputation among the citizens and its partners R2.1 The reputation of the National Assembly among the people is strengthened R2.2 Dialogue frameworks between the elected representatives and the citizens are functional R2.3 The National Assembly is active on the international parliamentary scene Strategic Directions Strategic Outcomes R.3. Intermediate Outcomes Strategic Direction 3 Oversight of government action Values Integrity Accountability Responsibility Solidarity - Transparency Public affairs management in Burkina Faso is improved through effective parliamentary oversight of government action R3.1 The follow-up of the recommendations resulting from the oversight of the government action is reinforced R3.2 The effective functioning of the High Court of Justice contributes to improving public affairs management R3.3 Measures provided for the general committees and parliamentary commissions of inquiry are fully exercised R.4. Strategic Direction 4 Strengthening Organizational Capacity The National Assembly is modern, innovative and wellfunctioning R4.1 Human resources of the National Assembly are determined, motivated and competent R4.2 Modern and appropriate management tools are functional R4.3 Financial management of the National Assembly is optimized R4.4 Audit and internal controls are effective and guarantee performance R4.5 The National Assembly is digitized R4.6 The work environment is characterized by serenity and good collaboration R4.7 The work environment and working conditions are modern, responsive and efficient 17 Page

21 3 CONCLUSION A successful implementation of the strategic plan of the National Assembly of Burkina Faso will largely depend on its ability to develop an operational plan, broken down into concrete activities spread over the four years of the legislature, and on adoption of an implementation governance structure that is fostering teamwork and accountability for results. It will be equally important to implement a communications plan around the strategic plan so as to encourage Members of Parliament and the entire staff of the parliamentary administration to take ownership, as well as adopt a framework for performance measurement to monitor progress towards results. Development of a performance measurement framework will help to track progress and make necessary adjustments at the operational level. It is now important for all Members of Parliament and the leadership of the Assembly to successfully achieve these important ambitions of the people of Burkina Faso over the next four years. 18 Page

22 APPENDIX 1: SUMMARY OF KEY CHALLENGES OF THE NATIONAL ASSEMBLY 3 Table 1. Key challenges relating to institutional effectiveness of the National Assembly Strategic management of the parliamentary administration Organizational and human resource management Technical and logistical management The current legislature does not have a strategic plan to guide its actions, to act on priorities of the Assembly, and to create medium and long-term impacts that underpins democracy in Burkina Faso Poor governance and lack of administrative, financial and accounting procedures The lack of external control mechanism for the financial management of the National Assembly The internal audit and financial control function remains weak throughout the expenditure chain and on organizational effectiveness The lack of an internal communications strategy and clear communication practices between the different structures of Parliament The low representation of women parliamentarians in decision-making bodies despite their representation in terms of the total number of the Assembly and the decline in the representation of women in the National Assembly (10% in 2015 vs. 22% in 2012) The lack of a formal strategy for the development of parliamentary cooperation The lack of a clear and effective organizational structure as well as a human resource management framework and tools The lack of an institutional capacity building plan for MPs and parliamentary staff c The poor working conditions for MPs and parliamentary staff (benefits, wages, contracts, etc.) Frequent changes to the roles and responsibilities of some parliamentary staff and duplicity in reporting lines Recurrent absences of Members of Parliament from sessions and committee work, despite the provisions laid down in the standing orders of the National Assembly The lack of a procedures manual for procurement, finance and accounting in order to promote transparency in management The lack of effective and efficient management tools, such as management manuals, and asset and logistical management systems The lack of an IT blueprint, a digital archiving system and document management system and poor implementation of the Intranet The low Internet connectivity in the building of the National Assembly The obsolescence of hardware and software tools and low level of IT security The inadequacy of the work environment (office and work materials) The administrative burden in the process of publication of parliamentary information 3 Needs assessment report of the National Assembly of Burkina Faso, Parliamentary Centre (July 2016) 19 Page

23 Table 2. Key challenges relating to the exercise of the functions of the National Assembly Insufficient expertise to support MPs in the legislative review, discussion and approval processes The lack of a specific research service, poor knowledge of legislative research techniques by Members and staff and loss of historical and institutional memory The lack of tools to propose legislative changes and government initiatives Legislation The lack of methodological guides for the benefit of Legislative Services Managers to systematize the various support process in parliamentary life The lack of a procedures guide harmonizing the operation of committees Obsolescence of organic laws and lack of inventory of existing laws and legislation to be updated Techniques and recording and broadcasting equipment of parliamentary debates are inadequate Inadequate access to information allowing parliamentarians to monitor the application of laws (including the budget) and committee recommendations The weakness and lack of clarity in the use of mechanisms for Members to Oversight oversee government actions at national and regional levels The lack of knowledge of procedures in place allowing members to communicate with the executive The low participation of civil society organizations in the process of discussion and approval of laws The lack of an external communication strategy that can greatly contribute to improving the image of the institution and its legitimacy and to facilitate rapprochement of elected officials and populations Representation Lack of knowledge and logistical means to allow MPs to ensure accountability to citizens The insufficient involvement of civil society in parliamentary oversight of the actions of the executive The misunderstanding of the role of MPs, committees and parliamentary groups by citizens 20 Page

24 APPENDIX 2: POLICY PRIORITIES OF THE CURRENT LEGISLATURE 4 Political priorities of the current legislature (prioritization reflects answers provided by 72 respondents out of the total 127 Members of the National Assembly during a survey distributed during the needs assessment in June-July 2016). 4 Needs assessment report of the National Assembly of Burkina Faso, Parliamentary Centre (July 2016), survey conducted on 127 MPs out of which 72 responded. 21 Page

25 APPENDIX 3: CONTRIBUTIONS BY WORKING GROUPS OF STRATEGIC RETREAT The tables below represent the proposed visions, values and strategic directions as presented by the five working groups of the Strategic Plan Steering Group during the strategic retreat of the National Assembly, which took place August 2-4, 2016 in Tenkodogo, Burkina Faso. A total of 41 members of the Steering Group, representing MPs and representatives of the parliamentary administration, participated at the retreat. A. VISION GROUP 1 GROUP 2 GROUP 3 GROUP 4 GROUP 5 Institution open, credible and transparent. Strict control. Being very close to the people. Accountability towards third parties. Vote of relevant laws in relation with the aspirations of the people. The National Assembly, the interface between the people and government. The National Assembly, a dynamic and modern institution serving and to listening to the people. Listen to the people. Have a culture of accountability by providing MPs with a support fund. Monitor effectively the implementation of the recommendation s of parliamentary oversight. Institution recognized as a pillar of democratic influence. MP recognized as representative of the people. Institution in tune with the aspirations of the people. Modern institution supported by a quality administration. Available for public use. Legislate objectively. Effectively oversee government actions. Better communication between elected officials and the people. A dynamic institution that effectively contributes to the entrenchment of democracy in Burkina. Institution that participates in the consolidation of the rule of law by establishing real checks and balances Modern institution and bearing the concerns and hopes of the people. More dynamic (rule-making, debates). Strengthening of working tools. Capacity building of members and administrative staff. Implementation of an effective communication system. The National Assembly as a strong institution, modern, in line with The legitimate aspirations of populations. Openness, independence, accessible, meeting the aspirations of the people. Temple of democracy. Strong institution. Modernization of working tools, establishment of operational structures and communications agencies, strengthening parliamentary oversight, strengthening capacities of MPs and parliamentary assistants, vote popular and enforceable laws. Have a clear timeline for action. Transform the National Assembly of Burkina Faso into, a strong institution, independent, accessible and that meets the aspirations of the people. 22 Page

26 B. VALUES GROUP 1 GROUP 2 GROUP 3 GROUP 4 GROUP 5 Integrity Sharing Monitoring Respect Solidarity Cohesion Accountability Independence Responsibility Integrity Accountability Innovation Integration Efficiency Solidarity Integrity Accountability Transparency Solidarity Patriotism Professionalism Independence Accessibility Transparency Acceptability C. STRATEGIC DIRECTIONS GROUP 1 GROUP 2 GROUP 3 GROUP 4 GROUP 5 Modernization Organizational Capacity building of the National capacity of the National Assembly by building of the Assembly (MPs making it National and more efficient Assembly administrative Improved Improvement staff) visibility and of the Institutional and accessibility of mechanisms infrastructure the National for overseeing development Assembly government (financial Improve the actions management, quality of Strengthening HRM, equipment, human relations of logistics and resources elected officials facilities) (capacity and the people Improvement of building of Improvement the elected of relations communications representative between system of the s and elected officials National administrative and the people assembly (public staff) relations, media, press relations) Build capacities of MPs and parliamentary administration Develop and modernize the communication means of the National Assembly Enhance the credibility of parliamentary action (visibility and accountability) Ensure transparency in the management of resources (human, financial and logistical) Strengthening of infrastructures Modernization of parliament (Infrastructure, management tools, reconstitution of the archival collection,) Institutional capacity building (better control of government action, better laws passed, Improvement of the institution's relations with the populations (role of MPs, communication, visibility of the NA's activities) 23 Page

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