Dept. of Government, Connecticut College
      <medor@conncoll.edu>

H-Net Review, published by <H-Africa@h-net.msu.edu> (August 2000)

Daniel C. Bach, ed., _Regionalisation in Africa: Integration and
Disintegration_, Oxford, James Currey, 1999. ISBN 0852558260 (paper)

Reviewed for H-Africa by Marion E. Doro, Department of Government,
Connecticut College, <medor@conncoll.edu>

This edited volume of nineteen essays is the product of a 1994 conference.
_Integration and Regionlisation_ was initially published in French in
1998, and this somewhat revised English edition appeared in 1999. The
basic theme of the essays is that for numerous reasons African states have
failed to establish their authority and legitimacy, resulting in failure
to achieve sovereignty and control over their territory.  The causes and
consequences for this are considered under four major headings: I.
Regionalism and Globalization in Sub-Saharan Africa; II. States and
Territories; III. Regional Organizations; and, IV. Networks.

Nearly forty years ago Dunduzu Chisiza noted the criteria for grouping
African states together as regional economic unions:

        "past economic association; similarity in the level of industrial
development; similarity in political ideas and in the level of political
advancement; personal friendships between leaders; past association with
metropolitan powers; cultural affinity; ethnic similarity; and linguistic
considerations."  (1)

It would seem that the more things change the more they remain the same,
except that with the passing of time the characteristics become more
specific. The topics under consideration here include not only particular
regional groupings, such as the Economic Community of West African States
(ECOWAS), the Union Douaniere des Etats d'Afrique Centrale (UDEAC), and
the Southern African Development Community (SADC), but also issues such as
civil society, ideological positions and differences, the democratization
process, boundary disputes and the Franc Zone.  While the realities of
implementing various forms of regionalism are infinitely more complicated
than Chisiza may have anticipated, his analytical position foreshadowed
the late 20th century patterns of behavior.

In the first section on regionalism and globalization, the editor argues,
in "Revisiting a Paradigm," that  "regionalisation in Africa is primarily
the expression of micro-strategies which seek to take advantage of the
resources of globalization" which in turn erode a state's "territorial and
governmental legitimacy" (p. 2). Taking into account the negative
consequences of colonial boundaries and federations, the end of the Cold
War, and limited socio-economic resources, he notes that in many cases
these factors result in failure to achieve national integration.  This, in
turn, weakens the possibility for regional integration except in
functional matters such as infrastructures and telecommunications.
However, similar factors contribute to cross-border transactions and
trans-state networks which result in parallel economies and illicit trade
and subsequent growth of influence by non-state actors and the weakening of
state institutions.

Using comparative evidence from other parts of the world, Alice Landau
examines the merits and demerits of multilateralism and regionalism in
international economic relations and their subsequent effects on
regionalism in Africa. She concludes that while regionalism could
marginalize African states it could also be used as a means to participate
more effectively in multilaterism that deals with developed, as well as
undeveloped, states. Walter Kennes analyzes patterns of regional economic
integration in Africa and recent efforts of the European Union (EU) to
promote aspects of those programs. His brief exploration of the strengths
and weaknesses of the main regional organizations, as well as the
approaches of donor states and organizations, prepares the reader for an
analysis of the EU's initiatives in Africa. Noting the limited success of
these efforts he concludes that improvements in management and
transparency -- especially at the national level -- are needed to promote
regional economic development.

The second section deals with states and territories and consists of four
analyses, which examine specific characteristics of African states and
three case studies of specific states. Dominique Darbon's essay "Crisis
of the State and Communalism" focuses on the question of  "communalist
ideology", its definitions and applications, and its relevance for African
states.  He concludes that there are two options: continuation of classic
regional integration or a re-examination and re-shaping of state
sovereignty "supported by the new communitarian ideology intent on
strengthening the territorial network." (p. 51). Christopher Clapham
offers a highly readable and cogent summary of the "Boundaries & States in
the New African Order". He deals with factors, which contribute to
maintaining African boundaries, e.g. the necessity to define both the
state and its legitimacy, as well of the variety and extent of challenges
to the boundaries. He offers examples of practices that have supported
and undermined those boundaries and how they have contributed to or
detracted from their legitimacy and influence. Unlike some of the other
contributors to this volume, he takes a positive view of the informal
trading systems which Africans have developed as a means of coping with
"ineffectual inter-state structures". (p.66)

In a brief commentary on "Paradoxes and Ambiguities of Democratisation," A.N.
Souley provides an excellent and precise resume of various interpretations
of democracy by Africans and the subsequent behavior of African leaders as
well as donors and western democracies. He notes: "Democratisation
within a financially exhausted state is an empty word for populations
daily confronted with enormous difficulties."(p.72) In such
circumstances, when the state has little or no compelling authority or
legitimacy, it is not surprising that the territorial framework is
susceptible to various forms of intrusion. Celestin Monga asks: "Is African
Civil Society Civilised?" and cites several manifestations of civil units,
e.g., civil economic society and political action groups, which exert
influence on the state through their interactions. Rather
than view these interactions as divisive influences, which threaten
national integration, he sees them as "evidence of the dynamism and
'civilised' character of societies." (p. 80)

The three case studies include Edouard Bustin's carefully crafted
"Collapse of 'Congo/Zaire' and its Regional Impact"; Rotimi Suberu's
"Integration and Disintegration in the Nigerian Federation" which explores
the extent of the government's centralizing tendencies; and Simon Bekker's
essay "Territoriality and Institutional Change in the New South
Africa" which identifies the kinds of institutional arrangements which are
emerging during its current political transition.

The third section offers six case studies of regional organisations, which
provide a rich source of comparative evidence about regional experiences
and the different issues which affect their behavior. Olatunde J. Ojo
evaluates "Integration in ECOWAS: Successes and Difficulties", and concludes
that implementation problems create major difficulties for the
organization. Looking at "Failing Institutions & Shattered Space: What
Regional Integration in Central Africa?," Marc-Louis Ropivia charges the
political elites with using regionalism as "little more than a playground
for the projection of power politics." (p. 127).  Roland Pourtier writes
about "The Renovation of UDEAC: Sense and Nonsense in Central African
Integration" and is somewhat skeptical about its future unless or until
communication, both physically via roads and virtually via
telecommunications, are improved. Michel Lelart analyses the historical
background and makes recommendations for future development in "The Franc
Zone and European Monetary Integration". In his essay on "The Rival
Strategies of SADC and PTA/COMESA in Southern Africa," Peter Takirambudde
analyzes their policies, rivalries, and achievements, and suggests that
recent changes designed to improve their performance are not likely to be
effective. Finally, Colin McCarthy evaluates "SACU and the Rand Zone" with
specific focus on SACU's relationship with the Common Monetary Area
(CMA) and the need to broaden its regional membership. In contrast to the
analytical studies of specific patterns of political behavior, the case
studies and hard facts about regional organizations create few grounds for
optimism.

The last section deals with networks or economic and personal linkages in
cross-border trade, a process reflecting significant aspects of Africa's
economic culture that has not attracted as much attention as it
deserves.  Bruno Stary's descriptive analysis of "Cross-Border Trade in
West Africa: The Ghana-Cote d'Ivoire Frontier" takes into account the
presence of ethnic groups at the borders, the agricultural and industrial
products and prices which are exchanged, and the principal customers who
benefit from the arrangement. The nature of the transactions, and the
variety of agents involved - tradesmen, carriers, customs officials, etc -
as well as the economic consequences create a set of advantages and
disadvantages, which are not easily assessed.  While the persistence and
effectiveness of the trade may seem to weaken the authority of the state
it nevertheless serves useful socio-economic purposes. Janet MacGaffey
and Remy Bazenguissa-Ganga give the reader a rare look at "Personal
Networks & Trans-Frontier Trade: Zairean and Congolese Migrants" which
traces the characteristics of these linkages and their importance for
long-distance trade between West and Central African countries as well as
between Africa and Europe.

Finally, Alain Labrousse assesses "The Production and Distribution of
Illicit Drugs" by exploring the economic and political causes of trading
illicit drugs, and the various areas where it emerged with special
reference to Nigerian criminal organizations. He also describes some of
the factors which create attractive environments for drug trade, e.g.,
"social gangsterism" and bankrolling rebels, and the negative consequences
such as drug-related violence.  Unlike the two previous illustrations of
cross-border trade, which at least provide for some measure of economic
advancement, the trade in illicit drugs has a devastating effect not just
on government stability but on the population at large.

A dominant theme throughout the essays is an element of ambivalent
Afro-pessimism, a constant and consistent repetition of the many and
varied socio-economic failures which African states experience and in some
cases attempt to overcome.  Judged by Eurocentric standards these failures
seem catastrophic.  One must ask if the various European states used as
examples of political and economic integration were any more united or
integrated or inner-directed at the earliest stages of their development
as national entities? Or, whether their borders were any more of less
porous than those of African states today?  Little reference is made to
the growth of units within civil societies, such as women's
non-governmental organizations, which reflect growing evidence that
national integration is taking shape and that such units are reaching out
and networking across the continent via ICTs, creating an impetus to forms
of socio-economic growth which can - hopefully ? - promote positive
change for future generations.  As with many such collections of
conference papers there is a great deal of overlapping evidence.
Probably more important, the text lacks introductory and concluding
sections, which would offer the reader a coherent sense of the book's
purpose and the significance of the evidence.  Readers don't mind being
told where they are going and where they have been.

The bibliography exceeds four hundred titles drawing primarily on several
decades of political science sources [French and English] as well as
mimeos, conference papers, weeklies, and government documents.  Five
tables that provide basic information such as lists of member states of
major regional organizations, and three pages of acronyms enhance the
book's usefulness.  The contributors represent six disciplines in the
social sciences, and include academics and directors of non-governmental
organizations from Europe, the United States and Africa.


1. D.K. Chisiza, "The Outlook for Contemporary Africa", _Journal of Modern
African Studies_, Vol. 1, No. 1, March 1963, p. 27.  Chisiza was
Parliamentary Secretary to the Nyasaland Ministry of Finance, and formerly
Secretary-General of the Malawi Congress Party; he died in an automobile
accident in 1962.


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