Floods, urban planning and multi-level governance in

Coastal West Africa

The case of Saint-Louis

T. Vedeld, M. Ndour, A. Coly, S. Hellevik

22/04/2023 Trond VedeldSenior development researcher

1

NFU Annual Conference, 26-27 November, 2012

Overview of presentation

• Basic approach and assumptions• Exposure & vulnerability• Structure of neighbourhood Councils (quartier)• Empirical findings on citizens’ actions in DRM• Structure of urban governance - role of key actors• Empirical findings on governance, planning, DRM/CCA• Implications for policy and theory

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Basic approach

1. To explain division of responsibility for DRM & CCA between state and municipality and how various policy instruments are applied

i) Institutional (coordination, decentralised organisation, accountability, pluralisation, participation)ii) Legal/regulativeiii) Financeiv) Informative/knowledge

2. Key attention to the role of municipality and two local case-Councils on i) flash floods & ii) coastal flooding/erosion

Multi-level analysis of urban governance and DRM/CCA

– Analyse interface between urban governance/planning system and flood risks and vulnerability (national, city, local)

– Multi-level and multi-organisational – interplay of state and non-state actors

– Useful with governance approach (= steering of public arenas/society)

– State centric approach

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Assumption & methods

• Assumption– Opportunities for improved DRM & CCA lie in integration at

lower levels (municipality and below)– Finds support in different theory strains

• Methods– Semi-structured interviews, observations of local practices by

local students, reviews of policies/laws, plans, literature

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Saint Louis, Senegal

• 200 000 people• 300 mm/year• Exremely low lying settlements • Flash floods – river floods• 80 000 people affected in 2010 floods

Saint Louis, Senegal

Located on four low-lying islands – former wetlands

Coastal & riverine city

Exposed, vulnerable citizens with some local response capacity

• Exposed informal settlements due to rapid urbanization (3% growth, 30% in informal areas)

• Vulnerability (lack of storm drains, sewerage, solid waste, green space, infrastructure)

• Poor and vulnerable citizens (assets, livelihoods)

• But organized, proactive and engaged civil society

The neighbourhood Council (Conseill de Quartier)

• Elected local Council with representation from the following (but not legalized);

– Youth Sport and Cultural Associations – Women/female youth group– Teacher-Parents group– Health and sanitation committee– Relgious groups– Economic interest groups – Neighborhood development associations

22/04/2023 Cluva Saint-Louis Slide 9

Findings: Citizens’ DRM actions

• Protect own houses and assets; aware of flood risks • Involved in local development planning• Design projects on climate risk reduction• Advocate for assistance from above• Organized young people and raised local awareness• Helped organize training of teachers on CCA• Mobilized for new road & storm drains

• But lacks legitimacy and finance

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Levels of governance in Saint-Louis

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Niveau communautaireNiveau décentralisé

Comité, commission

Niveau déconcentré

Niv

eau

mun

icip

alN

ivea

u qu

artie

rré

gion

al

Comité Régional de développement

Gouverneur

Services techniques

Préfet Maire

Conseil Municipal

Agence de développement communale

Services techn municip

Conseil de quartiers

Délégué Président Conseil

Association sportives et culturelles

Organisation communautaire de base

Source, COLY A., NDOUR M., GUEYE S., in press

Multi-level governance of flood risks

• Central and regional state agencies – coordinate at national and regional levels, finance, land use planning + river flood control, stormwater, disaster response

• Municipality - urban development planning (not land use), green structures, solid waste and post-disaster recovery

• Private sector - water supply and protection of water infrastructure, housing, construction

• NGOs - Red Cross• Citizens/local groups - protection of assets, early evacuation,

cleaning of drains, solid waste, ecosystem mngmt/destruction

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Multi-level actors in urban planning/governance and DRM/CCA

Institutional level

Actors/ institutions

DRM/flood response

CCA/long-term risk red

Development ”low-regrets”

International WB/AFD, UN Med Low Med

State Key services Med

Regional state Governor, planners, core services,

High Low High

Municipal Planners, services

Low Low Low

Ward/quartier Councillors High Low High

Civic/local gr. Diverse gr.s. High Low Med

Citizens Individuals High Low Med

NGOs Red Cross High Low Low

Private sector Developers Low Low High

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Findings on governance and planning• Municipality not ”in charge” – undermines autonomy

and accountability• Urban plans with limited integration of CCA/DRM

– No planning design principles

• Weak land control and enforcement• Weak involvement of non-state actors• Limited links between DRM and CCA• CCA more of a national concern than DRM

Slide 14l Trond Vedeld

Findings on governance & floods risk management• No real institutional home with municipality• Lack representation at higher levels• Weak regional government; strong regional

state services (Governor)• Overlaps and unclearity between

municipality/state• Weak lines of command (vertical/horizontal)• No EWS and weak emergency management

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Stronger integration of DRM/CCA in governance - requires

• Create institutional homes + financial support• Establish coordination & operational integration• Shift towards long-term DRM/CCA• Address inequality/informality and build local

political capacity and accountabilities

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Support of theory – findings support

• Urban DRM/CCA theory; flood risks spill across judicial, administrative and socio-ecological boundaries– Ostrom and Oakerson on polycentric governance– James Manor’s work on decentralisation– Richard Crook’s work on sivil service; «islands of effectiveness» – Judith Tendler’s work from Brazil; state services can build accountability

Slide 1722/04/2023 Trond Vedeld