Neoliberalism and Structural adjustment programs in Cameroon :
Privatizations from agricultural to electricity sectors.
Soraya Fouda
Carleton University
Department of Political Science
April 12th ,2012.
Abstract
Decades of neo-liberal policies in Cameroon have negatively affected the economic and social
development goals set at the independence in 1960. The article is an attempt to explain how
Structural adjustment Programs’ privatization policies in the country have damaged major
sector of the economy such as agriculture or power energy; but also major social sectors. The
article will focus on privatizations of agriculture and electricity, with an analysis of the effects
those privatizations have on the developmental agenda.
Key words : Structural adjustment programs, economic development, social development,
privatization, corruption.
2
Under president Truman, the world started to see development as an escape to
underdeveloped world. If one country was underdeveloped, it was the duty of developed
countries to help them. The world become split in two; developed versus underdeveloped.
In 1980’s the neo-‐liberal approach of the market became the obvious solution to bring
those countries out of poverty; and like many others ‘underdeveloped’ nations, Cameroon
did not escape its applications. The Bretton Woods institutions’, the World Bank and IMF
implemented the Washington consensus with Structural adjustment Programs; neo-‐liberal
policy agenda of reforms poor countries should apply to growth their economy. From its
implementation in 1987 in Cameroon until today, neo-liberal policies of the Washington
consensus have been a failure. What are the consequences of such failure to the economy
and the population? This is the question this article will attempt to answer.
Two of the mains sectors that undertook reforms are going to be discussed to understand
the dynamic of the second Structural adjustment Program implementation in Cameroon
and its developmental policy. The first one was the liberalization of the economy and the
main economic sectors that are agriculture and oil; but the focus on this paper will solely
based on agriculture. The second one is poverty alleviation and growth promotion by
strengthening the supply and quality of essentials social services such as education, health
etc. through the liberalization of those sectors, Finally, the privatization and reforms of the
energy sector with a specific focus on electricity ( IMF report 7 ) .
3
The developmental state has two components; one is ideological and the other one is
structural. In terms of ideology, the developmental state’s primary mission is to ensure
economic development, usually through high rates of accumulation and industrialization
(Mkandawire 2). The state has the ideology that it has to economically develop the nation.
The Cameroonian state did it after the independence; the new government had the ideology
to develop the state and create high rates of accumulation. At the structural level, state
structure is at the chore of this aspect of developmental state. It means that the state
emphasizes the capacity to implement those economic policies effectively. The capacity of
the state to implement those policies depends on various institutional, technical,
administrative and political factors (Mkandawire 2). The state should be a strong state in
order to succeed into implementing those policies.
It is important to understand in the developmental state theory the factors that have
accounted for success can also be the same reason for economic failure. This is what
happened in Cameroon, where its performances until the mid-‐ 1980’s would have qualified
it as a developmental state until the economic crisis of 1985-‐86 when it became an anti-‐
developmental state. Another important point to understand with the developmental state
is the idea of nationalism. The inducted nation has for a goal to “catch up” with more
advanced economies (Mkandawire 3 ); that was the idea behind the whole nationalist
movement in Africa after Independence. In the case of Cameroon, nationalism also brought
nationalization of all major economic sectors.
To follow the idea of developmental state both ideologically and structurally, after the
independence, the Cameroonian state performed very well economically from 1961 to
1985, with agriculture supporting the economy. The country’s economy was well managed
and had one of the highest per capita incomes in sub-‐Saharan Africa (Amin 6). The main
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objective of the development policies of the state was a 5 years plan to integrate politically
and economically all regions and to improve the standard of living of the population
(Amin 12). Policy makers were focused on doubling the per capita incomes and reduce the
social and economic inequalities. During that time, there was an increase in the government
revenue as well as in salaries. The government adopted a welfare-‐state/interventionist
approach to its policies and extensively intervenes in the economy; the prices of goods and
services were regulated, as well as public industries and agricultural inputs were
subsidized (Amin 13). The creations of many public enterprises underline the dynamic of
protectionism in the country. Nevertheless, in the mid 1980’s, after more than two decades
of rapid economic growth, the economy collapsed. This was partly because a fall in world
prices for its main export commodities and poor domestic management ( Amin 7) .
One of the main exported commodities was agriculture with cocoa and coffee as well as
bananas and rubber. As a solution to the crisis, the government decided to become more
involved in the economy. The state concentrated on expanding more the public sector and
the government became more and more interventionist in transportations, general services
such as electricity and water were nationalized ( Amin 7 ).The state gained more control of
industries such as their dominant economical sector agriculture . Agriculture accounted for
almost 34% of the GDP and employed 80% of the labor forces and providing 85%of export
from 1961 to 1985 (Amin 5). Considering the data at that time and the expansion of the
agricultural sector and discovery of oil, the government encouraging private sector capital
investment to invest, the country had all the pre-‐conditions for an economic take off
(Rostow 6); Indeed, the “prices drop” in the main agricultural goods by almost 60%
(Awung & Atanga 2) Cameroon was exporting was a major issue for the economy.
5
After 1985, the economy became stagnant; Food production grew while the export crop
production declined. With its main economic sector affected and declining, the state began
to be in a very sensitive economical situation; hence by 1986, the government started
internal adjustment, including measures in the areas of prices policies and institutions.
They launched an austerity program in 1987; the World Bank and the Cameroonian state
started to considered Structural adjustment programs as a way to recreate growth and re-‐
launched the economy through neo-‐liberalism.
Neo-‐liberalism is rooted in the notion that there is only one body of economic theory
with universally applicable concept. Neoliberals believe private producers consumers are
pre-‐supposed to be utility and profit “maximizers” who respond rationally to correct
market signal. They assert market will produce rationale behaviors that efficiently reflect
market signals based on the principles of scarcity and choices. Neo-‐ liberals find important
to consider the historical background but their theorical construct also examine
government and states, as they exist in practice with all their various imperfections
highlighted (Brohman 7) .Neo –liberalism theory agenda is based on principles of free
markets, economic liberalization and open market; it is one of the reason they are looking
closely to states and governments’ flaws.
The Neo-‐ liberalist development agenda started in the early 1980’s with the Bretton Woods
agreement alongside the Reagan-‐ Thatcher era. Bretton Woods’s institutions and the
Washington consensus with powerful organizations such as the World Bank and the IMF
decided on an agenda to promote liberalism in third world countries. IMF has different
programs they implemented in developing countries to stimulate growth (Hutchful 10); but
it was really through Structural adjustment Programs that the IMF and the World Bank
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introduced neo-‐liberalism to Africa. Underdeveloped nations, in the face of the economic
crisis of the mid 1980’s started to turn to the IMF and World Bank to lend money to create
again a cycle of growth in their economy. The argument of the Washington consensus and
the economic powers behind Bretton Woods’s institutions was that a “laissez-‐faire”
capitalism was necessary for a broader political and social freedom (Broham 17). Hence,
IMF and the World Bank started economic programs in Africa; one of the IMF main
objectives was to incorporated trade policies, public sector reforms, deregulation, external
liberalization, emergence of monetary government, and rollback of the state to Africans
countries (Hutchful 7). But, those lenders did not allocate the money without conditionality;
starting 1981, borrowers countries were required to implement adjustment policies with
certain conditions.
With all the neo-‐liberals reforms in the continent and the economic crisis, the
Cameroonian state decided with the IMF in 1989 to implement Structural Adjustments
Programs (SAPs) with 150 millions dollars loan from the IMF (Awung & Atanga 17).
Conditions to the SAPs were reforms involving the preparation and implementation of
poverty reduction, the maintenance of a stable macro-‐economic environment, the set up of
mechanisms to ensure efficient and transparent use of interim debt reliefs and
strengthening public expenditures and management (Awung & Atanga 19) .The issue of
poverty alleviation started to become of the World Bank’s preoccupation in the 1990’s;
hence it became one of the conditions of the bank to lend money. The bank strategy in
fighting poverty relied heavily on redistribution of public expenditures, rather than new
founding (Hutchful 16).
In 2000’s, Cameroon reached the position of Highly indebted poor country initiative and
benefits from interim debt reliefs from its creditors previously accumulated through loans
7
from the IMF and the World Bank in the first phase of SAPs implemented from 1989-‐1999.
Following the release of its debt credit, the IMF implemented a second structural
adjustment program plan (SAPs II). The main goals to their medium-‐term adjustment
program was to strengthen macroeconomics stability, to bring economy into a sustainable
development path and to bring improve social conditions of population and reduce poverty
(IMF report 3). Another mandatory condition in the second SAPs was the total privatization
of para-‐statals organizations; that means the state would have to lose more control of some
important sector of the economy (e.g. agriculture) (Awung & Atanga 19).
With the guidance of IMF and World Bank, Cameroon engaged itself in a neo-‐liberalist
development policy for 20 years, with recommendation to privatize diverse economic and
social sectors such as education but also privatize energy such as water and electricity
companies SNEC ( societe nationale des eaux du Cameroun) and SONEL ( Societe nationale
d’electricité). (African Development Bank Report on Cameroon 9).
Public-‐enterprise reform and private-‐sector development have been designed in the
offices of the Bretton Woods institutions. Like other structural adjustment measures, they
have been accepted by virtually all bilateral donors and presented to African governments
as the only way forward to development and economic growth (Konings 6) . Privatizations
take their roots in the theorical stream of the liberalism founded by Adam smith. The
central idea is that even imperfect, the market is preferable to the drifts of the public action
that hinders the game of individual interests.
Privatizations in Cameroon began in the late 1980’s under the pressure of International
multilaterals institutions. It has continued since at a slow and erratic pace. Since the first
SAPs in 1989, Cameroon has undertaken a vast program of privatizations and restructuring
8
of state owned corporations and public-‐private enterprises. In 1995, the government to
made a decision to accelerate the privatization program and to extend its scope, by
including main public utilities such as water, electricity, and telecommunication etc.
(Ndzomo and Nzongang 2).
Recognizing that its power sector needed to be modernize, the state power company
SONEL, the sole generator and distributor of power needed to be privatized as the World
Bank advised the government to do. In the late 1990’s, only 452 000 connections existed,
leaving most of the people in the country without electricity (International Finance
Corporation 2); hence as a response, the government adopted a power sector reforms with
the 1998 electricity sector Law, that set ground work for privatization of SONEL
(International Finance Corporation 2). It is important to underline that even though there
was a demand for more electricity from people, the privatization of the company itself was
more to comply to the commitments imposed by the World Bank with SAPs (Pineau 4). The
objectives of the privatization of the electricity sector were standard goal of liberalization/
privatization programs of the Bretton Woods’ institutions; indeed, the only assessment of
SONEL made by the World Bank were very general and assert issues such as day to day
management, lack of transparency, lack competition and weak ministerial oversight and
high costs (Pineau 4) . Between 1998 and 2000, the government set new electricity policy
framework to develop private involvement and competition under the supervision of
ARSEL, the supervisatory regulation agency. One law and three decrees set the legal
framework of electricity sector in Cameroon (Ministry of Economy and Finance of
Cameroon para 3).
Five large international companies initially expressed interest in SONEL;The State owned
EDF from France, Hydro-‐ Quebec from Canada, the American corporation AES , South
9
African ESCOM and Spanish state owned ESPENOSA (Pineau 6). In order to increase
attractiveness of the deal to investors, the government guaranteed 50 % of the purchase
price against risks and other potential issues (IFC 2). The transaction structure allowed
56% of SONEL capital to be acquired by the successful bidder to a transparent process. The
successful bidder would be granted 20 years concession for the distribution, consumption
and generation of electricity throughout the country; it would also have exclusive right to
distribute and sell electricity to low volt consumers for 20 years and to medium and high
volt consumers for the first 5 years. The reciprocal debt between SONEL and the
government would be eliminated and some of SONEL outstanding debts would be
transferred to the government (IFC 2). In November 2000, AES was the only bidder and
acquire SONEL for 61 millions (Pineau 12). No further information is available on the
transaction and contract signed between the government and AES, which is highly
problematic as there is a clear lack of transparency (Pineau 7).
AES also has the goal to build more dams to allow a greater generation of power throughout
the country, especially after the drought of 2001 to 2003. Hence, they started a project with
the co-‐financing of the World Bank in the region of Limbé. The dam was supposed to be
built in 10 months for the beginning of the rainy seasons, but major delays occurred, as with
all of their other projects (Pineau 14).To summarize the objectives of the privatization of
SONEL by the government and the World Bank were to use the private sector investment
and benefit from its expertise, to improve service quality, to supply electricity at a
competitive price, to involve the national private sector to SONEL capital, to fight the lack of
transparency and competitiveness and the state interference to the day to day
management.
10
The power sector was not the only one to be liberalized and privatized; the agricultural
sector restructuration was also one of the main aims of the World Bank with SAPs.
Agriculture is part of a livelihood strategy to safeguard family food security, health and
education. Agriculture is definitively the main economic sector in the country, but for rural
dwellers also, it is the backbone of their livelihood. Men engage in cash-‐crop production
while women take concern with food crop production (Fonchingong 3). The SAPs measures
in agriculture was aimed to encourage the production of cash crop production for exports
and to generate more for foreign exchange and render the country better able to service its
debts payment (Fonchingong 3). Crops growing in the country include banana, coffee,
cacao, plantains etc. In order to achieve these goals, the government and the World Bank
decided to further liberalize the agricultural sector. The strategy was to improve the sector
competitiveness and enhance productivity with a view to strengthening growth, increase
farmers incomes and hence subsequently reduce poverty (IMF 5).
The government also intended to improve basics infrastructures to the rural area as well as
the quality of social services deliver to them. In order to improve the competitiveness and
production of the sector so it could reach growth, the program provided for the publication
of an agricultural policy statement (ADB report on Cameroon 21). The new agricultural
policy of the government was based on modernization of the sector institutional
framework, the improvement of incentives framework and the reinforcement of actions
aimed at improving the competitiveness of export and quality of goods, especially in the
cacao and coffee sub-‐sectors (IMF 7). To achieve these goals, the state decided to continue
the decentralization of public administration and develop a strong partnership between the
government and local communities. The program started in 1989/1990 and continues in
1999/2000 until now (IMF 5).
11
Structural adjustment programs in agriculture include both privatization and liberalization;
the food crop development authority and the Market food board which had control of cacao
and coffee, were both liquidated along with others developmental agencies in the process of
liberalizing the agricultural sector (Bamou and Masters 7). The goals were also to grow new
crops and implement a variety of new agricultural techniques. In order to achieve that, the
public agricultural education system was virtually abandoned because of its degrading
facilities and weak staffs , to private educational institutions that were better equipped with
human and financial resources (Bamou and Masters 9). Liberalization and privatization of
the sector also meant liquidation of the public agricultural bank; the aim was to allow the
emergence of private financial intermediaries institutions.
The agricultural reforms engaged in the early 2000 have and still on-‐going require a total
withdrawal of the government in the activities.
Tackling poverty was one of the prominent goals of the World Bank and they expected to
do so through privatization and agricultural reforms as aforementioned.
Twelve years after the implementation of SAPs II, the assessment of the policies imposed by
the World Bank on Cameroonian economy are mixed; if some positive outcomes did
occurred, the majority of the goals aimed at the three objectives aforementioned failed to
produce any kind of economic and social growth.
It is understood that privatization is effective if the first private contractor assure all the
functions and activities of the enterprise not explicitly defined by the state and secondly, if
the first contractor take in charge financial costs linked to the modernization and
development of the enterprise but also, if the case arise the recorded financial losses.
(Ndzomo and Ndzongang 8). Based on those two principles, privatization of AES-‐SONEL
12
was a success, but in term of the developmental agenda behind it, the consequences of this
neo-‐liberal policy were disastrous. Indeed, since the privatization of SONEL, electricity
issues in the country have been worse than what in was 13 years ago. Power cuts persist,
and there is a long way to go before people can stay with lights on all the time. In 2003,
following three years of drought, there was no water left in the dams, causing the turbines
to stop, leading to black outs in most of the country lasting for several days. Since 2001,
those events are recurring and on-‐going; people find themselves without water and
electricity for days while the bills keep on growing. Electricity bills were up by 10% in the
five years preceding the privatization of SONEL (IRIN para 3).
In order to provide long-‐term power supplies, AES is trying to raise 100 millions dollars to
build more dams as well as gases power thermals stations (IRIN para 10). Even though the
numbers of connections have increase by nearly 50% (IFC 2), most of the goals achieve in
2001 are still not achieve, 12 years later. First, AES-‐SONEL has failed to supply electricity at
a competitive prices, no competition take place and prices increases at a schedule basis
(Pineau 17). Households’ consumers were hoping at the time to have better electricity
services at affordable prices. In terms of the consumers’ goods and services the World Bank
wanted to install by privatizing electricity, it is an enormous failure. Secondly, the
government realizes that AES will not resolve the long-‐term issues of electricity in the
country as they failed in 12 years to build more than one dam (Pineau 15). Finally, only two
objectives of the government was partly successful; it was to use private investment and
benefit from its expertise and its removal from day to day management as it only has 44%
of the shares (AFD report 17). If the government partially succeeds in that area, they and
the World Bank failed in all of the other goals as no private national sector investors get in
the deal with IMF, there is still lack of transparency (a law was passed to protect the lack of
13
transparency in accounting (Pineau 17) ) . In conclusion, privatization of electricity in
Cameroon brought higher consumers costs and poorer services.; if it failed to have positives
changes, it has reinforced patterns of patron-‐clients relations ( Konings 7) .
In the sector of agriculture, the results were not very different. Agricultural reforms in
Cameroon have created a tremendous amount of economical tensions within the
population. Those tensions can be felt between urban and rural population but also in
gender relations. After the economic adjustment, there is now hardly dividing line between
men and women in farming. The clear division of labor between men who were
concentration on cash crops and women on food crops has now changed (Fonchingong 3).
This is the result of the economic pressures brought with the SAPs; so now everybody
works on land to ensure survival for them and their family. Moreover, the transfer of
technologies that was supposed to happen with the liberalization of agriculture hardly
occurred; indeed, in rural areas small farmers, most women and men work the land with
basic agricultural tools. Hence, in rural areas women and men are involved in income
generating activities outside their home; they have to leave rural areas to sell their crops in
neighboring urban areas, if there is one. The issue is, because people in urban areas
incomes have declined, farmers can only sell their crops at low-‐prices in the markets. So,
there are no economical benefits from them, as they have to pay their own transportation to
the city and sell their crops for less. This is affecting women more than men, as they have to
take a better role to provide a livelihood for their family (Fongchingong 4) ; it is a failure for
the social aspect of the development agenda the World Bank, as women are economically
and socially under high volume of pressure, sometimes requiring their children to drop out
of school to help them work in the land or sell crops.
14
The agriculture liberalization has also affected farmers in a macro level. Before
liberalization, there was the Food Crop market authority and the National Produce
Marketing Board, which had control of cocoa and coffee. Their liquidation improved
average incentives, but for many products and regions of the country, there were very few
traders available; So, for the farmers, marketing costs actually rose. The deterioration of
local marketing conditions inhibited farmers’ productions, which in turn limited the
entrances into private settings to serve these markets (Bamou and Masters 7).
The private educational agricultural institution created some improvements’, but it only
covered a limited range of skills and it served only certain regions of the country (Bamou
and Masters 8). Moreover, with the privatization of the educational system, schools to skill
trained farmers became expensive and most of the family cannot really afford to send their
children or their spouse to have a proper agricultural skills train; especially local farmers
who operates on a micro-‐level scale.
Another big goal of the World Bank in this project was to build roads to connect rural and
urban areas within the countries, but to also build roads connecting to other countries, so
that agriculture could benefit from sub-‐regional competitiveness by allowing farmers to sell
their crops to neighboring countries (IMF report 6). Unfortunately, because neighboring
countries are dependent on Cameroonian crops such as plantain, farmers sell them at very
high prices, often leading to the raise of prices of those crops within Cameroonian markets.
For example, the price of a regime of plantains in 2005 was 2500 CFA (5 dollars) , now in
2012, it is close to 7500 CFA (16 dollars). The sub-‐regional competitiveness is a good policy
as farmers can easily sell their crops outside of the country to neighbors, but it is also
detrimental to Cameroonians as more and more local farmers can cross the border to sell
15
their crops in Gabon or Equatorial Guinea, neglecting Cameroonian consumers who do not
have enough economical mean to pay the regime of plantains at 7500 CFA.
The reality of the agricultural sector in Cameroon right now is that government has
abandoned farmers, as they do not have any kind of economic or social structure to dwell
on such as banks to procure loans or educational system to help them enhanced their skills.
Moreover, the liberalization of agriculture has created a form of food crisis within the
country as prices for necessity means such as plantains, rice, chicken etc. are way to high for
the consumers. Cameroon is the breadbasket of central Africa but yet, its own people are no
longer able to afford to eat well at a reasonable price, in the name of a neo-‐liberal policy
that did not take into account that neo-‐liberalism is a zero-‐sum game.
The conclusion of this paper is a clear critique of SAPs and the neo-‐liberalist theory
take through a post development theory. Indeed, post developmental theorists assert that
solution to be found in the ‘contextuality’ of development as a product of particular
historical processes. The context of development is constantly changing at a variety of
scales over times and among societies (Brohman 3). Structural Adjustment Programs have
proved to be ineffective both by their policies implementation and also in term of their
execution. There has been empirical evidence showing African governments may sign
document initiating a neo-‐liberal policy without intending to execute it (Konings 6).
Hence, even though donors are able to design and impose neo-‐liberal policies through
structural adjustment programs to African governments, they appear to have less control
over their actual implementation as in the case of Cameroon. Corruption and ethno-‐regional
tensions often fuel the lack of proper implementations of those policies. Moreover, in the
16
case of the privatization of SONEL and the other policies, it is clear that the World Bank and
the IMF did not take into consideration the current and evolving environment in which
Cameroon was. They simply implemented the “one –fit for all” policy they created.
The failure of the structural adjustment programs in Africa and in Cameroon, has compelled
the Bretton Woods institutions to recognize the positive role the state can play in the
process of development ( Mkandawire 4) .In the case of Cameroon, certain sectors did not
need to be totally liberalize, because of the social conditions at the time; but it was anyways,
leading to an economic distraught in the population. A situation in which, the government
will have tremendous amount of difficulty to reverse into something positive.
17
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