The Social Dimension of Regional Integration in ECOWAS

Conscious that a two-track approach to West African integration might be counterproductive
and lead to conflicting rules, ECOWAS and WAEMU signed a general
cooperation agreement in May of 2004 to “enhance the coordination and harmonisation of
their programmes” (ECOWAS 2004e). The two bodies have in fact made similar efforts
since 1999 when leaders directed both institutions to rationalize their programmes and
avoid duplication. 17 To synchronize the work of both organizations, this same agreement
created a Joint Technical Secretariat to oversee the coordination of integration policies and
one can already point to the development of a common regional PRSP as a promising step
in this direction. The fusion of the two organizations, however logically appealing, need
not be an inevitable step before effective cooperation between ECOWAS and WAEMU
can occur, and in fact, leaders appear content with the current “multiple-speed” approach.
More important than institutional unity as far as the social dimension of integration is
concerned, is being able to recognize when policies are better developed together rather
than apart. Migration policy, for instance, is one area where a single coherent West African
plan reflects the reality that the movement of migrant workers does not respect regional
political boundaries. Setting out uniform rules throughout West Africa benefits workers
who cross from one country or region into another, both in terms of facilitating freer
movement of the work force by standardizing documentation and immigration regulations,
and in terms of ensuring that workers benefit from non-discriminatory employment rules
and adequate social protection while away from home. 18
The overlap of regions is also significant from a strategic point of view for worker and
employer organizations. Just as with economic policies, the social policies pursued at the
regional level by WAEMU and ECOWAS differ in formulation and are at varying stages
of development. That said, what is vital for the elaboration and promotion of regional
social policies is the participation of worker groups and employer associations who have a
stake in the integration agenda and who represent broad societal interests. However, such
groups from countries with commitments to both WAEMU and ECOWAS would have to
engage on two separate regional fronts – a situation that poses resource and planning
constraints. In making separate efforts to address social concerns inherent in WAEMU and
ECOWAS, the social partners risk stretching their energies and thereby dissipating their
impact. This reality may also negatively affect the ability of groups across West Africa to
coordinate their strategies on regional matters. Despite sharing many issues that are
common to regional integration, ECOWAS and WAEMU do not share the same political
dynamic or accommodation for social dialogue, preventing the social partners from taking
an identical approach to both organizations. For instance, judging from the content of the
respective treaties, ECOWAS puts a greater emphasis on the inclusion of social actors
17 The ECA reports that “the growing rapport between ECOWAS and WAEMU has borne fruit in a
common programme of action on trade liberalization and macroeconomic policy convergence.
ECOWAS and WAEMU have also agreed on common rules of origin to enhance trade, and
ECOWAS has agreed to adopt WAEMU’s customs declaration forms and compensation
mechanisms” (ECA 2004: 42).
18 See Labour Mobility below. The risk of policy overlap is greater among the WAEMU countries
than among the other seven members of ECOWAS. This is because WAEMU States belong to both
WAEMU and ECOWAS at the same time and have developed independent policies (on gender for
instance) which have equivalents at the ECOWAS level.
8 Working paper No. 49