Building trust, building policy: The story of Niger’s land governance breakthrough

It took seven years, countless meetings, and the determination of farmers, chiefs, women’s groups, and ministers, but in 2021, Niger finally adopted a rural land policy that belongs to its people. In a country where land is life, and where every hectare can carry layers of history, hope, and conflict, agreeing on how it should be governed was never going to be simple. Yet through political turbulence, leadership changes, and moments where the process nearly stalled, a diverse coalition kept pushing forward, proving that when everyone has a voice, the rules of the game can truly change. 

I have been closely involved in that process since the Government of Niger formally requested FAO’s support to prepare a rural land policy in 2014. Their goal was to strengthen the existing Rural Code by creating a policy framework to guide more responsible governance of tenure, ensure better coherence between land-related laws, and provide a reference point for decision-making. After two years of preparing the process design with the Government, we were finally working at full speed. 

From the outset, the process was anchored in the Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries, and Forests in the Context of National Food Security (VGGTs), endorsed by the Committee on World Food Security in 2012. This meant ensuring broad participation and transparency. 

One of the first major milestones was the États Généraux du Foncier Rural (General States of Rural Land), a national land forum held in 2017 under the President’s leadership, bringing together over 300 stakeholders from across the country to assess pressing tenure challenges. 

A multistakeholder committee was established by a ministerial decree to steer the process. While this was a step forward, women’s organizations were initially absent. Recognizing this gap, FAO worked to strengthen women’s inclusion and agency, supporting training for women’s groups as well as traditional chiefs, youth representatives, parliamentarians, and other civil society actors. These capacity-development efforts not only included underrepresented voices but also fostered a sense of ownership of the land policy process among the different stakeholder groups. 

Women participating in the rural land policy process in Niger. ©FAO / Ingeborg Gaarde 

Mobilizing political will 

In a sensitive and often volatile political environment, sustaining political commitment was essential. Traditional leaders became vocal champions of the VGGT-aligned process, even making their own formal declaration of support. 

When ministerial changes stalled progress, these local leaders, alongside civil society groups and other stakeholders, engaged directly with new officials to keep the reform on track. Their advocacy proved that political will can be mobilized from the ground up. 

While FAO initially supported the process alone, the Government and FAO later mobilized a coalition of 15 technical and financial partners. This group worked in close coordination to advance the reform roadmap, showing the power of partnership in sustaining momentum. 

Still, challenges remain. Land reform is a long-term endeavor, but funding cycles are often short. New policymakers must be resensitized after political changes, meaning that policy processes are not linear and need constant adaptation. In addition, interest from donors can fade once a policy is adopted. Donors like quantitative results that fit their project logframes. Yet, inclusive land policy processes are also a matter of changing social norms, mindsets, and ways of working together towards more responsible governance. These results are difficult to measure. Bringing a movement of “change agents” together is a powerful element in the implementation phase. 

Translating policy into a better reality 

The launch of the policy meant the result of a process built on inclusivity, persistence, and collaboration. But it’s important to note that it doesn’t automatically ensure more just and sustainable land governance. The process can’t stop on paper. 

To ensure the policy leads to real change, Niger is exploring support mechanisms such as a national land observatory to monitor progress. 

Measuring success is not always straightforward, especially for qualitative outcomes, but one clear sign of impact in Niger is the transformation of women’s groups. Once on the margins, these groups are now recognized by the Government as key actors in shaping other national policies. This marks a tangible shift towards more inclusive governance. 

Niger’s experience offers valuable insights for other countries: 

• Participation is transformative. Giving all stakeholders, especially marginalized groups, a voice in policy design builds both legitimacy and momentum. 
  
• Coalitions matter. Multipartner collaboration helps ensure strong coordination between different partners, which can build resilience against political and institutional changes. 
  
• Capacity creates change agents. Training and empowerment enable stakeholders to move from consultation to actively becoming agents of change in the implementation phase. 
  

By investing time, resources, and trust in inclusive processes, Niger’s Government and partners can transform the country’s land policy into meaningful action on the ground. 

About the author:

Dr. Ingeborg Gaarde is a Land Tenure Officer at FAO. She is the FAO Land Tenure Team Focal Point for support to land policy reforms and coordinates the team’s activities in Sub-Saharan Africa.

The views and opinions expressed in this piece are the sole responsibility of the author(s) and do not necessarily reflect the views or positions of FAO. FAO does not accept responsibility for, or endorse the views of the author(s).

Learn more:

• Brochure:  FAO support of multi-stakeholder platforms on land tenure governance  
  
• Video (in French): Un processus participatif de préparation de la politique foncière au Niger 
  
• Tool: Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security  
  
• Tool: Multi-stakeholder platforms  
  
• Site: Governance of Tenure  
  
• Policy theme page: Tenure of Land, Fisheries and Forests