decentralised service delivery in east africa attachment

Decentralised Service Delivery in East Africa Attachment

Systemic Analysis Framework

Attachment Systemic Analysis Framework

1

Overall Structure of the Systemic Analysis Framework

(1) Policy, system and administrative structure1. Basic information 2. CG-LG relationships and Coordination 3. Appropriate size of LGs, and the level of the LG basic unit 4. Avoiding disparities between regions 5. Existence of a mechanism to convey the views and opinions of LGs 6. Clear legislation on the decentralised structure

(3) Decentralisation of human resources management1. Basic information: Number of personnel assigned to LGs and their capacity2. Devolution of human resources management authority3. Human resources development system for LG personnel4. Capacity building of LG personnel through technical backstopping and the transfer of technical know-how from higher levels of government

(4) Decentralisation of the development planning process1. Planning process2. Consistency of local development plans with sector plans3. National and local planning coordination/Inter-LG planning coordination4. Budgeting for the prioritised projects in the local development plan5. The LG councils’ monitoring functions

(5) Devolution of Service Delivery Operations1. Institutional setups for service delivery2. Cross-sector coordination in implementation of services3. Relationship with communities in the implementation of services4. Budget allocation for the implementation of services

(2) Fiscal Decentralisation1. Size of the LG budgets2. “Revenue Autonomy” and “Expenditure Autonomy”3. Existence of policy-based fund allocations4. Accountability on budget allocation5. Capacity of LGs to manage public finances

1. Community participation as a complementary measure to the weak lower-level local administrations 2. Community participation as a means to reflect the needs of beneficiaries in the administrative services 3. Improvement in the accountability/transparency of administrative services as a result of community participation4. Development of credibility between the local administration and the residents/local communities through participation and collaboration 5. Enhancement of the self-organising capability of the smallest unit of local autonomy (communities/natural villages) and enhancement of networks between them and LGs 6. Nurturing a perception of self-governance (village autonomy) for residents and local communities through participatory development 7. The experience of local autonomy as a “school of democracy” (Experience-Based Learning Process)

3. Relationship between Local Communities/Residents and the Local Administration

1. History and society2. Political and governance systems 3. Development strategies and economic growth4. Governance reform frameworks5. Sector strategies

1. Structure of Administrative System

2. Relationship to the National Context and Development Goals at the National Level

3


1.

Stru

ctur

e of

adm

inis

trat

ive

syst

em (

cent

ral-

LG

rel

atio

nshi

ps, s

ervi

ce d

eliv

ery

syst

ems

in d

iffe

rent

sec

tors

)

(1)

Pol

icy,

sys

tem

and

adm

inis

trat

ive

stru

ctur

e

Issu

esC

heck

Poi

nts

Rem

arks

1. B

asic

info

rmat

ion

Type

s an

d hi

erar

chic

al s

truct

ure

of L

Gs

• (R

egio

n/P

rovi

nce,

Dis

trict

, Villa

ge, e

tc.),

nu

mbe

r of e

ach

type

, the

ir av

erag

e si

ze

(pop

ulat

ion

and

land

are

a)Lo

cal b

ranc

h of

fices

of C

G: t

ypes

and

•

hier

arch

ical

stru

ctur

e (R

egio

n/P

rovi

nce,

D

ivis

ion,

Loc

atio

n, e

tc.)

Cen

tral m

inis

tries

in c

harg

e of

loca

l •

adm

inis

tratio

n an

d de

cent

ralis

atio

n, a

nd

thei

r aut

horit

y (H

ow s

trong

are

they

with

in

the

gove

rnm

ent?

)A r

e he

ads

of L

G (a

dmin

istra

tion)

ele

cted

•

dire

ctly

or i

ndire

ctly,

or a

re th

ere

syst

ems

whe

reby

they

are

app

oint

ed fr

om C

G?

< D

o no

t int

erpr

et d

iffer

ent c

ount

ryís

sys

tem

bas

ed o

n Ja

pane

se e

xper

ienc

e, w

hich

mig

ht le

ad to

a

fund

amen

tal m

isun

ders

tand

ing

of th

e re

ality

. — E

ach

coun

try

has

a co

mpl

etel

y di

ffer

ent L

G s

yste

m fr

om

othe

rs.>

Th

e ca

se o

f Tan

zani

a LG

Sys

tem

s ar

e qu

ite d

iffer

ent f

rom

cou

ntry

to c

ount

ry.

In J

ICA

, the

term

“•

Dis

trict” o

f Tan

zani

an L

G s

yste

m is

tra

nsla

ted

as “

ken”

(県) i

n Ja

pane

se. (“

Ken” i

s pr

efec

ture

in E

nglis

h.)

How

ever

, if w

e ta

ke T

anza

nian

“D

istri

ct”

as J

apan

ese “

ken”

, it i

s co

mpl

etel

y m

isle

adin

g. T

anza

nian

“D

istri

ct ”

corr

espo

nds

to th

e Ja

pane

se “

Pre

fect

ure”

in

the

sens

e th

at it

is a

wid

e-ar

ea L

G u

nit w

ithin

a tw

o-tie

r LG

sys

tem

(in

Tanz

ania

, it i

s ca

lled “

high

er le

vel L

G”

com

pare

d to

“V

illag

e” a

s “lo

wer

leve

l LG”).

On

the

othe

r han

d, a

“D

istri

ct” c

ould

be

bette

r com

pare

d to

a

Japa

nese

“M

unic

ipal

ity” c

onsi

derin

g its

cha

ract

eris

tics

as th

e co

re o

f loc

al a

dmin

istra

tion,

as

wel

l as

its

popu

latio

n si

ze (a

ppro

xim

atel

y 30

0,00

0 on

ave

rage

). T

o th

e co

ntra

ry, i

ts la

nd a

rea

is o

n pa

r with

, or e

ven

larg

er, t

han

a Ja

pane

se P

refe

ctur

e.

Vie

win

g fro

m a

diff

eren

t ang

le, t

he n

umbe

r of s

taff

empl

oyed

in o

ne L

G is

qui

te d

iffer

ent b

etw

een

Japa

n an

d Ta

nzan

ia.

Eac

h LG

in T

anza

nia

empl

oys

som

e hu

ndre

ds o

f wor

kers

(exc

ludi

ng te

ache

rs),

whi

ch is

abo

ut

one

tent

h th

e pe

rson

nel o

f a m

id-s

ized

mun

icip

ality

in J

apan

.In

Jap

an, “

Vill

ages” a

re o

ne o

f the

bas

ic u

nits

of L

G (l

ower

leve

l LG

s) to

geth

er w

ith “

Citi

es”,

“M

unic

ipal

ities” a

nd “

Tow

ns”,

whe

reas

in T

anza

nia,

“C

ities”, “

Mun

icip

aliti

es” a

nd “

Tow

ns” a

re c

lass

ified

as

high

er le

vel L

Gs

toge

ther

with

“D

istri

cts”

, bei

ng “

Vill

ages” a

s lo

wer

leve

l LG

s be

low

them

. In

eac

h V

illag

e in

Ta

nzan

ia, t

here

is o

nly

one

staf

f cal

led

Vill

age

Exe

cutiv

e O

ffice

r (V

EO

), m

eanw

hile

Jap

anes

e “V

illag

es” h

ave

tens

or h

undr

eds

of p

erso

nnel

. O

n th

e ot

her h

and,

the

aver

age

popu

latio

n of

Tan

zani

an V

illag

es to

be

serv

ed

by L

G s

taffs

is a

ppro

xim

atel

y 3,

000.

Fur

ther

mor

e, th

ey a

re b

y no

mea

ns s

mal

l in

term

s of

land

are

a to

cov

er,

bein

g be

twee

n on

e ha

lf an

d on

e th

ird th

e si

ze o

f Jap

anes

e M

unic

ipal

ities

. R

evie

win

g al

l the

se, i

t mig

ht b

e co

nclu

ded

that

Tan

zani

an V

illag

es a

re to

o bi

g fo

r the

resi

dent

s to

feel

it c

lose

eno

ugh

to th

em a

s th

eir o

wn

com

mun

ity fo

r loc

al a

uton

omy,

whi

le th

ey a

re to

o sm

all t

o be

suf

ficie

ntly

cap

able

of p

rovi

ding

the

requ

ired

serv

ices

.

Uga

ndan

and

Ken

yan

case

sIn

con

trast

, “Vi

llage” w

hich

is th

e ba

sic

unit

of L

G in

Uga

nda,

can

be

cons

ider

ed s

uffic

ient

ly s

mal

l, w

ith p

opul

atio

n •

of 5

00 a

nd la

nd a

reas

of 4

.4 k

m2 .

Ser

vice

del

iver

y is

pro

vide

d by

the

high

er “

Sub

-Cou

nty”

leve

l, an

d ex

perts

from

ea

ch s

ecto

r are

ass

igne

d to

this

leve

l of g

over

nmen

t. In

the

case

of K

enya

, the

re a

re u

nits

cal

led “

Loca

tions” a

nd

“S

ub-L

ocat

ions” b

elow

the

Dis

trict

and

Div

isio

n le

vels

, alth

ough

they

are

not

aut

onom

ous

bodi

es.

Ther

e is

a

tradi

tion

whe

reby

, bas

ed o

n th

ese

units

, dec

isio

ns a

re m

ade

by h

oldi

ng c

omm

unity

mee

tings

cal

led “

Bar

aza”

. Th

is is

inte

rest

ing

from

the

pers

pect

ive

of lo

cal c

omm

unity

aut

onom

y.

4

Decentralised Service Delivery in East Africa

1. B

asic

info

rmat

ion

(con

tinue

d)

Look

ing

at th

ese

fact

s, w

e ca

n se

e th

at it

is n

ot p

ossi

ble

to u

nder

stan

d th

e st

ate

of lo

cal a

dmin

istra

tive

oper

atio

ns

• of

oth

er c

ount

ries,

and

muc

h le

ss to

giv

e a

diag

nosi

s ba

sed

only

on

the

Japa

nese

exp

erie

nce.

It i

s ex

trem

ely

impo

rtant

acq

uire

thes

e ki

nds

of in

form

atio

n.

Furth

erm

ore,

in c

ount

ries

like

Ken

ya, i

t is

still

the

loca

l bra

nch

offic

es o

f diff

eren

t CG

min

istri

es th

at a

re p

r imar

ily

• re

spon

sibl

e fo

r adm

inis

trativ

e se

rvic

es, a

nd in

man

y ca

ses,

LG

s ta

ke o

n on

ly a

sm

all p

ortio

n of

thos

e re

spon

sibi

litie

s. I

n su

ch c

ases

, it i

s al

so im

porta

nt to

col

lect

the

sam

e ty

pes

of in

form

atio

n on

the

loca

l offi

ces

of C

G.

< M

inis

try(

ies)

res

pons

ible

for

dece

ntra

lisat

ion

refo

rms

> In

mos

t cas

es, t

he m

inis

try re

spon

sibl

e fo

r dec

entra

lisat

ion

refo

rms

is th

e m

inis

try o

f LG

. H

owev

er, e

ven

in c

ases

•

that

they

car

ry s

imila

r kin

ds o

f nam

e, th

e ac

tual

feat

ure

of th

e m

inis

try (e

.g. m

issi

on, a

utho

rity,

resp

onsi

bilit

y, e

tc.)

diffe

rs fr

om c

ount

ry to

cou

ntry

, whi

ch in

man

y in

stan

ces

influ

ence

s th

e pr

ogre

ss o

f the

refo

rms.

Whi

le in

som

e ca

ses

like

Tanz

ania

, the

min

istry

is p

lace

d un

der t

he P

resi

dent

ís O

ffice

or P

rime

Min

iste

rís O

ffice

, the

re a

re o

ther

ca

ses

like

Uga

nda

and

Ken

ya, w

here

it is

an

inde

pend

ent m

inis

try.

Inde

ed it

cou

ld b

e ar

gued

that

i t is

stro

nger

to

be a

n in

depe

nden

t min

istry

, it i

s of

ten

the

case

that

the

stat

us o

f a m

inis

try o

f LG

is n

ot h

igh

with

in th

e go

vern

men

t, an

d th

us th

ere

is a

noth

er a

rgum

ent t

hat i

t is

easi

er to

be

unde

r stro

nger

aut

horit

y lik

e pr

esid

entís

offi

ce to

def

end

dece

ntra

lisat

ion

agai

nst t

he re

sist

ance

from

oth

er m

inis

tries

. O

n th

e ot

her h

and,

it is

impo

rtant

to s

ee if

the

refo

rms

are

real

ly c

arrie

d ou

t by

the

Min

istry

itse

lf, s

ince

cas

es e

xist

•

whe

re a

stro

ng c

onsu

ltant

team

is c

ontra

cted

to im

plem

ent t

he re

form

s pr

actic

ally

as

obse

rved

in T

anza

nia.

< M

etho

ds fo

r el

ectin

g th

e he

ads

of a

LG

>

Alth

ough

Tan

zani

a an

d U

gand

a ha

ve b

een

sim

ilarly

pro

mot

ing “

D b

y D”,

the

way

s to

ele

ct th

e he

ads

of L

Gs

are

• di

ffere

nt in

the

two

coun

tries

. W

here

as in

Uga

nda,

as

in J

apan

, the

hea

ds o

f LG

s (m

ayor

s) a

re e

lect

ed d

irect

ly b

y po

pula

r vot

e, in

Tan

zani

a, it

is th

e ch

airp

erso

n of

the

Dis

trict

Cou

ncil

who

ser

ves

as th

e he

ad o

f the

Dis

trict

. Th

e di

rect

ele

ctio

n st

yle

has

its m

erits

in th

e se

nse

that

it m

aint

ains

che

cks

and

bala

nces

bet

wee

n th

e E

xecu

tive

and

Legi

slat

ive

bran

ches

, ins

tead

of t

he h

ead

of th

e le

gisl

ativ

e br

anch

pre

sidi

ng o

ver t

he e

xecu

tive

bran

ch a

t the

sam

e tim

e. O

n th

e ot

her h

and,

as

can

also

be

seen

with

LG

s in

Jap

an, a

dire

ct m

ayo r

al e

lect

ion

form

at m

ay ru

n th

e ris

k of

hav

ing

LG o

pera

tions

sta

gnat

e if

the

maj

ority

of t

he c

ounc

il an

d th

e m

ayor

bel

ong

to d

iffer

ent p

artie

s.

Con

vers

ely,

with

a s

tyle

of i

ndire

ct e

lect

ions

, at l

east

theo

retic

ally,

LG

ope

ratio

ns c

ould

be

adm

inis

tere

d w

ith c

lose

r co

ordi

natio

n be

twee

n th

e co

unci

l and

the

exec

utiv

e br

anch

of t

he L

G.

< P

rese

nce

of D

istr

ict C

omm

issi

oner

s >

Whe

n ex

amin

ing

loca

l gov

erna

nce

in A

frica

n co

untri

es, a

noth

er im

porta

nt e

lem

ent i

s th

e pr

esen

ce o

f Dis

trict

•

Com

mis

sion

ers,

who

are

in m

ost c

ases

pre

side

ntia

lly-a

ppoi

nted

, whi

ch c

ould

be

desc

ribed

as

a ve

stig

e of

ce

ntra

lisat

ion.

In

the

case

of U

gand

a, th

e au

thor

ity o

f thi

s po

sitio

n ha

s be

en s

ubst

antia

lly w

eake

ned

thro

ugh

the

dece

ntra

lisat

ion

refo

rm.

How

ever

, in

the

case

of T

anza

nia,

the

posi

tion

still

mai

ntai

ns c

erta

in in

fluen

ce

alth

ough

la

tent

in n

atur

e

thus

the

pres

ence

of s

uch

a po

sitio

n ca

nnot

be

over

look

ed.

As

mat

ters

sta

nd, c

oupl

ed w

ith th

e fa

ct th

at th

e C

ounc

il D

irect

or is

app

oint

ed b

y C

G, t

he C

ounc

il D

irect

or, w

ho is

the

top

bure

aucr

at w

ithin

the

LG

adm

inis

tratio

n, c

anno

t ign

ore

the

exis

tenc

e of

the

Dis

trict

Com

mis

sion

er. W

hile

this

can

be

seen

as

a fo

rm o

f gu

aran

teei

ng c

onsi

sten

cy w

ith C

G, f

rom

the

pers

pect

ive

of a

ccou

ntab

ility

to lo

cal s

ocie

ty, i

t sho

uld

be d

escr

ibed

as

runn

ing

coun

ter t

o th

e pr

inci

ple

of d

ecen

tralis

atio

n.

Issu

esC

heck

Poi

nts

Rem

arks


5

2. C

G-L

G

rela

tions

hips

and

C

oord

inat

ion

Wha

t kin

ds o

f res

pons

ibilit

ies

have

bee

n •

devo

lved

to L

Gs,

and

to w

hat e

xten

t?

Wha

t abo

ut th

e de

volu

tion

of p

ower

s •

asso

ciat

ed w

ith s

uch

resp

onsi

bilit

ies?

(b

udge

ts, h

uman

reso

urce

s m

anag

emen

t, ot

her d

iscr

etio

nary

pow

ers)

How

is th

e de

mar

catio

n of

aut

horit

y an

d •

resp

onsi

bilit

y es

tabl

ishe

d be

twee

n C

G a

nd

LGs?

Wha

t abo

ut b

etw

een

loca

l bra

nch

offic

es o

f the

CG

and

LG

s?Is

it th

e LG

s, o

r the

loca

l offi

ces

of th

e C

G

• th

at is

the

mai

n se

rvic

e pr

ovid

er in

loca

l ar

eas?

How

is th

eir r

elat

ions

hip

in th

is

serv

ice

deliv

ery

wor

king

?In

cas

es w

here

dec

entra

lisat

ion

refo

rms

• ar

e un

derw

ay, w

hat w

as (i

s) th

e st

ate

prio

r to

the

refo

rm c

once

rnin

g th

e ab

ove

four

as

pect

s, a

nd w

hat i

s th

e pi

ctur

e th

at th

e re

form

aim

s to

real

ise

with

rega

rd to

this

?W

hat k

ind

of c

oord

inat

ion

mec

hani

sms

• ex

ist a

nd a

re fu

ncti o

ning

bet

wee

n th

e C

G

(incl

udin

g its

loca

l bra

nch

offic

es) a

nd th

e LG

s?

< B

asic

info

rmat

ion:

Und

erst

andi

ng th

e de

mar

catio

n (d

ivis

ion

of r

oles

) am

ong

the

diff

eren

t lay

ers

of C

G

and

LGs

> In

ord

er to

und

erst

and

the

stat

e of

dec

entra

lisat

ion,

the

mos

t im

porta

nt th

ing

to c

onfir

m is

the

stat

e of

dem

arca

tion

• of

resp

onsi

bilit

ies

and

auth

oriti

es a

mon

g va

rious

diff

eren

t ent

ities

of C

G a

nd L

Gs

(CG

, loc

al b

ranc

h of

fices

of t

he

CG

, loc

al s

truct

ure

of th

e lin

e m

inis

tries

, LG

s, e

tc.).

Div

erse

poi

nts

shou

ld b

e ve

rified

, inc

l udi

ng: W

hat a

re th

e ar

rang

emen

ts in

eac

h se

ctor

with

rega

rd to

the

auth

ority

ove

r per

sonn

el m

anag

emen

t, co

st s

harin

g, d

iscr

etio

nary

po

wer

s of

bud

get a

lloca

tion,

pla

nnin

g, e

tc.?

How

are

they

exp

ress

ed in

the

oper

atio

ns o

f eac

h se

ctor

ís s

ervi

ces?

(F

or fu

rther

det

ails

, ple

ase

refe

r to

(2) “

Fisc

al D

ecen

tralis

atio

n” to

(5) “

Dev

olut

ion

of S

ervi

ce D

eliv

ery

Ope

ratio

ns”

of th

e pr

esen

t mat

rix.)

< Im

port

ance

of a

naly

sing

from

the

pers

pect

ive

of th

e C

G-L

G s

yste

m a

s a

who

le>

On

the

othe

r han

d, w

ith a

vie

w to

fully

mob

ilisin

g av

aila

ble

reso

urce

s in

the

Cou

ntry

, it i

s im

porta

nt to

pay

atte

ntio

n •

to th

e co

ordi

natio

n an

d co

llabo

rativ

e re

latio

nshi

ps b

etw

een

CG

and

LG

s ev

en u

nder

a d

ecen

tralis

ed s

truct

ure.

In

deve

lopi

ng c

ount

ries,

ava

ilabl

e re

sour

ces

for d

evel

opm

ent a

re a

lway

s lim

ited.

Dec

entra

lisat

ion

mus

t not

lead

to

fragm

enta

tion

of th

ese

alre

ady

limite

d re

sour

ces.

Dec

entra

li sat

ion

refo

rms

shou

ld n

ot b

e vi

ewed

nar

row

ly, th

at is

, ta

king

pow

er fr

om C

G a

nd a

ssig

ning

it to

LG

s: it

is im

porta

nt to

take

a v

iew

of s

earc

hing

from

the

outs

et fo

r a

CG

-LG

sys

tem

to fu

nctio

n in

har

mon

y w

ith th

e C

ount

ryís

dev

elop

men

t. It

is a

lso

impo

rtant

to c

onsi

der h

ow to

de

velo

p a

syst

em in

whi

ch C

G a

nd L

Gs

can

colla

bora

te w

ell b

ased

on

an a

ppro

pria

te d

ivis

ion

of ro

les.

Thi

s w

ill

also

gua

rant

ee te

chni

cal b

acks

topp

ing

from

CG

min

istri

es to

LG

s so

that

LG

s ca

n pe

rform

all

the

devo

lved

dut

ies.

Fu

rther

mor

e, th

e sa

me

pers

pect

ive

is re

leva

nt to

ass

urin

g th

e tra

nsfe

r of k

now

-how

acc

umul

ated

in th

e C

G to

the

LGs,

at l

east

unt

il th

e LG

s ha

ve d

evel

oped

suf

ficie

nt c

apac

ity.

< H

ow to

avo

id r

esis

tanc

e fr

om th

e ce

ntra

l min

istr

ies

> A

s se

en w

ith th

e ex

perie

nce

of T

anza

nia,

dec

entra

lisat

ion

refo

rms

ofte

n m

eet w

ith o

ppos

ition

from

cen

tral

• m

inis

tries

. O

ne o

f the

reas

ons

for t

his

stem

s fro

m th

e ba

sic

natu

re o

f bur

eauc

rats

to re

sist

any

div

estit

ure

of th

eir

juris

dict

ion

(ves

ted

right

s).

Ano

ther

just

ifica

tion

is th

at th

ey fe

ar th

e po

ssib

le s

tagn

atio

n of

ser

vice

s du

e to

the

fact

th

at L

Gs

are

not e

quip

ped

with

suf

ficie

nt c

apac

ity to

per

form

the

nece

ssar

y op

erat

ions

. Th

e fo

rmer

is g

reat

ly

influ

ence

d by

how

stro

ng th

e in

itiat

ive

is a

t the

top

of th

e go

v ern

men

t (pr

esid

ent).

Thi

s un

derli

es o

ne o

f the

re

ason

s w

hy th

e re

form

s in

Uga

nda

have

pro

gres

sed

com

para

tivel

y w

ell.

The

cha

lleng

e fo

r dea

ling

with

the

latte

r is

how

to g

et th

e ca

paci

ty d

evel

opm

ent o

f LG

s on

trac

k by

bui

ldin

g an

inst

itutio

nal e

nviro

nmen

t to

supp

ort L

Gs

inst

ead

of h

inde

ring

them

. Ja

paní

s A

genc

y D

eleg

ated

Fun

ctio

ns c

an b

e gi

ven

as o

ne o

f the

suc

cess

ful e

xam

ples

w

here

this

was

ach

ieve

d sa

tisfa

ctor

ily a

s a

sort

of “

built

-in” m

echa

nism

s w

ithin

the

tota

l sys

tem

of d

ecen

tralis

atio

n.

In a

ny c

ase,

it is

impe

rativ

e th

at th

e ab

ove

cite

d tw

o po

ints

be

kept

in m

ind

in o

rder

that

lim

ited

reso

urce

s ca

n be

fully

mob

ilised

.

6


2. C

G-L

G

rela

tions

hips

and

C

oord

inat

ion

(con

tinue

d)

Dev

olut

ion/

Del

egat

ion/

Dec

once

ntra

tion

Whi

ch ty

pe o

f dec

entra

lisat

ion

is a

dopt

ed

• as

the

over

all d

irect

ion:

Dev

olut

ion,

D

eleg

atio

n or

Dec

once

ntra

tion?

Lo

ok in

det

ail a

t eac

h of

the

spec

ific

• se

rvic

es. W

hat k

inds

of s

ervi

ces

are

actu

ally

bei

ng p

erfo

rmed

in a

dev

olut

ion

styl

e? H

ow a

bout

in th

e de

lega

tion

and

deco

ncen

tratio

n st

yles

?

See

Box

3-1

for t

he d

efini

tion

of e

ach

of th

e th

ree

cate

gorie

s.

• < Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s >

At l

east

in th

eory

, Dev

olut

ion

enab

les

LGs,

bei

ng th

e cl

oses

t pub

lic e

ntity

to th

e re

side

nts,

to p

rovi

de th

e m

ost

• ef

fect

ive

and

rele

vant

ser

vice

s th

at c

orre

spon

d to

the

spec

ific

cond

ition

s of

the

loca

lity

as w

ell a

s th

e re

al n

eeds

of

the

resi

dent

s.

< Fr

om th

e pe

rspe

ctiv

e of

effi

cien

cy >

H

owev

er fr

om th

e pe

rspe

ctiv

e of

effi

cien

cy, t

he o

bjec

tive

coul

d be

ach

ieve

d w

ith d

econ

cent

ratio

n or

del

egat

ion

• w

ithou

t nec

essa

rily

seek

ing

devo

lutio

n, if

it c

an b

e as

sure

d th

at d

iscr

etio

nary

pow

ers

are

give

n to

the

loca

l br

anch

es to

ena

ble

prom

pt s

ervi

ce p

rovi

sion

, with

loca

l lev

el d

ecis

ion

mak

ing

on b

udge

t allo

catio

n, p

rocu

rem

ent,

etc.

inst

ead

of h

avin

g to

ask

thei

r cen

tral o

ffice

for a

ppro

val o

n ev

ery

tiny

mat

ter.

< Fr

om th

e pe

rspe

ctiv

e of

acc

ount

abili

ty >

O

n th

e ot

her h

and,

dec

once

ntra

tion

and

dele

gatio

n m

ight

rem

ain

a pr

oble

m fr

om th

e pe

rspe

ctiv

e of

acc

ount

abilit

y.

• W

hile

dev

olut

ion

at le

ast t

heor

etic

ally

gua

rant

ees

acco

unta

bilit

y to

the

coun

cils

that

repr

esen

t the

loca

l soc

iety

, in

deco

ncen

tratio

n or

del

egat

ion,

acc

ount

abilit

y na

tura

lly g

oes

upw

ard.

The

refo

re, t

he q

uest

ion

here

is w

heth

er th

ere

are

any

way

s at

all

of e

nsur

ing

acco

unta

bilit

y to

the

loca

l res

iden

ts e

ven

in a

dec

once

ntra

tion

or d

eleg

atio

n ty

pe o

f sy

stem

.

< Fr

om th

e pe

rspe

ctiv

e of

a b

alan

ce b

etw

een

inst

itutio

nal r

efor

ms

and

abso

rptiv

e ca

paci

ty b

uild

ing>

In

stitu

tiona

l ref

orm

s to

app

ropr

iate

ly d

evol

ve a

utho

ritie

s to

LG

s ar

e ne

cess

ary.

Unt

il th

is h

appe

ns, a

uni

form

pol

icy

• an

d pr

ogra

mm

e de

fined

at t

he c

entra

l lev

el w

ill al

way

s be

mai

ntai

ned,

and

nei

ther

an “

inst

itutio

nal a

uton

omy”

that

pu

rsue

s se

rvic

e de

liver

y re

leva

nt to

the

spec

ific

cond

ition

s of

the

area

, nor

a “

resi

dent

ís a

uton

omy”

that

pur

sues

re

side

nt-d

riven

loca

l aut

onom

y, w

ill de

velo

p. F

urth

erm

ore,

with

out i

nstit

utio

nal r

efor

ms,

pro

gres

s w

ill no

t be

in

the

deve

lopm

ent o

f the

LG

ís a

bsor

ptiv

e ca

paci

ty.

In th

is re

spec

t, th

e ex

ampl

e of

Uga

nda

is n

otew

orth

y as

a c

ase

whe

re L

G c

apac

ity w

as g

radu

ally

dev

elop

ed th

roug

h th

e pr

ior i

mpl

emen

tatio

n of

dra

stic

inst

itutio

nal r

efor

ms.

On

the

othe

r han

d, p

rom

otin

g ra

pid

and

dras

tic in

stitu

tiona

l ref

orm

s w

ithou

t pay

ing

prop

er a

ttent

ion

to

• de

velo

pmen

t of t

he a

bsor

ptiv

e ca

paci

ty o

f the

LG

, will,

on

the

cont

rary

, pot

entia

lly in

a fa

tal d

isru

ptio

n or

sta

gnat

ion

of s

ervi

ces.

Sep

arat

ed m

odel

ver

sus

inte

rtw

ined

m

odel

of C

G-L

G r

elat

ions

hips

How

are

the

CG

-LG

rela

tions

hips

in

• su

perv

isio

n an

d m

ento

ring

for p

lann

ing,

bu

dget

ing,

ser

vice

del

iver

y op

erat

ions

, et

c.?

How

cle

ar is

the

CG

-LG

dem

arca

tion

• (d

ivis

ion

of ro

les)

? (d

egre

e of

sep

arat

ion)

< Im

port

ance

of t

echn

ical

bac

ksto

ppin

g fr

om C

G to

LG

s to

com

plem

ent L

Gís

defi

cien

t cap

acity

and

to

faci

litat

e th

e ca

paci

ty d

evel

opm

ent o

f LG

s>

Par

ticul

arly

in A

frica

n co

untri

es w

hich

hav

e lo

ng b

een

subj

ect t

o co

loni

al ru

le a

nd c

entra

lised

dic

tato

rshi

p ev

en

• af

ter t

hat,

the

adm

inis

trativ

e ca

paci

ty o

f LG

s ha

s no

t dev

elop

ed w

ell y

et c

ompa

red

to o

ther

regi

ons.

Hen

ce ju

st

bein

g “cl

ose

to re

side

nts”

will

not n

eces

saril

y m

ean

that

LG

s w

ill be

abl

e to

pro

vide

requ

ired

serv

ices

in a

n ef

fect

ive

and

appr

opria

te m

anne

r. In

suc

h ca

ses,

if a

LG

doe

s no

t hav

e en

ough

cap

acity

to a

ssum

e its

re

spon

sibi

litie

s, th

ere

need

s to

be

a sy

stem

that

com

plem

ents

and

sup

ports

the

said

LG

and

a s

uppo

rt sy

stem

for

prom

otin

g its

cap

acity

dev

elop

men

t, ev

en g

radu

ally.

Issu

esC

heck

Poi

nts

Rem

arks


7

To w

hat e

xten

t are

ther

e co

llabo

rativ

e •

inte

ract

ions

bet

wee

n th

e C

G a

nd th

e LG

s?

Wha

t kin

ds o

f ser

vice

s ar

e pr

ovid

ed b

y bo

th?

(ser

vice

del

iver

y op

erat

ions

, de

velo

pmen

t pro

ject

s, c

ost s

harin

g, e

tc.)

(deg

ree

of in

tertw

inem

ent)

The

sepa

rate

d m

odel

is th

e on

e w

ith li

ttle

over

lap

of ju

risdi

ctio

n be

twee

n C

G a

nd L

Gs.

In

cont

rast

, und

er th

e •

inte

rtwin

ed m

odel

, CG

and

LG

s fre

quen

tly h

ave

juris

dict

ion

o ver

the

sam

e is

sues

and

adm

inis

trativ

e se

rvic

es.

Typi

cal e

xam

ples

of t

he s

epar

ated

mod

el a

re th

e B

ritis

h an

d U

.S. s

yste

ms,

and

exa

mpl

es o

f the

inte

rtwin

ed

mod

el, a

re th

e Fr

ench

and

Ger

man

sys

tem

s. J

apan

is c

lass

ified

as

bein

g th

e la

tter t

ype.

Th

is a

naly

tical

fram

ewor

k is

hig

hly

effe

ctiv

e in

ana

lysi

ng th

e na

ture

of e

ach

coun

tryís

dec

entra

lisat

ion,

in a

dditi

on

• to

the

crite

ria fo

r cen

tralis

atio

n-d e

conc

entra

tion-

dele

gatio

n-de

volu

tion.

< Fr

om th

e pe

rspe

ctiv

e of

acc

ount

abili

ty >

A

mer

it of

the

sepa

rate

d m

odel

is c

larit

y co

ncer

ning

the

resp

onsi

bilit

ies

of e

ach

party

. Th

eref

ore

it ca

n be

•

cons

ider

ed g

ood

from

the

pers

pect

ive

of a

ccou

ntab

ility.

Con

vers

ely,

coo

pera

tion,

col

labo

ratio

n an

d co

ordi

natio

n be

twee

n th

e C

G a

nd L

Gs

wou

ld b

e di

fficu

lt in

this

mod

el.

< Fr

om th

e pe

rspe

ctiv

e of

a b

alan

ce b

etw

een

inst

itutio

nal r

efor

ms

and

the

deve

lopm

ent o

f the

LG

ís

abso

rptiv

e ca

paci

ty>

In a

n in

tertw

ined

sys

tem

, CG

and

LG

s co

llabo

rate

to p

rovi

de th

e sa

me

serv

ice,

and

link

s be

twee

n th

e tw

o ar

e •

mai

ntai

ned

in a

var

iety

of w

ays,

incl

udin

g co

oper

atio

n, c

oord

inat

ion,

inst

ruct

ion

and

supe

rvis

ion.

The

re is

the

pote

ntia

l for

var

ious

adv

anta

ges

com

pare

d to

a s

epar

ated

sys

tem

, inc

ludi

ng: t

hat t

he m

obilis

atio

n of

ava

ilabl

e re

sour

ces

in th

e co

untry

is re

lativ

ely

easy

, and

it is

pos

sibl

e to

der

ive

syne

rgie

s; a

nd th

at it

is e

asie

r to

harm

onis

e lo

cal a

uton

omy

and

natio

n al s

trate

gies

. Fu

rther

mor

e th

e in

tertw

ined

mod

el fa

cilit

ates

cap

acity

dev

elop

men

t of t

he

LGs

base

d on

OJT

, etc

. thr

ough

dire

ct a

nd in

dire

ct in

stru

ctio

n, s

uper

visi

on a

nd c

olla

bora

tion

by th

e C

G.

In

cont

rast

, a p

ossi

ble

draw

back

of t

he in

tertw

ined

mod

el is

that

the

divi

sion

of r

espo

nsib

ility

betw

een

the

CG

and

LG

s te

nds

to b

e va

gue.

3. A

ppro

pria

te s

ize

of

LGs,

and

the

leve

l of

the

LG b

asic

uni

t

Do

LGs

have

suf

ficie

nt s

ize

to p

rovi

de th

e •

requ

ired

serv

ice

deliv

ery?

(num

ber o

f pe

rson

nel,

budg

et, t

echn

olog

ical

leve

l of

staf

f, si

ze o

f the

are

a to

ser

ve, e

tc.)

Con

vers

ely,

is th

e si

ze o

f LG

s sm

all

• en

ough

to p

ursu

e lo

cal c

omm

unity

au

tono

my?

If LG

s ar

e to

o sm

all,

they

can

not g

uara

ntee

suf

ficie

nt c

apac

ity to

fulfi

l the

resp

onsi

bilit

ies

of s

ervi

ce d

eliv

ery

and

•

the

auth

ority

dev

olve

d to

them

. C

onve

rsel

y, if

too

larg

e a

size

is s

ough

t, th

e LG

will

beco

me

rem

oved

from

its

resi

dent

s, a

nd th

ere

is a

dan

ger t

hat t

he p

rinci

ple

of s

elf-r

ule

by th

e pe

ople

will

be lo

st.

Ther

e ne

eds

to b

e a

care

ful e

xam

inat

ion

of th

e ap

prop

riate

siz

e ba

sed

on t h

e ci

rcum

stan

ces

of th

e co

untry

.H

owev

er, t

he a

ppro

pria

te le

vel o

f LG

var

ies

depe

ndin

g on

whe

ther

the

prin

cipa

l rol

e of

LG

is d

efine

d as

; •

a) a

ba

sic

unit

for p

rovi

sion

of s

ervi

ce d

eliv

ery,

or b

) a u

nit o

f loc

al a

uton

omy

with

the

subs

tant

ial p

artic

ipat

ion

of th

e re

side

nts.

It i

s im

porta

nt to

defi

ne th

e le

vel a

nd u

nit s

ize

of L

Gs

afte

r mak

ing

the

abov

e-m

entio

ned

defin

ition

cle

ar.

< Im

port

ance

of a

mul

tilay

ered

str

uctu

re >

In

real

ity, b

oth

a) a

nd b

) cite

d ab

ove

are

fund

amen

tal m

issi

ons

for L

Gs.

How

ever

, if w

e se

ek b

oth

aim

s, it

will

not

• be

eas

y w

ith a

sin

gle

laye

r LG

sys

tem

. H

ence

one

of t

he p

ossi

ble

solu

tions

cou

ld b

e a

mul

tilay

ered

LG

sys

tem

. It

coul

d be

effe

ctiv

e to

hav

e a

stru

ctur

e co

mpo

sed

of; a

) bas

ic u

nits

(sm

all e

noug

h) to

org

anis

e co

mm

uniti

es (n

atur

al

villa

ges)

for “

resi

dent

sí a

uton

omy”

, and

b) a

dmin

istra

tive

unit

(big

eno

ugh)

at a

n ad

equa

te le

vel t

o be

cap

able

of

serv

ice

deliv

ery,

toge

ther

with

c) m

echa

nism

s to

link

a) a

nd b

). T

he s

truct

ure

of lo

cal a

dmin

istra

tion

in U

gand

a,

whi

ch li

nks

LC5

to L

C1,

cou

ld b

e re

ferr

ed to

as

a go

od e

xam

ple

for t

his

(for f

urth

er d

etai

ls, s

ee 2

-5-2

and

3-2

-3

(3))

. In

Jap

an a

s w

ell,

case

s in

poi

nt c

an a

lso

be o

bser

ved

in s

ome

LGs;

e.g

. Iid

a C

ity in

Nag

ano

Pre

fect

ure,

in

Kor

a To

wn

i n S

higa

Pre

fect

ure,

etc

.

2. C

G-L

G

rela

tions

hips

and

C

oord

inat

ion

(con

tinue

d)

Dev

olut

ion/

Del

egat

ion/

Dec

once

ntra

tion

Whi

ch ty

pe o

f dec

entra

lisat

ion

is a

dopt

ed

• as

the

over

all d

irect

ion:

Dev

olut

ion,

D

eleg

atio

n or

Dec

once

ntra

tion?

Lo

ok in

det

ail a

t eac

h of

the

spec

ific

• se

rvic

es. W

hat k

inds

of s

ervi

ces

are

actu

ally

bei

ng p

erfo

rmed

in a

dev

olut

ion

styl

e? H

ow a

bout

in th

e de

lega

tion

and

deco

ncen

tratio

n st

yles

?

See

Box

3-1

for t

he d

efini

tion

of e

ach

of th

e th

ree

cate

gorie

s.

• < Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s >

At l

east

in th

eory

, Dev

olut

ion

enab

les

LGs,

bei

ng th

e cl

oses

t pub

lic e

ntity

to th

e re

side

nts,

to p

rovi

de th

e m

ost

• ef

fect

ive

and

rele

vant

ser

vice

s th

at c

orre

spon

d to

the

spec

ific

cond

ition

s of

the

loca

lity

as w

ell a

s th

e re

al n

eeds

of

the

resi

dent

s.

< Fr

om th

e pe

rspe

ctiv

e of

effi

cien

cy >

H

owev

er fr

om th

e pe

rspe

ctiv

e of

effi

cien

cy, t

he o

bjec

tive

coul

d be

ach

ieve

d w

ith d

econ

cent

ratio

n or

del

egat

ion

• w

ithou

t nec

essa

rily

seek

ing

devo

lutio

n, if

it c

an b

e as

sure

d th

at d

iscr

etio

nary

pow

ers

are

give

n to

the

loca

l br

anch

es to

ena

ble

prom

pt s

ervi

ce p

rovi

sion

, with

loca

l lev

el d

ecis

ion

mak

ing

on b

udge

t allo

catio

n, p

rocu

rem

ent,

etc.

inst

ead

of h

avin

g to

ask

thei

r cen

tral o

ffice

for a

ppro

val o

n ev

ery

tiny

mat

ter.

< Fr

om th

e pe

rspe

ctiv

e of

acc

ount

abili

ty >

O

n th

e ot

her h

and,

dec

once

ntra

tion

and

dele

gatio

n m

ight

rem

ain

a pr

oble

m fr

om th

e pe

rspe

ctiv

e of

acc

ount

abilit

y.

• W

hile

dev

olut

ion

at le

ast t

heor

etic

ally

gua

rant

ees

acco

unta

bilit

y to

the

coun

cils

that

repr

esen

t the

loca

l soc

iety

, in

deco

ncen

tratio

n or

del

egat

ion,

acc

ount

abilit

y na

tura

lly g

oes

upw

ard.

The

refo

re, t

he q

uest

ion

here

is w

heth

er th

ere

are

any

way

s at

all

of e

nsur

ing

acco

unta

bilit

y to

the

loca

l res

iden

ts e

ven

in a

dec

once

ntra

tion

or d

eleg

atio

n ty

pe o

f sy

stem

.

< Fr

om th

e pe

rspe

ctiv

e of

a b

alan

ce b

etw

een

inst

itutio

nal r

efor

ms

and

abso

rptiv

e ca

paci

ty b

uild

ing>

In

stitu

tiona

l ref

orm

s to

app

ropr

iate

ly d

evol

ve a

utho

ritie

s to

LG

s ar

e ne

cess

ary.

Unt

il th

is h

appe

ns, a

uni

form

pol

icy

• an

d pr

ogra

mm

e de

fined

at t

he c

entra

l lev

el w

ill al

way

s be

mai

ntai

ned,

and

nei

ther

an “

inst

itutio

nal a

uton

omy”

that

pu

rsue

s se

rvic

e de

liver

y re

leva

nt to

the

spec

ific

cond

ition

s of

the

area

, nor

a “

resi

dent

ís a

uton

omy”

that

pur

sues

re

side

nt-d

riven

loca

l aut

onom

y, w

ill de

velo

p. F

urth

erm

ore,

with

out i

nstit

utio

nal r

efor

ms,

pro

gres

s w

ill no

t be

in

the

deve

lopm

ent o

f the

LG

ís a

bsor

ptiv

e ca

paci

ty.

In th

is re

spec

t, th

e ex

ampl

e of

Uga

nda

is n

otew

orth

y as

a c

ase

whe

re L

G c

apac

ity w

as g

radu

ally

dev

elop

ed th

roug

h th

e pr

ior i

mpl

emen

tatio

n of

dra

stic

inst

itutio

nal r

efor

ms.

On

the

othe

r han

d, p

rom

otin

g ra

pid

and

dras

tic in

stitu

tiona

l ref

orm

s w

ithou

t pay

ing

prop

er a

ttent

ion

to

• de

velo

pmen

t of t

he a

bsor

ptiv

e ca

paci

ty o

f the

LG

, will,

on

the

cont

rary

, pot

entia

lly in

a fa

tal d

isru

ptio

n or

sta

gnat

ion

of s

ervi

ces.

Sep

arat

ed m

odel

ver

sus

inte

rtw

ined

m

odel

of C

G-L

G r

elat

ions

hips

How

are

the

CG

-LG

rela

tions

hips

in

• su

perv

isio

n an

d m

ento

ring

for p

lann

ing,

bu

dget

ing,

ser

vice

del

iver

y op

erat

ions

, et

c.?

How

cle

ar is

the

CG

-LG

dem

arca

tion

• (d

ivis

ion

of ro

les)

? (d

egre

e of

sep

arat

ion)

< Im

port

ance

of t

echn

ical

bac

ksto

ppin

g fr

om C

G to

LG

s to

com

plem

ent L

Gís

defi

cien

t cap

acity

and

to

faci

litat

e th

e ca

paci

ty d

evel

opm

ent o

f LG

s>

Par

ticul

arly

in A

frica

n co

untri

es w

hich

hav

e lo

ng b

een

subj

ect t

o co

loni

al ru

le a

nd c

entra

lised

dic

tato

rshi

p ev

en

• af

ter t

hat,

the

adm

inis

trativ

e ca

paci

ty o

f LG

s ha

s no

t dev

elop

ed w

ell y

et c

ompa

red

to o

ther

regi

ons.

Hen

ce ju

st

bein

g “cl

ose

to re

side

nts”

will

not n

eces

saril

y m

ean

that

LG

s w

ill be

abl

e to

pro

vide

requ

ired

serv

ices

in a

n ef

fect

ive

and

appr

opria

te m

anne

r. In

suc

h ca

ses,

if a

LG

doe

s no

t hav

e en

ough

cap

acity

to a

ssum

e its

re

spon

sibi

litie

s, th

ere

need

s to

be

a sy

stem

that

com

plem

ents

and

sup

ports

the

said

LG

and

a s

uppo

rt sy

stem

for

prom

otin

g its

cap

acity

dev

elop

men

t, ev

en g

radu

ally.

8


3. A

ppro

pria

te s

ize

of

LGs,

and

the

leve

l of

the

LG b

asic

uni

t (c

ontin

ued)

The

impo

rtanc

e of

mul

tilay

ered

stru

ctur

es s

houl

d be

kep

t in

min

d w

hen

form

ing

coop

erat

ion

proj

ects

whe

ther

it is

•

sect

or s

uppo

rt or

sup

port

for d

ecen

tralis

atio

n re

form

s. N

ot o

nly

from

the

view

poin

t of t

he e

ffect

iven

ess

of s

ervi

ce

deliv

ery

but a

lso

from

its

effic

ienc

y an

d ac

coun

tabi

lity,

it is

rele

vant

to c

onsi

der a

mul

tilay

ered

app

roac

h fro

m th

e le

vel c

lose

to re

side

nts

to th

e le

vel m

anag

ing

the

plan

ning

and

impl

emen

tatio

n of

ser

vice

s. B

y ta

rget

ing

each

leve

l in

divi

dual

ly, it

is d

ifficu

lt to

gua

rant

ee e

ither

impa

ct o

r sus

tain

abilit

y.

4. A

void

ing

disp

ariti

es

betw

een

regi

ons

Hav

e di

spar

ities

aris

en b

etw

een

the

LGs

• in

poo

r rem

ote

area

s an

d th

e on

es in

mor

e af

fluen

t lar

ger c

ities

? (d

ispa

ritie

s in

the

qual

ity a

nd q

uant

ity o

f ser

vice

s,

attri

buta

ble

to h

uman

reso

urce

s, re

venu

e so

urce

s an

d ot

her f

acto

rs)

Dec

entra

lisat

ion

has

a fu

ndam

enta

l con

tradi

ctio

n in

it th

at h

as to

be

care

fully

dea

lt w

ith.

Whi

le th

ere

is a

gre

ater

•

need

for w

elfa

re a

nd o

ther

adm

inis

trativ

e se

rvic

es in

poo

rer r

emot

e ar

eas,

they

nat

ural

ly la

ck th

eir o

wn

sour

ces

of

reve

nue

to a

ttend

to th

ese

dem

ands

. Th

e pr

oble

m o

f how

bes

t to

tack

le th

is fu

ndam

enta

l que

stio

n of

how

to fi

nd a

co

mpr

omis

e be

twee

n de

cent

ralis

atio

n an

d na

tiona

l min

imum

sta

ndar

ds n

eeds

to b

e po

sitio

ned

as o

ne o

f the

in

disp

ensa

ble

elem

ents

of d

ecen

tralis

atio

n re

form

s.

< Fr

om th

e pe

rspe

ctiv

e of

equ

ity >

In

pus

hing

forw

ard

with

suc

h de

cent

ralis

atio

n re

form

s as

the

devo

lutio

n of

reve

nue

sour

ces,

dec

entra

lisat

ion

of

• hu

man

reso

urce

s m

anag

emen

t and

dev

olut

ion

of re

spon

sibi

lity

and

auth

ority

, we

mus

t bea

r in

min

d th

at w

e w

ill

inev

itabl

y en

coun

ter t

his

cont

radi

ctio

n. A

mea

sure

to e

nsur

e a

natio

nal m

inim

um s

tand

a rd

need

s to

be

cons

ider

ed

from

the

begi

nnin

g of

des

igni

ng th

e re

form

(For

furth

er d

etai

ls, s

ee 3

-2-5

).

5. E

xist

ence

of a

m

echa

nism

to

conv

ey th

e vi

ews

and

opin

ions

of

LGs

To w

hat e

xten

t are

ther

e ch

anne

ls fo

r •

repr

esen

ting

the

inte

rest

s of

LG

s to

the

CG

? (C

ounc

illors

, adm

inis

trativ

e of

ficer

s,

LG a

ssoc

iatio

ns, e

tc.)

This

asp

ect t

ends

to b

e fo

rgot

ten

in d

ecen

tralis

atio

n re

form

s. D

ecen

tralis

atio

n re

form

doe

s no

t int

end

to re

mov

e

• th

e lin

ks c

onne

ctin

g th

e C

G a

nd L

Gs:

rath

er, b

ecau

se o

f the

dec

entra

lised

stru

ctur

e, it

is e

ven

mor

e im

porta

nt to

en

sure

a m

echa

nism

to re

flect

loca

l nee

ds in

cen

tral p

olic

ies.

W

hen

budg

ets

and

bills

are

form

ulat

ed in

the

CG

, are

ther

e pe

rson

s or

inst

itutio

ns th

at a

re a

ble

to re

flect

loca

l •

inte

rest

s in

the

form

ulat

ion

proc

ess

(rat

her t

han

just

the

func

tiona

l ben

efits

of s

ecto

r min

istri

es)?

(Th

e ex

iste

nce

of

orga

nisa

tions

and

/or p

erso

ns, w

heth

er a

dmin

istra

tive

offic

ers

or e

ven

polit

icia

ns, w

ho a

re a

ble

to in

tegr

ate

loca

l ne

eds.

) E

ven

in J

apan

, the

Nat

iona

l Gov

erno

rs' A

ssoc

iatio

n ha

s on

ly re

cent

ly b

egun

to h

ave

clou

t. In

the

case

of

Uga

nda,

the

Min

istry

of L

G h

as re

lativ

ely

stro

ng p

ower

with

in th

e go

vern

men

t, an

d th

e LG

Ass

ocia

tion

perfo

rms

a

sign

ifica

nt ro

le a

s w

ell i

n C

G p

olic

y an

d ot

her d

ecis

ion

mak

ing.

On

the

othe

r ha n

d, fr

om a

mor

e da

y-to

-day

per

spec

tive,

the

follo

win

g tw

o qu

estio

ns a

re im

porta

nt:

How

are

the

• ne

eds

of lo

cal s

ocie

ty c

aptu

red

and

appr

ecia

ted

at th

e C

G o

ffice

r lev

el?

How

can

they

be

refle

cted

in th

eir

prog

ram

me

and

oper

atio

n? I

n th

is re

spec

t, Ja

paní

s ex

perie

nce

of a

n in

tertw

ined

CG

-LG

rela

tions

hip

coul

d be

re

leva

nt a

s an

exa

mpl

e of

mec

hani

sm to

ens

ure

CG

min

istri

es a

re in

form

ed o

f the

act

ual s

ituat

ion

and

need

s of

th

e lo

cal a

reas

thro

ugh

pers

onne

l exc

hang

es a

nd/o

r col

labo

ratio

n be

twee

n th

e C

G a

nd L

Gs.

6. C

lear

legi

slat

ion

on

the

dece

ntra

lised

st

ruct

ure

How

cle

arly

hav

e th

e C

G-L

G re

latio

nshi

ps

• an

d th

e re

spon

sibi

litie

s an

d au

thor

ity o

f the

LG

s be

en s

tipul

ated

in th

e co

nstit

utio

n an

d LG

Act

s?

The

actu

al e

ffect

iven

ess

of th

e re

form

s gr

eatly

dep

ends

on

whe

ther

or n

ot th

ey a

re c

lear

ly s

tipul

ated

in le

gisl

atio

n;

• th

e C

G-L

G re

latio

nshi

p as

wel

l as

the

dem

arca

tion

of L

Gsí

resp

onsi

bilit

ies/

auth

oriti

es.

If re

form

s ar

e im

plem

ente

d le

avin

g th

em u

ncle

ar, t

here

is a

dan

ger t

hat t

he re

form

s w

ill st

agna

te o

r bec

ome

diso

rder

ed, b

eing

con

tinua

lly

affe

cted

by

fact

ors

such

as

polic

y ch

ange

s an

d th

e re

sist

ance

of c

entra

l min

istri

es.

(Leg

isla

tion

is c

lear

in U

gand

a,

but s

till r

emai

ns a

cha

lleng

e in

Tan

zani

a.)

How

ever

, alth

ough

legi

slat

ion

is i m

porta

nt, t

here

nee

ds to

be

a m

echa

nism

for r

eflec

ting

the

view

s of

loca

l are

as in

•

the

form

ulat

ion

of s

uch

legi

slat

ion,

as

clar

ified

in th

e ab

ove

sect

ion

(1) 5

. “E

xist

ence

of a

mec

hani

sm to

con

vey

th

e vi

ews

and

opin

ions

of L

Gs ”

.

Issu

esC

heck

Poi

nts

Rem

arks


9

(2)

Fis

cal D

ecen

tral

isat

ion

Issu

esC

heck

Poi

nts

Rem

arks

1. S

ize

of th

e LG

bu

dget

s P

ropo

rtion

of L

G e

xpen

ditu

res

to to

tal

• go

vern

men

t exp

endi

ture

s Th

e fo

llow

ing

can

be g

iven

as

a m

eans

of m

easu

ring

the

degr

ee o

f dec

entra

lisat

ion:

Wha

t is

the

size

of t

he L

G

• bu

dget

s? W

hat p

ropo

rtion

of a

ll go

vern

men

t bud

gets

is a

ccou

nted

for b

y LG

bud

gets

and

by

the

CG

bud

get?

Fr

om th

ese,

we

can

asse

ss th

e le

vel o

f act

iven

ess/

vigo

rous

ness

of t

he L

Gs.

(For

exa

mpl

e, th

e ra

tio o

f CG

to L

G

expe

nditu

res

in J

apan

is 3

5:65

, whi

ch m

eans

that

LG

s ac

coun

t for

app

roxi

mat

ely

two

third

s of

the

tota

l.)

2. “

Rev

enue

A

uton

omy”

and

“E

xpen

ditu

re

Aut

onom

y”

Dep

ende

nce

on fi

scal

tran

sfer

s fr

om C

GW

hat i

s th

e ex

tent

of g

rant

s fro

m th

e C

G

• to

LG

s? W

hat p

ropo

rtion

of t

he o

vera

ll LG

bu

dget

do

they

con

stitu

te?

Wha

t is

the

prop

ortio

n of

unc

ondi

tiona

l gr

ants

?O

f all

the

gran

ts fr

om C

G, w

hat p

ropo

rtion

•

are

cond

ition

al g

rant

s (s

ubsi

dies

) and

wha

t pr

opor

tion

are

unco

nditi

onal

gra

nts?

“Rev

enue

aut

onom

y”

To w

hat e

xten

t doe

s th

e LG

hav

e its

ow

n •

sour

ces

of re

venu

e?

Deg

ree

of “

expe

nditu

re a

uton

omy”

For h

ow m

uch

of a

n LG

ís to

tal p

ublic

•

finan

ces

is it

free

to d

eter

min

e th

e pu

rpos

e of

use

? (u

n con

ditio

nal g

rant

s +

own

reve

nue

sour

ces)

Afte

r loo

king

at t

he s

ize

of L

G b

udge

ts a

bove

to e

xam

ine

the

activ

enes

s of

LG

s, th

e ne

xt a

spec

t to

look

at i

s

• th

e de

gree

of a

uton

omy

LGs

have

in d

eter

min

ing

how

thei

r bud

gets

are

allo

cate

d an

d us

ed.

The

exte

nt o

f the

LG

ís o

wn

sour

ces

of re

venu

e (lo

cal t

axes

) tog

ethe

r with

oth

er d

iscr

etio

nary

reve

nue

sour

ces

(suc

h as

un

cond

ition

al g

rant

s), i

s a

key

elem

ent o

f loc

al a

uton

omy.

< B

e aw

are

that

the

mea

ning

of “

fisca

l dec

entr

alis

atio

n” d

iffer

s be

twee

n Ja

pan

and

Afr

ica!

>O

ne s

houl

d no

te th

at, a

t pre

sent

, the

term

“fis

cal d

ecen

tralis

atio

n” a

s us

ed b

y va

rious

Afri

can

coun

tries

has

a

• di

ffere

nt m

eani

ng to

the

fisca

l dec

entra

lisat

ion

cont

aine

d in

the

so-c

alle

d “Tr

inity

Ref

orm

s” c

urre

ntly

bei

ng

prom

oted

and

dis

cuss

ed in

Jap

an.

In th

e “Tr

inity

Ref

orm

s”, fi

scal

dec

entra

lisat

ion

mea

ns th

e ac

quis

ition

of

“re

venu

e au

tono

my”

, tha

t is,

exp

andi

ng th

e in

depe

nden

t ow

n so

urce

s of

reve

nue

of L

Gs

by d

evol

ving

cer

tain

au

thor

ity fo

r tax

atio

n fro

m th

e C

G to

the

LGs.

In

cont

rast

, fisc

al d

ecen

tralis

atio

n in

Afri

ca la

rgel

y re

fers

to a

n in

crea

se in

LG

bud

gets

thro

ugh

CG

-LG

fisc

al tr

ansf

ers,

or i

n ot

her w

ords

, thr

ough

gra

nts.

< Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s: A

tten

tion

to u

ncon

ditio

nal g

rant

s, s

ince

it is

impo

rtan

t at l

east

to

atta

in “

Exp

endi

ture

Aut

onom

y” >

H

owev

er, a

t thi

s po

int,

atte

ntio

n ne

eds

to b

e gi

ven

to th

e fa

ct th

at th

ere

are

two

type

s of

gra

nts:

con

ditio

nal a

nd

• un

cond

ition

al.

Inde

ed c

ondi

tiona

l gra

nts

are

impo

rtant

for t

he C

G to

ens

ure

cons

iste

ncy

betw

een

the

natio

nal

stra

tegy

and

loca

l adm

inis

tratio

n by

con

ditio

ning

the

use

of th

ese

fund

s; b

ut, f

rom

the

pers

pect

ive

of

dece

ntra

lisat

ion

and

loca

l aut

onom

y, th

ere

are

draw

back

s in

that

they

leav

e lit

tle ro

om fo

r the

LG

to re

flect

the

parti

cula

r nee

d of

thei

r loc

al a

rea.

Con

sequ

ently

, eve

n if

gran

ts a

re in

crea

sed

and

LG b

udge

ts e

xpan

ded,

if th

ey

are

cond

ition

al g

r ant

s (s

ubsi

dies

) ear

mar

ked

for s

peci

fic p

urpo

ses,

ther

e is

littl

e ro

om fo

r dis

cret

ion

for L

Gs.

So

even

with

the

sam

e gr

ants

, effo

rts a

re m

ade

to in

crea

se th

e pr

opor

tion

of g

rant

s w

hich

do

not a

ttrac

t con

ditio

ns

and

for w

hich

the

LG is

free

to d

eter

min

e its

allo

catio

n. T

his

is c

alle

d “ex

pend

iture

aut

onom

y”.

In th

e A

frica

n co

ntex

t, th

is e

nsur

ing

of “

expe

nditu

re a

uton

omy”

is e

xtre

mel

y im

porta

nt fo

r sec

urin

g lo

cal a

uton

omy.

The

refo

re,

even

thou

gh th

ey a

re a

ll gr

ants

, it i

s fir

st im

pera

tive

to c

heck

the

prop

ortio

n of

unc

ondi

tiona

l gra

nts.

“E

xpen

ditu

re

auto

nom

y ” c

an b

e m

easu

red

usin

g th

e to

tal o

f ow

n re

venu

e so

urce

s (lo

cal t

axes

and

fees

, etc

.) to

geth

er w

ith

unco

nditi

onal

gra

nts.

< Fr

om th

e pe

rspe

ctiv

e of

equ

ity:

the

diffi

culty

of a

ttai

ning

“re

venu

e au

tono

my”

>

Nat

ural

ly, in

fisc

al d

ecen

tralis

atio

n, th

e id

eal f

orm

of a

uton

omy

is “

reve

nue

auto

nom

y” b

ased

on

the

LGsí

ow

n •

sour

ces

of re

venu

e. H

owev

er, i

n de

velo

ping

cou

ntrie

s, th

e ra

dica

l dev

olut

ion

of ta

xatio

n au

thor

ity to

LG

s w

ould

m

ake

it di

fficu

lt fo

r poo

r are

as to

sec

ure

reve

nue,

and

it w

ould

end

up

wid

enin

g re

gion

al d

ispa

ritie

s. A

ccor

ding

ly, in

ci

rcum

stan

ces

whe

re th

e re

gion

al e

cono

my

is s

till f

airly

imm

atur

e, ra

ther

than

pur

suin

g “re

venu

e au

tono

my”

all

of

a su

dden

, it i

s w

iser

to fi

rst p

riorit

ise

ensu

ring “

expe

nditu

re a

uton

omy”

.

10


2. “

Rev

enue

A

uton

omy”

and

“E

xpen

ditu

re

Aut

onom

y”

(con

tinue

d)

< Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s: H

owev

er, a

min

imum

leve

l of i

ts o

wn

reve

nue

sour

ces

is

indi

spen

sabl

e fo

r an

LG

>

How

ever

, bei

ng in

a s

ituat

ion

with

abs

olut

ely

no o

wn

reve

nue

sour

ces

is n

ot a

hea

lthy

situ

atio

n fo

r LG

s. I

n •

Uga

nda

and

Tanz

ania

, alm

ost a

ll lo

cal t

axes

wer

e ab

olis

hed,

and

con

sequ

ently

, the

re a

re s

uch

case

s oc

curr

ing

whe

re L

Gs

cann

ot h

old

coun

cil m

eetin

gs d

ue to

the

lack

of b

udge

t eve

n to

pay

allo

wan

ces

to th

e co

unci

llors

. It

is

also

fear

ed th

at a

poi

nt w

ill be

reac

hed

whe

reby

LG

s w

ill be

una

ble

to a

fford

thei

r con

tribu

tion

to L

G a

ssoc

iatio

ns,

and

the

asso

ciat

ion

activ

ities

will

stag

nate

. Th

ere

is n

o do

ubt t

hat a

min

imum

leve

l of o

wn

reve

nue

sour

ces

is

nece

ssar

y.

< Fr

om th

e pe

rspe

ctiv

e of

effi

cien

cy: T

he p

robl

em o

f too

man

y ty

pes

of g

rant

s >

A pr

oble

m o

ften

seen

in A

frica

n co

untri

es p

rom

otin

g fis

cal d

ecen

tralis

atio

n is

that

ther

e ar

e to

o m

any

type

s of

•

gran

ts.

In a

dditi

on to

dev

elop

men

t gra

nts

and

recu

rren

t gra

nts

for e

ach

sect

or, t

here

are

als

o va

rietie

s of

spe

cific

co

nditi

onal

gra

nts.

Cou

pled

with

bud

gets

for d

onor

coo

pera

tion

proj

ects

, the

re a

re a

n en

orm

ous

num

ber o

f ban

k ac

coun

ts a

nd fi

nanc

ial r

epor

ts th

at e

ach

LG h

as to

dea

l with

. Th

is h

as s

erio

us a

dver

se e

ffect

s on

the

effic

ienc

y of

LG

adm

inis

tratio

n. I

n bo

th U

gand

a an

d Ta

nzan

ia, e

fforts

are

und

erw

ay to

mak

e m

ore

gran

ts u

ncon

ditio

nal a

nd to

ra

tiona

lise

them

to m

ake

the

tota

l sys

tem

sim

pler

.

Dev

elop

men

t gra

nts

and

recu

rren

t gr

ants

A

s a

brea

kdow

n of

LG

gra

nts,

wha

t are

•

the

resp

ectiv

e ra

tios

of re

curr

ent

expe

nditu

res

and

deve

lopm

ent

expe

nditu

res?

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s an

d ef

ficie

ncy:

the

prob

lem

of i

ncon

sist

ency

bet

wee

n re

curr

ent

budg

ets

and

deve

lopm

ent b

udge

ts >

A

char

acte

ristic

of L

G g

rant

s in

Eas

t Afri

ca is

that

a d

istin

ctio

n is

mad

e be

twee

n gr

ants

for r

ecur

rent

exp

endi

ture

s •

and

gran

ts fo

r dev

elop

men

t exp

endi

ture

s. H

owev

er, i

n m

any

case

s, th

ere

is li

ttle

coor

dina

tion

betw

een

deve

lopm

ent g

rant

s, in

whi

ch g

rant

s ar

e al

loca

ted

acco

rdi n

g to

an

orde

r of p

riorit

y de

term

ined

by

loca

l vie

ws

and/

or c

onst

ituen

cies

, and

recu

rren

t fun

ds, w

hich

are

allo

cate

d ba

sed

on s

ecto

r pla

ns.

Suc

h ex

ampl

es in

clud

e Ta

nzan

iaís

LG

CD

G, b

ased

on

the

O&

OD

par

ticip

ator

y lo

cal d

evel

opm

ent p

lans

, and

Ken

yaís

CD

F. T

his

som

etim

es le

ads

to a

situ

atio

n in

whi

ch s

choo

ls o

r dis

pens

arie

s ar

e bu

ilt u

sing

dev

elop

men

t gra

nts,

but

sec

tor

recu

rren

t bud

gets

are

not

be i

ng s

ecur

ed to

ass

ign

staf

f to

wor

k at

thes

e co

nstru

cted

faci

litie

s to

man

age

the

actu

al

serv

ices

. A

maj

or is

sue

ther

efor

e is

coo

rdin

atio

n be

twee

n de

velo

pmen

t exp

endi

ture

s an

d re

curr

ent e

xpen

ditu

res.

Exi

sten

ce o

f oth

er s

peci

al g

rant

sA

re th

ere

any

spec

ific

polic

y-ba

sed

fund

•

allo

catio

ns fr

om C

G, s

uch

as p

over

ty

redu

ctio

n fu

nds,

AID

S fu

nds,

and

oth

er

earm

arke

d fu

nds?

< Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s >

Look

ing

at fi

scal

tran

sfer

s fro

m C

G, i

n ad

ditio

n to

the

ordi

nary

gra

nts

men

tione

d ab

ove,

rece

ntly,

fund

s su

ch a

s •

pove

rty re

duct

ion

fund

s, A

IDS

fund

s an

d th

e S

ocia

l Act

ion

Fund

s ha

ve a

ppea

red

by m

eans

of c

hann

els

diffe

rent

fro

m th

e or

dina

ry a

dmin

istra

tive

lines

. It

is a

lso

nece

ssar

y to

iden

tify

thes

e fu

nds.

D

iscu

ssio

ns o

n gr

ants

tend

to b

e ab

out p

rom

otin

g un

cond

ition

al g

rant

s fro

m th

e pe

rspe

ctiv

e of

“ex

pend

iture

•

auto

nom

y ” fo

r LG

s, n

one

the

less

, stra

tegi

c fis

cal t

rans

fers

with

car

eful

ly fo

cuse

d ob

ject

ives

are

als

o si

gnifi

cant

. Th

is p

oint

sho

uld

be d

uly

appr

ecia

ted.

On

the

othe

r han

d, m

echa

nism

s lik

e th

e S

ocia

l Act

ion

Fund

, whe

re fu

nds

go d

irect

ly to

com

mun

ities

byp

assi

ng

• th

e ch

anne

l of l

ocal

adm

inis

tratio

ns, i

nvol

ve ri

sks

of c

onfu

sing

the

LG a

dmin

istra

tion.

Issu

esC

heck

Poi

nts

Rem

arks


11

Cal

cula

tion

of L

G g

rant

s W

hat a

re th

e ca

lcul

atio

ns o

f LG

gra

nts

• ba

sed

on?

< Fr

om th

e pe

rspe

ctiv

es o

f equ

ity a

nd a

ccou

ntab

ility

: the

impo

rtan

ce o

f obj

ectiv

e an

d fa

ir ca

lcul

atio

n st

anda

rds

> In

Tan

zani

a, U

gand

a an

d va

rious

oth

er A

frica

n co

untri

es w

here

dec

entra

lisat

ion

has

been

pro

mot

ed, t

he d

egre

e of

•

depe

nden

ce o

f LG

bud

gets

on

fisca

l tra

nsfe

rs fr

om C

G (g

rant

s) h

as b

ecom

e ex

trem

ely

high

(alm

ost 9

0%).

In th

is

sens

e, th

e cr

iteria

(for

mul

a) u

sed

to c

alcu

late

how

gra

nts

are

allo

cate

d fa

irly

and

equi

tabl

y to

eac

h re

gion

will

be

com

e hi

ghly

impo

rtant

.In

Tan

zani

a, fo

rmul

a-ba

sed

gran

t allo

catio

n sy

stem

has

bee

n el

abor

ated

. A

s w

ell a

s us

ing

popu

latio

n, la

nd a

rea

• an

d po

verty

indi

ces

for t

hese

cal

cula

tions

, in

the

heal

th s

ecto

r for

inst

ance

, inf

ant m

orta

lity

rate

s ar

e us

ed, a

nd in

th

e ed

ucat

ion

sect

or, t

he n

umbe

r of c

hild

ren

rece

ivin

g pr

imar

y ed

ucat

ion

is u

sed.

Pre

viou

sly,

in m

any

Afri

can

coun

tries

, the

re w

as s

ever

e re

gion

al in

equi

ty a

nd u

nfai

rnes

s, c

ause

d by

the

arbi

trary

dis

tribu

tion

of re

sour

ces

base

d on

trib

es, p

oliti

cal p

artie

s or

oth

er fa

ctor

s. I

n th

ese

coun

tries

, it i

s re

volu

tiona

ry th

at b

reak

thro

ughs

hav

e be

en a

chie

ved

in th

ese

circ

umst

ance

s, a

nd fu

nds

for d

evel

opm

ent a

nd a

dmin

istra

tive

serv

ices

are

act

ually

re

achi

ng a

ll ar

eas

in a

som

ewha

t equ

itabl

e m

anne

r. It

wou

ld b

e no

exa

gger

atio

n to

say

that

, peo

ple

cons

ider

this

as

pect

as

the

mos

t sig

nific

ant p

ositi

ve p

rodu

ct o

f the

cur

rent

dec

entra

lisat

ion

refo

rms.

It i

s ho

ped

that

thes

e ki

nds

of s

yste

ms

will

func

tion

effe

ctiv

ely

and,

thro

ugh

the

clar

ifica

tion

of th

e ca

lcul

atio

n cr

iteria

, the

re w

ill be

furth

er

elim

inat

ion

of p

oliti

cally

-driv

en a

lloca

tions

.

< E

ffici

ency

vs.

equ

ity: m

erits

and

dem

erits

of p

erfo

rman

ce-b

ased

ince

ntiv

e sy

stem

> O

n th

e ot

her h

and,

Uga

nda

and

Tanz

ania

is tr

iallin

g th

e in

trodu

ctio

n of

a p

erfo

rman

ce-b

ased

ince

ntiv

e sy

stem

in

• w

hich

the

perfo

rman

ce o

f eac

h LG

has

bee

n ad

ded

as a

crit

eria

for c

alcu

latin

g th

eir g

rant

s. T

his

is e

xpec

ted

to

enco

urag

e se

lf-he

lp e

fforts

and

com

petit

ion

amon

g LG

s, a

nd to

faci

litat

e th

e ca

paci

ty d

evel

opm

ent o

f LG

s.

How

ever

, con

side

ring

the

real

ity th

at L

Gs

with

poo

r cap

acity

are

mos

tly th

ose

in p

oor r

emot

e ar

eas,

this

type

of

syst

em m

ight

inst

ead

acce

lera

te th

e br

oade

ning

of d

ispa

ritie

s . A

lthou

gh c

aref

ul a

rrang

emen

ts h

ave

been

mad

e so

th

at c

apac

ity b

uild

ing

gran

ts a

re ti

ed in

to th

e sy

stem

as

a m

easu

re to

elim

inat

e di

spar

ities

, an

eye

need

s to

be

kept

on

whe

ther

this

mea

sure

will

real

ly b

e ab

le to

elim

inat

e di

spar

ities

and

onl

y po

sitiv

e ou

tcom

es a

re d

eriv

ed fr

om it

.

3. E

xist

ence

of p

olic

y-ba

sed

fund

al

loca

tions

Are

ther

e sy

stem

s in

whi

ch fu

nds

are

• al

loca

ted

to th

e LG

s th

roug

h po

litic

ians

via

no

n-ad

min

istra

tion

chan

nels

?

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s an

d ef

ficie

ncy:

the

mer

its a

nd d

emer

its o

f CD

F >

In c

ount

ries

such

as

Ken

ya, i

n th

e pa

st, l

ocal

resi

dent

s us

ed to

rece

ive

hard

ly a

ny o

f the

ben

efits

of a

dmin

istra

tive

• se

rvic

es a

nd d

evel

opm

ent p

rogr

amm

es d

ue to

the

corr

uptio

n an

d dy

sfun

ctio

n of

the

bure

aucr

acy

of th

e C

G.

How

ever

, by

usin

g gr

ants

like

CD

F, in

whi

ch fu

nds

are

allo

cate

d by

con

stitu

ency

thro

ugh

polit

icia

ns ra

ther

than

th

roug

h ad

min

istra

tion

lines

, cas

es c

an b

e ob

serv

ed w

here

spe

cific

tang

ible

ben

efits

are

now

bei

ng re

alis

ed (f

or

info

rmat

ion

on C

DF,

see

2-4

-2 a

nd 2

-4-3

). O

n th

e ot

her h

and,

this

type

of fl

ow o

f fun

ds m

akes

the

chan

nels

of s

ervi

ces

even

mor

e co

mpl

ex, a

nd it

freq

uent

ly

• la

cks

cons

iste

ncy

with

sec

tor p

olic

ies

(for f

urth

er d

etai

ls, s

ee 1

(2) 2

. “D

evel

opm

ent g

rant

s an

d re

curr

ent g

rant

s” in

th

is ta

ble)

. In

man

y ca

ses,

ade

quat

e pr

oced

ures

hav

e no

t yet

bee

n es

tabl

ishe

d to

gua

rant

ee p

lann

ing,

prio

ritis

atio

n an

d •

impl

emen

tatio

n of

dev

elop

men

t pro

ject

s be

car

ried

out i

n a

dem

ocra

tic a

nd fa

ir m

anne

r, ba

sed

on a

n ob

ject

ive

need

s an

alys

is o

f the

com

mun

ity.

Furth

erm

ore,

in c

ases

whe

re th

e sc

hem

e is

inde

pend

ent f

rom

ord

inar

y lin

e m

inis

tries

and

tech

nica

l dep

artm

ents

of

• LG

s, p

robl

ems

frequ

ently

aris

e in

tech

nica

l bac

ksto

ppin

g in

form

ulat

ion

as w

ell a

s im

plem

enta

t ion,

incl

udin

g th

e su

bseq

uent

sta

ges

of s

ervi

ce m

anag

emen

t.

12


3. E

xist

ence

of

polic

y-ba

sed

fund

al

loca

tions

(c

ontin

ued)

< Fr

om th

e pe

rspe

ctiv

e of

acc

ount

abili

ty >

T

he la

ck o

f tr

ansp

aren

cy in

the

appo

intm

ent o

f co

mm

ittee

mem

bers

and

the

proc

ess

of s

elec

ting

area

s to

rec

eive

•

bene

fits

is o

ften

pro

blem

atic

.

< C

oncl

usio

n: T

his

mea

sure

sho

uld

be ju

stifi

ed o

nly

as a

n “e

mer

genc

y es

cape

” m

easu

re >

A

naly

sing

it f

rom

var

ious

asp

ects

, the

se k

inds

of

deve

lopm

ent g

rant

s th

at a

re r

emov

ed f

rom

adm

inis

trat

ive

lines

•

shou

ld b

e so

meh

ow e

xtra

ordi

nary

. In

the

case

of

Ken

ya, i

t had

bee

n in

a s

ituat

ion

whe

re s

ervi

ces

wer

e no

t re

achi

ng th

e re

side

nts

due

to th

e co

rrup

t str

uctu

re o

f th

e ad

min

istr

atio

n. W

hile

it c

an b

e ar

gued

that

the

sche

me

was

mea

ning

ful a

s an

“em

erge

ncy

esca

pe”

mea

sure

to o

verc

ome

this

situ

atio

n, it

will

eve

ntua

lly n

eed

to b

e in

tegr

ated

into

the

over

all p

roce

ss o

f ad

min

istr

ativ

e se

rvic

e pl

ans

and

to m

ake

it co

nsis

tent

with

rec

urre

nt f

unds

. T

here

hav

e be

en r

ecen

t mov

emen

ts to

intr

oduc

e C

DF

in T

anza

nia,

as

wel

l. H

owev

er, i

n a

coun

try

like

Tanz

ania

, •

whe

re d

ecen

tral

isat

ion

refo

rms

have

pro

gres

sed

fair

ly w

ell a

nd a

wel

l ela

bora

ted

form

ula-

base

d gr

ant a

lloca

tion

syst

em h

as b

een

deve

lope

d w

ith c

lear

cal

cula

tion

met

hods

, the

re a

ppea

rs to

be

little

just

ifica

tion

for

the

intr

oduc

tion

of C

DF.

In

othe

r co

untr

ies

as w

ell,

the

intr

oduc

tion

of s

uch

fund

cha

nnel

s re

quir

es c

aref

ul

judg

emen

t, ba

sed

on a

thor

ough

und

erst

andi

ng o

f its

nat

ure.

4. A

ccou

ntab

ility

on

budg

et a

lloca

tion

To w

hom

is a

ccou

ntab

ility

dire

cted

•

conc

erni

ng lo

cal b

udge

t allo

catio

n?<

From

the

pers

pect

ive

of a

ccou

ntab

ility

>

In U

gand

a, th

e bu

dget

ing

auth

ority

has

bee

n de

volv

ed to

LG

s, a

nd in

suc

h ca

ses,

com

pare

d to

oth

er c

ount

ries,

•

loca

l acc

ount

abilit

y is

cle

arer

.O

n th

e ot

her h

and,

in s

ituat

ions

whe

re L

G fi

nanc

e is

larg

ely

depe

nden

t on

CG

fisc

al tr

ansf

ers,

acc

ount

abilit

y te

nds

• to

be

dire

cted

upw

ards

to th

e pa

tr on,

nam

ely

the

CG

, and

this

situ

atio

n im

pede

s th

e au

tono

my

of L

Gs.

In

cou

ntrie

s su

ch a

s K

enya

, whe

re th

ere

is a

cen

tralis

ed s

truct

ure

in w

hich

LG

bud

gets

are

det

erm

ined

and

•

cont

rolle

d at

the

cent

re o

f eac

h se

ctor

min

istry

, acc

ount

abilit

y fo

r loc

al b

udge

t allo

catio

n is

onl

y di

rect

ed to

war

d th

e ce

ntre

of e

ach

min

istry

. The

re is

virt

ually

no

acco

unta

bilit

y to

loca

l cou

ncils

and

loca

l res

iden

ts.

5. C

apac

ity o

f LG

s to

m

anag

e pu

blic

fin

ance

s

Are

LG

s su

ffici

ently

equ

ippe

d w

ith th

e •

capa

city

to m

anag

e th

e pu

blic

fina

nces

de

volv

ed to

them

?

<Fro

m th

e pe

rspe

ctiv

e of

effi

cien

cy a

nd a

ccou

ntab

ility

>A

lthou

gh it

is g

ood

in p

rinci

ple

to p

rom

ote

eith

er “

reve

nue

auto

nom

y” o

r “ex

pend

iture

aut

onom

y”, t

his

mig

ht ra

ther

•

lead

to c

haos

and

a w

orse

ning

of t

he p

erfo

rman

ce o

f ser

vice

del

iver

y if

the

LG d

oes

not h

ave

adeq

uate

fina

ncia

l m

anag

emen

t cap

aciti

es.

It w

ill ha

mpe

r acc

ount

abilit

y as

wel

l.

<Fro

m th

e pe

rspe

ctiv

e of

bal

ance

bet

wee

n in

stitu

tiona

l ref

orm

s an

d th

e de

velo

pmen

t of L

G a

bsor

ptiv

e ca

paci

ties>

Whe

n pr

omot

ing

fisca

l dec

entra

lisat

ion,

it is

impo

rtant

to s

ecur

e su

ffici

ent c

apac

ity d

evel

opm

ent f

or L

Gs.

• Th

ere

are

case

s w

here

cap

acity

dev

elop

men

t has

bee

n ad

vanc

ed th

roug

h th

e in

trodu

ctio

n of

per

form

ance

-bas

ed

• in

cent

ive

syst

ems

for g

rant

allo

catio

n.

Issu

esC

heck

Poi

nts

Rem

arks


13

(3)

Dec

entr

alis

atio

n of

hum

an r

esou

rces

man

agem

ent

Issu

esC

heck

Poi

nts

Rem

arks

1. B

asic

info

rmat

ion:

N

umbe

r of

pe

rson

nel a

ssig

ned

to L

Gs

and

thei

r ca

paci

ty

How

man

y pe

rson

nel h

ave

been

ass

igne

d •

to L

Gs?

(In

eac

h se

ctor

? In

eac

h de

partm

ent?

Are

eac

h of

them

fully

st

affe

d?)

In c

ases

whe

re lo

cal a

dmin

istra

tive

• se

rvic

es a

re p

rovi

ded

by th

e lo

cal b

ranc

h of

fices

of t

he C

G, h

ow m

any

staf

f are

em

ploy

ed in

thes

e of

fices

? H

as a

n ap

prop

riate

num

ber o

f sta

ff be

en

• as

sign

ed in

acc

orda

nce

with

the

resp

onsi

bilit

ies

and

auth

ority

that

hav

e be

en d

evol

ved?

O

n w

hat b

asis

is th

e ca

paci

ty o

f the

sta

ff •

assi

gned

in L

Gs?

(aca

dem

ic b

ackg

roun

d,

skills

, exp

erie

nces

, etc

.)

Look

ing

at th

e st

affin

g in

the

loca

l adm

inis

tratio

n (L

Gs,

loca

l bra

nch

offic

es o

f CG

) of A

frica

n co

untri

es, i

t is

• co

nspi

cuou

s th

at th

ey a

re in

an

extre

mel

y di

fficu

lt si

tuat

ion,

in te

rms

of b

oth

staf

fing

num

bers

and

abi

lity.

It i

s no

t po

ssib

le to

exp

ect t

hat s

ervi

ces

can

be c

over

ed b

y su

ch a

li mite

d st

aff c

apac

ity.

Thus

, the

fund

amen

tal i

ssue

is to

fir

st a

cqui

re o

bjec

tive

data

on

the

dutie

s th

at th

e lo

cal a

dmin

istra

tion

is e

xpec

ted

to p

erfo

rm, c

ompa

red

with

the

leve

l of i

ts s

taffi

ng, b

efor

e de

batin

g fo

r eith

er d

ecen

tralis

atio

n or

cen

tralis

atio

n. I

t sho

uld

be o

bvio

us th

at

dece

ntra

lisat

ion

cann

ot b

e a

solu

tion

at a

ll in

this

rega

rd.

In th

e ca

se o

f cou

ntrie

s su

ch a

s Ta

nzan

ia a

nd U

gand

a, w

h ere

the

loca

l adm

inis

tratio

n is

div

ided

into

two

or m

ore

• la

yers

, it i

s ne

cess

ary

to o

btai

n in

form

atio

n on

eac

h re

spec

tive

leve

l. O

n th

e ot

her h

and,

in K

enya

, LG

s ex

ist i

n pa

ralle

l with

Dis

trict

adm

inis

tratio

ns (l

ocal

bra

nch

offic

es o

f the

CG

) and

loca

l offi

ces

of d

iffer

ent m

inis

tries

, and

fro

m th

e pe

rspe

ctiv

e of

ser

vice

del

iver

y, it

is th

is la

tter p

air t

hat p

lays

the

dom

inan

t rol

e. I

n su

ch c

ases

, it i

s im

porta

nt to

obt

ain

info

rmat

ion

on th

ese

CG

bra

nch

offic

es a

s w

ell.

2. D

evol

utio

n of

hu

man

res

ourc

es

man

agem

ent

auth

ority

(r

ecru

itmen

t, ap

poin

tmen

ts,

tran

sfer

s,

prom

otio

ns,

wor

king

con

ditio

ns,

etc.

)

Who

(CG

or L

G) h

as th

e po

wer

to m

ake

• de

cisi

ons

over

LG

offi

cial

s (h

ire a

nd fi

re,

prom

otio

ns, a

ssig

nmen

ts, t

rans

fers

, sa

larie

s, s

ervi

ce re

gula

tions

, etc

.)?

With

rega

rd to

the

recr

uitm

ent o

f LG

•

offic

ials

, hav

e di

spar

ities

in s

ecur

ing

pers

onne

l aris

en b

etw

een

LGs

in la

rge

citie

s an

d th

ose

in in

conv

enie

nt p

oor

area

s?

Hav

e an

y m

easu

res

been

take

n to

avo

id

• re

gion

al d

ispa

ritie

s re

late

d to

hum

an

reso

urce

s, s

uch

as th

e po

olin

g of

pe

rson

nel a

t the

CG

?

Mer

its o

f dev

olvi

ng p

erso

nnel

man

agem

ent a

utho

rity

Th

e fo

llow

ing

desc

ribes

the

pote

ntia

l mer

its o

f dev

olvi

ng p

erso

nnel

man

agem

ent a

utho

rity

to L

Gs:

•

By

havi

ng th

e ac

coun

tabi

lity

of e

ach

offic

er fo

r the

ir w

ork

dire

cted

to th

e LG

as

thei

r em

ploy

er, t

he tr

ansp

aren

cy

¾¾

of o

pera

tions

is im

prov

ed fo

r loc

al re

side

nts.

Thi

s si

tuat

ion

also

mot

ivat

es o

ffice

rs to

dev

ote

them

selv

es a

nd

cont

ribut

e to

thei

r LG

s1 . Th

is w

ill en

able

LG

s to

em

ploy

and

ass

ign

the

nece

ssar

y pe

rson

nel i

n ac

cord

ance

with

thei

r ow

n pl

an a

nd

¾¾

spec

ific

loca

l nee

ds.

This

situ

atio

n is

exp

ecte

d to

impr

ove

the

over

all m

anag

emen

t of L

Gs.

A

s a

resu

lt of

bei

ng a

ble

to e

mpl

oy s

taff

on th

eir o

wn,

LG

s w

ill be

abl

e to

hire

thos

e w

ho a

re fr

om th

e sa

me

loca

l ¾¾

area

and

/or t

hose

who

hav

e a

good

und

erst

andi

ng o

f act

ual c

ondi

tions

of t

he a

rea2 .

It is

als

o ex

pect

ed to

ex

pedi

te fi

lling

vaca

nt p

ositi

ons

by b

eing

abl

e to

com

plet

e th

e w

hole

pro

cess

with

in th

e LG

itse

lf.

1 In

Ken

ya, w

hich

has

a c

entr

alis

ed p

erso

nnel

sys

tem

, the

loca

l adm

inis

trat

ion

staf

f of

ten

pref

er to

rec

eive

a n

atio

nal s

tand

ard

trai

ning

pac

kage

inst

ead

of ta

ilor-

mad

e tr

aini

ng w

ith r

efer

ence

to

the

spec

ific

nee

ds o

f th

e re

gion

whe

re th

ey a

re s

ervi

ng.

Thi

s is

bec

ause

the

staf

f ar

e m

ore

inte

rest

ed in

lear

ning

som

ethi

ng u

sefu

l for

thei

r pr

omot

ion

with

a p

ossi

ble

tran

sfer

to o

ther

reg

ions

, ra

ther

than

impr

ovin

g th

eir

curr

ent (

and

tem

pora

ry)

task

s as

sign

ed a

t the

mom

ent t

o th

at s

peci

fic

regi

on.

whe

n ex

amin

ing

pers

onne

l tra

inin

g pl

ans,

eve

n if

the

trai

ning

pro

pose

d by

CG

dea

ls

with

exp

ertis

e ad

apte

d to

act

ual l

ocal

cir

cum

stan

ces

rath

er th

an a

nat

iona

lly u

nifo

rm tr

aini

ng p

acka

ge, t

he p

lans

are

oft

en r

ejec

ted

by th

e st

aff

them

selv

es, c

iting

that

they

are

for

the

purp

ose

of im

prov

ing

the

serv

ices

for

loca

l res

iden

ts.

Thi

s is

a s

peci

fic

exam

ple

of w

hy c

entr

alis

ed p

erso

nnel

man

agem

ent c

anno

t ful

ly a

ddre

ss r

egio

n-sp

ecif

ic n

eeds

. 2

In c

ontr

ast,

in U

gand

a, t

here

are

als

o ne

gativ

e in

dica

tions

tha

t, as

a r

esul

t of

the

tho

roug

h de

cent

ralis

atio

n of

hum

an r

esou

rce

man

agem

ent,

recr

uitm

ent

ende

d up

bei

ng l

imite

d to

loc

al

hum

an r

esou

rces

, and

with

out s

timul

atio

n fr

om o

ther

reg

ions

ther

e w

ill b

e no

mor

e br

oad-

min

ded

inno

vativ

e id

eas

bein

g pu

t for

war

d (f

or f

urth

er d

etai

ls, s

ee 2

-2-7

).

14


2. D

evol

utio

n of

hu

man

res

ourc

es

man

agem

ent

auth

ority

(r

ecru

itmen

t, ap

poin

tmen

ts,

tran

sfer

s,

prom

otio

ns,

wor

king

con

ditio

ns,

etc.

) (co

ntin

ued)

In m

any

Afri

can

coun

tries

, the

issu

e of

the

• re

conc

iliatio

n of

diff

eren

t trib

es to

ach

ieve

an

d m

aint

ain

natio

nal u

nity

is a

maj

or

chal

leng

e. T

here

is a

cer

tain

con

cern

that

th

e ris

k of

the

dece

ntra

lizat

ion

of h

uman

re

sour

ces

man

agem

ent m

ay le

ad to

the

fragm

enta

tion

of th

e na

tion

by tr

ibal

ism

.

Mat

ters

req

uiri

ng a

tten

tion

in th

e de

volu

tion

of p

erso

nnel

man

agem

ent a

utho

rity

<

From

the

pers

pect

ives

of e

ffec

tiven

ess

and

effic

ienc

y >

Hum

an re

sour

ces

man

agem

ent i

s no

t an

easy

task

. Th

e fo

llow

ing

ques

tions

hav

e to

be

answ

ered

:•

To s

tart

with

, can

eac

h LG

est

ablis

h m

echa

nism

s to

ens

ure

recr

uitm

ent o

f wel

l qua

lified

you

ths

and

mob

ilisin

g ¾¾

thei

r max

imum

cap

aciti

es to

get

the

best

per

form

ance

by

mot

ivat

ing

them

suf

ficie

ntly

?C

an L

Gs

attra

ct y

oung

cap

able

peo

ple

to c

ome

to w

ork

for t

hem

, esp

ecia

lly in

fiel

ds w

ith h

igh

spec

ialit

ies

and

¾¾

qual

ifica

tions

?D

o LG

s ha

ve s

uffic

ient

kno

w-h

ow to

be

able

to s

elec

t and

app

oint

the

appr

opria

te p

erso

ns fo

r the

resp

ectiv

e ¾¾

post

s?

Furth

erm

ore,

from

the

pers

pect

ive

of in

cent

ives

and

car

eer d

evel

opm

ent a

s pr

ofes

sion

als,

the

dece

ntra

lisat

ion

of

• hu

man

reso

urce

s m

anag

emen

t dep

rives

peo

ple

of o

ppor

tuni

ties

for p

rom

otio

n to

the

CG

and

lim

its th

eir s

pher

e of

po

tent

ial w

ithin

a s

mal

l wor

ld o

f tha

t par

ticul

ar L

G.

As

a m

atte

r of f

act,

in U

gand

a an

d Ta

nzan

ia, t

his

tend

ency

was

co

nfir m

ed a

mon

g he

alth

sec

tor e

mpl

oyee

s an

d ot

her s

imila

r are

as w

here

ther

e ar

e a

limite

d nu

mbe

r of h

ighl

y sp

ecia

lised

pos

ition

s.

< Fr

om th

e pe

rspe

ctiv

e of

equ

ity/n

atio

nal u

nity

>

Are

LG

s in

poo

r rem

ote

area

s w

here

life

is p

artic

ular

ly h

arsh

, not

faci

ng d

ifficu

lties

in s

ecur

ing

staf

f? H

ave

som

e •

mea

sure

s be

en ta

ken

to a

vert

this

? (p

robl

em o

f reg

iona

l dis

parit

ies

in h

uman

reso

urce

s am

ong

LGs)

O

win

g al

so to

the

diffi

culti

es o

utlin

ed a

bove

, the

app

oint

me n

t of t

op e

xecu

tive

staf

f in

LGs

reve

rted

back

to th

e •

CG

ís re

spon

sibi

lity

in b

oth

Tanz

ania

(Cou

ncil

Dire

ctor

s) a

nd U

gand

a (C

hief

Adm

inis

trativ

e O

ffice

rs).

In a

dditi

on, i

n Ta

nzan

ia, t

he h

eads

of t

echn

ical

dep

artm

ents

, suc

h as

edu

catio

n, h

ealth

and

agr

icul

ture

, are

now

als

o ap

poin

ted

cent

rally

. A

lthou

gh th

e ce

ntra

l app

oint

men

t of h

igh-

rank

ing

offic

ials

goe

s ag

ains

t the

prin

cipl

e of

dec

entra

lisat

ion,

th

e re

ality

is p

erha

ps th

at th

e ab

ovem

entio

ned

cond

ition

s m

ake

the

situ

atio

n di

fficu

lt.

< E

ffec

tiven

ess:

neg

ativ

e im

pact

s of

the

dece

ntra

lisat

ion

of p

erso

nnel

man

agem

ent a

utho

rity

> Fu

rther

mor

e, a

s ca

n be

see

n in

the

exam

ple

of K

enya

, the

re is

a d

ange

r tha

t ina

ppro

pria

te a

nd d

ubio

us

• re

crui

tmen

t and

man

agem

ent o

f hum

an re

sour

ces

may

bec

ome

wid

espr

ead

owin

g to

the

influ

ence

of l

ocal

bo

sses

. C

larif

ying

th

e cr

iteria

for r

ecru

itmen

t of p

erso

nnel

at t

he L

G le

vel i

s al

so im

porta

nt to

avo

id th

is k

ind

of p

robl

em.

In U

gand

a, u

p un

til re

cent

ly, th

e hi

re a

nd fi

re re

spon

sibi

lity

of th

e LG

CA

Os

had

been

dev

olve

d to

the

LGs.

The

re

• w

as a

suc

cess

ion

of C

AO

dis

mis

sals

by

coun

cils

, and

freq

uent

ly th

ey w

ere

brou

ght t

o th

e co

urt a

s cl

aim

s of

unf

air

dism

issa

l. W

hile

this

ear

ned

criti

cism

as

an a

buse

of p

ower

on

the

part

of lo

cal c

ounc

ils, t

his

case

can

als

o be

se

en a

s so

me

nece

ssar

y pr

oces

s of

“tri

al a

nd e

rror” l

eadi

ng u

p to

mat

urity

that

dev

elop

s w

hen

expe

rienc

ing

a ne

w

syst

em.

Nev

erth

eles

s, th

is s

ituat

ion

resu

lted

in th

e “re

cent

ralis

atio

n” o

f the

app

oint

ing

auth

ority

for t

he to

p bu

reau

crat

s of

LG

s. T

his

kind

of e

xper

ienc

e m

ight

ser

ve a

s a

usef

ul re

fere

nce

for o

ther

cou

ntrie

s w

hen

they

are

co

nsid

erin

g th

e de

volu

tion

of a

utho

rity

over

per

sonn

el m

anag

emen

t.

Exi

sten

ce o

f mea

sure

s to

red

ress

the

shor

tcom

ings

in th

e de

volu

tion

of p

erso

nnel

man

agem

ent a

utho

rity

Th

e fo

llow

ing

can

be c

onsi

dere

d as

mea

sure

s fo

r sec

urin

g co

mpe

tent

per

sonn

el fo

r LG

s an

d fo

r elim

inat

ing

the

• hu

man

reso

urce

s di

spar

ities

bet

wee

n LG

s:

Issu

esC

heck

Poi

nts

Rem

arks


15

mak

e sa

larie

s m

ore

attra

ctiv

e;

¾¾

prov

ide

a re

mot

e ar

ea a

llow

ance

, etc

.; ¾¾

prov

ide

an o

ffici

al re

side

nce

or g

ive

cons

ider

atio

n to

sec

urin

g a

mea

ns o

f tra

nspo

rt.¾¾ In

add

ition

to th

ese

ince

ntiv

es, J

apan

and

som

e ot

her c

ount

ries

used

to h

ave

a m

easu

re to

tack

le w

ith th

is

• pr

oble

m b

y m

aint

aini

ng a

poo

l of C

G s

taff

to b

e as

sign

ed to

LG

s th

at la

ck s

uffic

ient

per

sonn

el fo

r im

porta

nt p

osts

. 3

Thes

e ar

rang

emen

ts s

erve

d at

the

sam

e tim

e to

ass

ist i

n th

e ca

paci

ty d

evel

opm

ent o

f LG

s th

roug

h th

e tra

nsfe

r of

expe

rtise

from

the

CG

to th

e LG

s, a

nd a

s a

chan

nel f

or th

e C

G to

lear

n th

e re

aliti

es o

f loc

al a

reas

.

3. H

uman

res

ourc

es

deve

lopm

ent

syst

em fo

r LG

pe

rson

nel

Who

is c

ondu

ctin

g tra

inin

g fo

r LG

offi

cial

s,

• an

d ho

w is

it b

eing

con

duct

ed?

Is th

e tra

inin

g of

loca

l pub

lic s

erva

nts

• po

sitio

ned

as p

art o

f an

over

all p

erso

nnel

m

anag

emen

t sys

tem

, suc

h as

by

linki

ng it

to

the

prom

otio

n sy

stem

and

to o

ther

in

cent

ives

?

Iden

tify

how

the

train

ing

syst

em fo

r LG

per

sonn

el is

func

tioni

ng u

nder

the

dece

ntra

lisat

ion

refo

rms.

•

The

adva

ntag

e of

dev

olvi

ng a

utho

rity

over

the

train

ing

of L

G p

erso

nnel

is th

at it

allo

ws

LGs

to id

entif

y an

y de

ficie

nt

• ca

paci

ty in

thei

r ow

n st

aff,

and

to c

ondu

ct ju

st th

e rig

ht a

mou

nt o

f cap

acity

bui

ldin

g, in

a v

enue

nea

r the

ir w

orkp

lace

with

out a

ffect

ing

thei

r wor

k to

o m

uch.

H

owev

er, u

nlik

e de

velo

ped

natio

ns, i

t wou

ld h

ardl

y be

real

istic

for e

ach

LG to

hav

e its

ow

n tra

inin

g fa

cilit

ies,

at

• le

ast i

n th

e sh

ort t

erm

. In

stea

d, fi

rst,

it is

nec

essa

ry to

iden

tify

all t

he p

ossi

ble

train

ing

prov

ider

s in

the

coun

try

such

as

the

cent

ral m

inis

tries

, uni

vers

ities

, priv

ate-

sect

or in

stitu

tions

and

oth

ers,

and

to id

entif

y th

e ki

nds

of

know

-how

that

eac

h of

them

can

tran

sfer

(sup

ply

side

), an

d ev

entu

ally

dev

elop

a n

atio

nal s

yste

m fo

r the

pro

visi

on

of tr

aini

ng fo

r the

LG

per

sonn

el.

In a

dditi

on, i

t is

impo

rtant

that

eac

h LG

iden

tify

its o

wn

train

ing

need

s (d

eman

d si

de),

so th

at th

ey re

flect

thes

e ne

eds

in th

eir o

wn

train

ing

plan

s, a

nd th

at th

ey c

an a

cqui

re th

e ca

paci

ty to

con

tract

th

ese

form

s of

trai

ning

to th

e ab

ovem

entio

ned

prov

ider

s. I

n Ta

nzan

ia a

nd U

gand

a, th

e LG

CB

G s

yste

m, w

hich

w

as e

stab

lishe

d to

geth

er w

ith u

ncon

ditio

nal d

evel

opm

ent g

rant

s su

ch a

s LG

CD

G a

nd L

GD

P, c

an b

e re

gard

ed a

s a

syst

em th

at g

uara

ntee

s th

e fin

anci

al a

spec

ts o

f tur

ning

this

type

of c

once

pt in

to a

real

ity.

Furth

erm

ore,

with

a v

iew

to e

nsur

ing

natio

nal s

tand

ards

, the

re is

als

o a

need

to s

trate

gica

lly p

lan

the

capa

city

•

build

ing

of L

G p

erso

nnel

at t

he c

entr a

l lev

el, i

n lin

e w

ith th

e co

ntex

t of d

ecen

tralis

atio

n re

form

s. I

n th

e sh

ort t

erm

, it

seem

s th

at e

stab

lishi

ng a

trai

ning

inst

itute

for l

ocal

pub

lic s

erva

nts

at th

e ce

ntra

l lev

el w

ill al

so b

e ef

fect

ive4 .

4. C

apac

ity b

uild

ing

of

LG p

erso

nnel

th

roug

h te

chni

cal

back

stop

ping

and

th

e tr

ansf

er o

f te

chni

cal k

now

-how

fr

om h

ighe

r le

vels

of

gov

ernm

ent

(sys

tem

that

gu

aran

tees

OJT

)

To w

hat e

xten

t is

ther

e te

chni

cal

• ba

ckst

oppi

ng fo

r LG

s fro

m th

e hi

gher

le

vels

of g

over

nmen

t? 5

And

, to

wha

t ex

tent

doe

s th

is c

ontri

bute

to

the

capa

city

bui

ldin

g of

LG

per

sonn

el?

Apa

rt fro

m th

e ab

ove,

are

ther

e an

y ot

her

• m

echa

nism

s to

tran

sfer

kno

w-h

ow

accu

mul

ated

in th

e C

G to

LG

per

sonn

el?

(OJT

thro

ugh

CG

-LG

per

sonn

el

exch

ange

s an

d te

chni

cal b

acks

topp

ing,

O

JT th

roug

h C

G-L

G c

olla

bora

tion,

etc

.)

Dur

ing

the

early

sta

ges

of d

ecen

tralis

atio

n, it

is im

porta

nt to

bui

ld a

tech

nica

l bac

ksto

ppin

g sy

stem

from

hig

her

• le

vel o

rgan

isat

ions

in o

rder

to c

over

for a

ny d

efici

enci

es in

loca

l ca p

acity

and

to g

uara

ntee

the

qual

ity o

f ad

min

istra

tive

serv

ices

. Th

is p

oint

can

als

o be

see

n in

the

sect

ions

(4) “

Dec

entra

lisat

ion

of th

e de

velo

pmen

t pl

anni

ng p

roce

ss” a

nd (5

) “D

evol

utio

n of

ser

vice

s im

plem

enta

tion”

in th

is ta

ble.

Jap

anís

exp

erie

nce

in “

Age

ncy

Del

egat

ed F

unct

ions” s

peak

s el

oque

ntly

of t

he u

sefu

lnes

s of

this

tech

nica

l bac

ksto

ppin

g ex

erci

se a

s a

high

ly

effe

ctiv

e m

easu

re o

f OJT

for t

he c

apac

ity d

evel

opm

ent o

f LG

per

sonn

el.

It go

es w

ithou

t say

ing

that

ord

inar

y tra

inin

g is

nec

essa

ry fo

r the

cap

acity

bui

ldin

g of

LG

per

sonn

el, b

ut o

n to

p of

this

, pro

vidi

ng a

s m

any

oppo

rtuni

ties

for O

JT a

s po

ssib

le is

ext

rem

ely

effe

ctiv

e. V

erify

the

exte

nt to

whi

ch th

ese

kind

s of

mec

hani

sms

and

arra

ngem

ents

ex

ist.

Japa

nís

expe

rienc

e sh

ow th

at e

ffect

ive

mea

ns fo

r OJT

for L

G p

erso

nnel

incl

ude;

per

sonn

el e

xcha

nges

bet

wee

n

• th

e C

G a

nd L

Gs,

and

the

prac

tice

of C

G-L

G c

olla

bora

tion

in in

tertw

ined

sys

tem

s. I

t is

alw

ays

impo

rtant

to

cons

ider

how

to m

ake

max

imum

use

of t

he k

now

-how

, exp

erie

nce

and

tech

nolo

gy th

at h

as b

een

built

up

at th

e C

G w

ithin

the

coun

try to

be

trans

ferr

ed to

LG

s, b

efor

e th

inki

ng o

f lea

rnin

g fro

m a

broa

d.

3 In

add

ition

to v

ario

us a

llow

ance

s, o

ther

com

pens

ativ

e in

cent

ives

hav

e be

en p

repa

red

for

thes

e se

cond

ed p

erso

nnel

, suc

h as

sub

sequ

ent p

rom

otio

ns a

nd th

e pr

ovis

ion

of tr

aini

ng o

ppor

tuni

ties.

4

In T

anza

nia,

a p

roje

ct is

bei

ng f

orm

ulat

ed f

or J

ICA

ís c

oope

ratio

n, to

iden

tify

supp

ly s

ide

capa

citie

s an

d ex

amin

e th

e tr

aini

ng n

eeds

of

LG

s as

dem

and

side

info

rmat

ion,

in o

rder

to e

vent

ually

de

velo

p a

natio

nal t

rain

ing

stra

tegy

for

LG

per

sonn

el a

nd to

sup

port

the

deve

lopm

ent o

f an

LG

trai

ning

inst

itute

. 5

For

info

rmat

ion

on te

chni

cal b

acks

topp

ing,

see

3-2

-1 (

2), (

3) a

nd 3

-2-2

(4)

.

16


(4)

Dec

entr

alis

atio

n of

the

dev

elop

men

t pl

anni

ng p

roce

ss

Issu

esC

heck

Poi

nts

Rem

arks

1. P

lann

ing

proc

ess

Mod

es o

f dec

entr

alis

atio

n of

the

plan

ning

pro

cess

W

ho fo

rmul

ates

loca

l dev

elop

men

t pla

ns,

• an

d th

roug

h w

hat m

echa

nism

s ar

e th

ey

form

ulat

ed?

Wha

t is

the

natu

re a

nd s

cope

of t

he p

lans

•

elab

orat

ed b

y ea

ch la

yer o

f CG

and

LG

?To

wha

t ext

ent i

s th

ere

tech

nica

l •

back

stop

ping

from

hig

her l

evel

s of

go

vern

men

t in

the

form

ulat

ion

of lo

cal

plan

s?

< M

ains

trea

med

bot

tom

-up

plan

ning

pro

cess

> R

ecen

tly m

any

Afri

can

coun

tries

hav

e co

mm

ence

d at

tem

pts

to fo

rmul

ate

loca

l dev

elop

men

t pla

ns w

ith b

otto

m-u

p •

proc

ess

in e

ach

regi

on.

Com

pare

d to

the

conv

entio

nal p

lann

ing

proc

ess

cond

ucte

d at

the

cent

ral l

evel

, thi

s m

ode

attra

cts

atte

ntio

n si

nce

it is

exp

ecte

d to

pro

mot

e lo

cal d

evel

opm

ent r

eflec

ting

mor

e ad

equa

tely

the

real

ities

of t

he

area

and

the

com

mun

ity n

eeds

.

< D

iffer

ent a

ppro

ache

s: th

e U

gand

an a

nd T

anza

nian

dev

olut

ion

type

, and

the

Ken

yan

deco

ncen

trat

ion

type

>

Whe

n ta

lkin

g ab

out d

ecen

tralis

atio

n of

the

plan

ning

pro

cess

, the

re w

ill be

sub

stan

tial d

iffer

ence

s in

thei

r fea

ture

s •

depe

ndin

g on

whe

ther

aut

horit

y is

dev

olve

d to

: (1)

LG

s, o

r (2)

loca

l bra

nch

offic

es o

f CG

. The

latte

r can

be

furth

er

divi

ded

into

: a) e

ntiti

es li

ke D

istri

ct A

dmin

istra

tions

, whe

re a

ll pl

ans

are

coor

dina

ted

by a

pla

nnin

g of

ficer

or

plan

ning

com

mitt

ee o

f the

loca

l offi

ce o

f the

CG

in a

n in

tegr

ated

man

ner,

and

b) i n

stan

ces

whe

re th

e pl

ans

are

sepa

rate

ly im

plem

ente

d by

the

indi

vidu

al lo

cal o

ffice

s of

diff

eren

t sec

tor m

inis

tries

. U

gand

a an

d Ta

nzan

ia a

re

purs

uing

mod

e (1

). K

enya

is p

ursu

ing

mod

e (2

), bu

t is

adm

inis

tere

d be

twee

n ty

pes

a) a

nd b

), al

thou

gh it

cou

ld b

e sa

id th

at th

e fo

cus

still

rem

ains

on

type

b) l

ocal

offi

ces

of d

iffer

ent s

ecto

r min

istri

es.

Eve

n th

ough

they

sou

nd li

ke

the

sam

e pa

rtici

pato

ry fo

rmul

atio

n of

loca

l dev

elop

men

t pla

ns, (

1) a

nd (2

) hav

e to

tally

diff

eren

t com

plex

ions

. Th

eref

ore,

firs

t, it

is im

porta

nt to

ver

ify th

is p

oint

.

< Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s: H

ow c

an it

be

assu

red

that

loca

l nee

ds a

re r

eflec

ted

in th

e pl

anni

ng p

roce

ss a

nd p

lann

ed p

roje

cts

are

actu

ally

impl

emen

ted?

>

The

form

ulat

ion

of p

lans

by

a lo

cal o

ffice

of a

sec

tor m

inis

try, (

2) b

) abo

ve, i

s a

typi

cal f

orm

of d

econ

cent

ratio

n.

• E

ven

still,

by

each

min

istry

ado

ptin

g th

e bo

ttom

-up

plan

ning

pro

cess

, thi

s m

ode

can

be a

ppre

ciat

ed to

a c

erta

in

exte

nt a

s an

atte

mpt

to re

spec

t loc

al n

eeds

. H

owev

er in

this

met

hod,

eac

h se

ctor

con

duct

s its

pla

nnin

g se

para

tely.

For

this

reas

on, i

t can

not g

uara

ntee

inte

r-se

ctor

coo

rdin

atio

n an

d in

ter-

sect

or p

riorit

isat

ion

in p

lann

ing

to re

spon

d to

the

actu

al s

ituat

ion

of th

e re

gion

. Fu

rther

mor

e, it

can

not c

over

cro

ss-s

ecto

r act

iviti

es a

nd s

ervi

ces

that

fall

into

blin

d sp

ots

betw

een

the

sect

ors.

C

ompa

red

with

the

abov

e-m

entio

ned

deco

n cen

tratio

n m

ode,

the

(1) d

evol

utio

n m

ode

appe

ars

to b

e le

ss

• vu

lner

able

to b

eing

affe

cted

by

the

verti

cal c

omm

and

of s

ecto

rs a

nd e

asie

r to

form

ulat

e pl

ans

in a

n in

tegr

ated

m

anne

r in

acco

rdan

ce w

ith lo

cal n

eeds

and

prio

ritie

s. H

owev

er, i

n re

ality

, it i

s no

t tha

t sim

ple.

In

Uga

nda

and

Tanz

ania

, mos

t of t

he b

udge

ts th

at s

uppo

rt lo

cal d

evel

opm

ent p

lans

are

, in

fact

, hin

ged

on g

rant

s fro

m th

e C

G.

F or t

his

reas

on, e

ven

if pl

ans

are

form

ulat

ed, u

nles

s th

e bu

dget

allo

catio

n fro

m C

G fo

r tho

se p

lans

(int

er-s

ecto

r al

loca

tions

, etc

.) is

ens

ured

in a

flex

ible

man

ner,

they

will

not n

eces

saril

y re

sult

in th

e re

alis

atio

n of

prio

ritis

ed

proj

ects

. Fu

rther

mor

e, if

the

budg

et it

self

is n

ot a

ssur

ed e

noug

h to

real

ise

the

plan

ned

activ

ities

due

to th

e cu

tting

of

gra

nts,

etc

., th

e si

gnifi

canc

e of

this

par

ticip

ator

y bo

ttom

-up

plan

bec

omes

eve

n w

eake

r6 .


17

Met

hods

of c

omm

unity

par

ticip

atio

n W

hen

form

ulat

ing

plan

s, h

ow a

re lo

cal

• ne

eds

bein

g as

sure

d in

the

proc

ess?

(w

orks

hops

? fa

ct-fi

ndin

g su

rvey

s? p

ublic

he

arin

gs?)

In

the

case

of w

orks

hops

, w

hat k

inds

of p

eopl

e pl

ay th

e ro

le o

f fa

cilit

ator

? To

wha

t ext

ent a

nd in

wha

t for

m a

re

• re

side

nts

parti

cipa

ting

in lo

cal p

lann

ing?

Is

the

plan

ning

pro

cess

ope

n to

all

• re

side

nts?

If n

ot, t

hen

how

are

thos

e w

ho

parti

cipa

te in

the

actu

al p

lann

i ng

proc

ess

sele

cted

?

< S

igni

fican

ce o

f com

mun

ity-p

artic

ipat

ion-

base

d lo

cal p

lann

ing

in d

ecen

tral

isat

ion

refo

rms

> It

is c

onsi

dere

d th

at c

omm

unity

-bas

ed p

artic

ipat

ory

plan

ning

, suc

h as

Tan

zani

aís

O&

OD

, mak

es it

eas

ier t

o •

iden

tify

com

mun

ity n

eeds

(effe

ctiv

enes

s), a

nd th

at it

is a

lso

effe

ctiv

e fo

r im

prov

ing

acco

unta

bilit

y an

d tra

nspa

renc

y fo

r res

iden

ts (a

ccou

ntab

ility)

. Fu

rther

mor

e, b

y ha

ving

resi

dent

s ta

ke p

art i

n fro

m th

e pl

anni

ng s

tage

, it i

s ex

pect

ed th

at a

ctiv

e pa

rtici

patio

n w

ill

• al

so b

e pr

omot

ed a

t the

impl

emen

tatio

n st

age.

As

a fo

rm o

f col

labo

ratio

n be

twee

n re

side

nts

and

the

loca

l ad

min

istra

tion

(col

lect

ive

actio

n), i

t has

the

pote

ntia

l to

be a

n ef

fect

ive

mea

ns o

f com

plem

entin

g LG

ís s

ervi

ce

deliv

ery

and

deve

lopm

ent a

ctiv

ities

, sin

ce lo

cal a

dmin

istra

tion

in A

frica

n co

untri

es is

usu

ally

too

wea

k to

per

form

al

l the

dut

ies

alon

e. (

effic

ienc

y) (F

or fu

rther

det

ails

, see

3-3

-3 a

nd 3

“R

elat

ions

hip

betw

een

loca

l com

mun

ities

/re

side

nts

and

the

loca

l adm

inis

tratio

n ” in

this

tabl

e).

In v

ario

us A

frica

n co

untri

es, t

he la

ck o

f leg

itim

acy

of th

e go

vern

men

t has

bee

n a

fund

amen

tal p

robl

em.

In s

uch

• ci

rcum

stan

ces,

it is

sig

nific

ant f

or th

e so

ciet

y to

get

pra

ctic

al e

xper

ienc

e of

a “

proc

ess

of d

evel

opin

g lo

cal

auto

nom

y ” w

here

resi

dent

s re

ally

feel

the

bene

fits

of th

e ad

min

istra

tion,

and

whe

re th

ey p

artic

ipat

e in

it fr

om th

e pl

anni

ng s

tage

and

are

invo

lved

in im

plem

enta

tion.

It h

as th

e po

tent

ial t

o be

a fi

rst s

tep

to a

chie

ving

a re

al

dece

ntra

lised

sys

tem

in fu

ture

bas

ed o

n a

mat

ured

civ

il so

ciet

y (fo

r fur

ther

det

ails

, see

3-3

-3).

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s an

d ac

coun

tabi

lity:

How

are

the

real

loca

l nee

ds id

entifi

ed a

nd

refle

cted

in p

lans

? >

With

fund

s su

ch a

s K

enya

ís C

DF,

alth

ough

the

com

mun

ity-b

ased

par

ticip

ator

y pl

anni

ng p

roce

ss m

ight

be

• sy

stem

atis

ed, i

n re

ality

, cas

es c

an b

e ob

serv

ed w

here

the

resi

dent

s pa

rtici

patin

g in

the

plan

ning

pro

cess

as

com

mun

ity re

pres

enta

tives

are

rest

ricte

d, a

nd th

eir s

elec

tion

is s

omet

imes

not

tran

spar

ent e

noug

h. I

n th

ese

case

s, th

e lo

cal n

eeds

refle

cted

in th

e pl

ans

coul

d be

bia

sed,

and

ther

e is

a d

ange

r tha

t the

ir ef

fect

iven

ess

and

acco

unta

bilit

y w

ill be

impe

ded.

Eve

n th

ough

a p

roce

ss m

ight

be

labe

lled

as “

parti

cipa

tory”,

ther

e ne

eds

to b

e ch

ecks

as

to w

hat k

ind

of p

roce

dure

s ha

ve b

een

adop

ted.

At t

he s

ame

time,

the

ques

tion

rem

ains

as

to th

e ex

tent

of t

he e

ffect

iven

ess

of id

entifi

ed n

eeds

whi

ch a

re d

eriv

ed

• fro

m a

wor

ksho

p co

nduc

ted

by a

faci

litat

or fr

om e

lsew

here

ove

r a li

mite

d tim

efra

me

of ju

st a

few

day

s. F

urth

er

mea

sure

s m

ight

be

nece

ssar

y to

ens

ure

that

the

real

nee

ds o

f res

iden

ts a

re ta

ken

on b

oard

in a

fair

and

equi

tabl

e m

ann e

r.

< Fr

om th

e pe

rspe

ctiv

es o

f effi

cien

cy a

nd e

ffec

tiven

ess:

hig

h co

sts

> A

prob

lem

has

bee

n ra

ised

in th

at th

e co

sts

invo

lved

in c

omm

unity

-bas

ed p

artic

ipat

ory

plan

ning

are

hig

h. L

ocal

•

plan

ning

is s

omet

hing

that

mus

t be

done

regu

larly

and

repe

ated

ly. C

onse

quen

tly, u

nles

s th

e co

sts

are

at a

leve

l th

at c

an b

e m

et b

y th

e re

spec

tive

LGs,

sus

tain

abilit

y ca

nnot

be

guar

ante

ed.

From

the

pers

pect

ive

of c

osts

as

wel

l as

sust

aina

bilit

y an

d th

e ne

cess

ity to

iden

tify

corr

ect ly

the

need

s of

the

• co

mm

unity

, one

of t

he im

porta

nt e

lem

ents

for t

he s

ucce

ss o

f the

pro

cess

is th

e fa

cilit

ator

. Th

e be

st a

ppro

ach

is to

fin

d th

e rig

ht p

erso

ns fr

om th

e sa

me

com

mun

ity to

bec

ome

lead

ers

and

to e

xplo

re th

e po

ssib

ility

of n

urtu

ring

them

as

faci

litat

ors.

The

ven

ture

s of

Con

cern

a

n N

GO

in U

gand

a

ser

ve a

s a

refe

renc

e.

6 A

con

spic

uous

exa

mpl

e of

this

pro

blem

is th

e D

DC

s in

Ken

ya.

Dur

ing

the

1980

s, th

e D

DC

s fl

ouri

shed

with

fin

anci

al a

ssis

tanc

e fr

om d

onor

s, b

ut w

ith th

e dr

ying

up

of f

unds

as

a

cons

eque

nce

of th

e te

rmin

atio

n of

sup

port

, up

until

this

pre

sent

day

, the

y ha

ve b

een

devo

id o

f an

y su

bsta

nce.

18


1. P

lann

ing

proc

ess

(con

tinue

d)

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s, e

ffici

ency

and

the

deve

lopm

ent o

f abs

orpt

ive

capa

city

: ex

tens

ive

and

com

plic

ated

labo

ur a

nd c

apac

ity r

equi

red

for

the

coor

dina

tion

and

com

pila

tion

of th

e pl

an>

Take

Tan

zani

a fo

r exa

mpl

e. A

trem

endo

us a

mou

nt o

f lab

our a

nd a

bilit

y w

ould

be

requ

ired

for t

he ta

sk o

f com

pilin

g •

each

and

eve

ry p

lan

that

is s

ubm

itted

from

mor

e th

an 1

0,00

0 Vi

llage

s na

tionw

ide

(A D

istri

ct is

com

pose

d of

ap

prox

imat

ely

100

Villa

ges)

and

then

allo

catin

g a

budg

et fo

r the

m.

The

pers

on a

ssig

ned

to th

e m

ost i

mpo

rtant

and

mos

t diffi

cult

func

tions

with

in th

is s

yste

m is

the

plan

ning

offi

cer a

t •

the

Dis

trict

leve

l. E

ach

offic

er is

requ

ired

to p

erfo

rm th

e di

zzyi

ng ta

sk o

f com

pilin

g th

e pa

rtici

pato

ry p

lans

that

are

su

bmitt

ed fr

om th

e Vi

llage

s as

wel

l as

the

plan

s fo

r eac

h se

ctor

, and

prio

ritis

ing

them

for t

he p

urpo

se o

f allo

catin

g bu

dget

s, b

efor

e ap

porti

onin

g fu

nds

from

am

ong

its o

wn

sour

ces

of fu

nds

and

from

its

mul

titud

es o

f gra

nts.

In

mos

t cas

es, t

hese

task

s ar

e pe

rform

ed b

y on

e or

two

plan

ning

offi

cers

in e

ach

LG.

In a

dditi

on to

the

capa

city

bu

ildin

g of

thes

e of

ficer

s its

elf,

it is

nec

essa

ry to

pur

sue

inst

itutio

nal d

evel

opm

ent i

nclu

ding

col

lect

ion

of b

asic

loca

l da

ta a

s w

ell a

s th

e es

tabl

ishm

ent o

f cle

ar c

riter

ia fo

r the

est

imat

ion

of c

osts

to d

efine

the

allo

catio

n of

the

budg

et,

as th

e ba

sis

for p

riorit

isin

g pl

ans.

2. C

onsi

sten

cy o

f lo

cal d

evel

opm

ent

plan

s w

ith s

ecto

r pl

ans

Met

hods

for

form

ulat

ing

loca

l sec

tor

plan

s H

ow a

re lo

cal s

ecto

r pla

ns in

eac

h se

ctor

•

bein

g fo

rmul

ated

? (to

p-do

wn/

botto

m-u

p)

Deg

ree

of in

tegr

atio

n of

loca

l de

velo

pmen

t pla

ns

In lo

cal a

reas

, are

ther

e ge

nera

l pla

ns th

at

• ha

ve b

een

inte

grat

ed w

ith s

ecto

r pla

ns?

To

wha

t ext

ent i

s th

e co

nten

t of t

he p

lans

in

tegr

ated

? (I

s it

not s

impl

y a

patc

hwor

k of

va

rious

pla

ns?)

Deg

ree

of c

oord

inat

ion

betw

een

sect

or

plan

sIn

form

ulat

ing

loca

l dev

elop

men

t pla

ns, i

n •

wha

t way

are

var

ious

sec

tor p

lans

bei

ng

achi

eved

? H

ow w

ell i

s th

is fu

nct io

ning

?

< A

ctua

l cir

cum

stan

ces

surr

ound

ing

the

form

ulat

ion

of lo

cal s

ecto

r pl

ans

> E

ven

in c

ases

like

Tan

zani

a, w

here

par

ticip

ator

y lo

cal d

evel

opm

ent p

lann

ing

base

d on

O&

OD

is b

eing

pro

mot

ed,

• in

real

ity, e

ach

of th

e se

ctor

tech

nica

l dep

artm

ents

in L

G fo

rmul

ate

thei

r ow

n se

ctor

pla

ns.

The

loca

l stra

tegi

c de

velo

pmen

t pla

ns a

re th

en c

ompl

eted

by

plan

ning

offi

cers

inte

grat

ing

thes

e pl

ans

with

the

O&

OD

pla

n. E

ach

sect

or a

dopt

s its

ow

n pa

rtici

pato

ry b

otto

m-u

p ap

proa

ch in

its

own

way

. H

owev

er, t

hey

form

ulat

e th

eir o

wn

plan

s ba

sica

lly a

s th

ey h

ave

alw

ays

been

doi

ng -

from

a te

chno

logi

cal p

ersp

ectiv

e ba

sed

on th

e gu

idel

ines

rece

ived

fro

m th

e m

othe

r min

istry

of t

he C

G.

Cur

rent

ly, s

ecto

r min

istri

es h

ave

a gr

eat i

nflue

nce

over

the

form

ulat

ion

of lo

cal s

ecto

r pla

ns, s

ince

the

head

s of

•

tech

nica

l dep

artm

ents

are

app

oint

ed b

y th

e re

spec

tive

CG

min

istri

es; a

nd a

larg

e pr

opor

tion

of lo

cal b

udge

ts a

re

com

pris

ed o

f the

var

ious

type

s of

gra

nts

of e

ach

sect

or.

Am

id s

uch

circ

umst

ance

s, d

iscu

ssio

ns a

re c

urre

ntly

und

erw

ay o

n th

e in

tegr

atio

n of

the

loca

l sec

tor p

lann

ing

• pr

oces

s in

to O

&O

D, a

nd in

fact

, the

agr

icul

tura

l sec

tor i

s in

the

proc

ess

of h

eadi

ng in

that

dire

ctio

n. H

owev

er,

ther

e ne

eds

to b

e ca

refu

l obs

erva

tion

and

inve

stig

atio

n in

to th

e fo

llow

ing

ques

tions

: To

wha

t ext

ent w

ill it

wor

k pr

actic

ally

? W

ill an

d sh

ould

the

educ

atio

n, h

ealth

and

oth

er s

ecto

rs ta

ke th

is d

irect

ion

for i

nteg

ratio

n? W

ithou

t do

ubt,

a sp

ecia

list a

nd te

chni

cal a

naly

sis

of e

ach

sect

or is

a p

ivot

al e

lem

ent f

or lo

cal p

lann

ing.

It s

eem

s th

at a

lit

tle m

ore

disc

ussi

on is

nee

ded

on s

uch

ques

tions

as:

Is it

real

ly a

ppro

pria

te to

sim

ply

be fa

ithfu

l to

the

view

s of

th

e re

side

nts?

To

wha

t ext

ent a

nd in

whi

ch m

anne

r sho

uld

the

plan

ning

pro

cess

be

parti

cipa

tory

? 7

As

the

abov

e-ci

ted

Tanz

ania

n ex

ampl

e sh

ows,

eve

n if

the

loca

l dev

elop

men

t pla

ns o

f eac

h LG

are

eve

ntua

lly to

•

be c

ompi

led

into

one

, the

que

stio

n of

“to

wha

t ext

ent a

nd in

whi

ch m

anne

r doe

s th

e ve

rtica

l nat

ure

of s

ecto

rs

rem

ain

in th

e pl

an? ”

will

vary

from

cou

ntry

to c

ount

ry, a

nd s

o th

ere

need

s to

be

a ca

refu

l che

ck. F

urth

erm

ore,

w

hen

chec

king

, con

side

ratio

n sh

ould

als

o be

giv

en to

the

fact

that

, as

desc

ribed

abo

ve, t

here

is a

pos

sibi

lity

that

th

e pe

rson

nel a

nd b

udge

t con

ditio

ns w

ill al

so h

ave

an in

dire

ct in

fluen

ce.

Issu

esC

heck

Poi

nts

Rem

arks


19

< D

iscu

ssio

n on

“pa

rtic

ipat

ion

fatig

ue”

and

the

need

for

the

inte

grat

ion

of v

ario

us p

lann

ing

proc

esse

s>

On

the

othe

r han

d, in

bot

h Ta

nzan

ia a

nd U

gand

a, w

ith e

ach

sect

or h

avin

g ad

opte

d pa

rtici

pato

ry a

ppro

ache

s an

d •

hold

ing

sim

ilar w

orks

hops

in v

illage

s, q

uest

ions

hav

e be

en ra

ised

as

to th

e da

nger

of “

parti

cipa

tion

fatig

ue” o

n th

e pa

rt of

the

resi

dent

s8 . In

this

sen

se a

s w

ell,

the

nece

ssity

for t

he in

tegr

atio

n of

too

man

y pl

anni

ng p

roce

sses

has

be

en re

cogn

ised

.

< In

tegr

atio

n of

loca

l dev

elop

men

t pla

ns a

nd in

ter-

sect

or c

oord

inat

ion

> R

egar

ding

the

diffi

culti

es o

f the

task

ass

igne

d to

the

Dis

trict

pla

nnin

g of

ficer

s, a

n ex

plan

atio

n ha

s al

read

y be

en

• gi

ven

in (4

) 1. a

bove

of t

his

tabl

e. T

he c

onst

rain

ts o

n bu

dget

allo

catio

n ar

e al

so s

ever

e. F

or fu

rther

info

rmat

ion,

se

e th

e se

ctio

n 4.

“Lo

cal d

evel

opm

ent p

lans

and

bud

geta

ry m

easu

res

for p

lann

ed p

rogr

amm

es” b

elow

. E

ven

in th

e co

untri

es li

ke T

anza

nia

whe

re th

e de

cent

ralis

atio

n re

form

s ar

e be

ing

adva

nced

and

par

ticip

ator

y lo

cal

• de

velo

pmen

t pla

nnin

g is

bei

ng p

rom

oted

, it i

s st

ill di

fficu

lt to

coo

rdin

ate

with

sec

tors

and

inte

grat

e th

is in

to a

ge

nera

l stra

tegi

c pl

an.

How

ever

, in

case

s lik

e K

enya

, whe

re th

e ve

rtica

l nat

ure

of s

ecto

rs s

till r

uns

deep

, it i

s ev

en

mor

e se

rious

. S

ecto

rs c

ome

unde

r the

stro

ng c

hain

s of

com

man

d of

the

cent

ral m

inis

tries

, and

so

the

plan

ning

of

ficer

s of

Dis

trict

adm

inis

tratio

ns (l

ocal

offi

ces

of C

G) a

nd D

DC

s9 , w

hich

sho

uld

be in

a p

ositi

on to

ach

ieve

co

ordi

natio

n at

the

loca

l lev

el, h

ave

hard

ly a

ny p

ract

ical

aut

horit

y fo

r coo

rdin

atio

n. A

s a

resu

lt, th

e D

istri

ct

Dev

elop

men

t Pla

n is

mak

ing

less

and

less

sen

se, a

nd in

act

ual f

act,

the

sect

or o

pera

tions

are

car

ried

out b

ased

on

the

resp

ectiv

e se

ctor

ís a

nnua

l pla

ns ra

ther

than

the

Dis

trict

Dev

elop

men

t Pla

n. F

urth

erm

ore,

alth

ough

thes

e se

ctor

ann

ual p

lans

are

sub

mitt

ed to

the

cent

ral m

inis

tries

, the

bud

gets

are

con

sequ

ently

allo

cate

d by

the

min

istri

es.

With

in th

is p

roce

ss, t

he lo

cal o

ffice

s of

sec

tor m

inis

tries

hav

e no

dis

cret

iona

ry p

ower

s: d

ecis

ions

are

m

ade

cent

rally

. U

nder

this

kin

d of

sys

tem

, it i

s di

fficu

lt to

refle

ct lo

cal r

ealit

y an

d in

tegr

ate

plan

s ba

sed

on lo

cal

prio

ritie

s.

In c

ontra

st, i

n U

gand

a, w

here

the

auth

ority

for l

ocal

pla

nnin

g an

d ot

her f

unct

ions

has

bee

n de

volv

ed to

LG

s, c

ross

-•

sect

or p

riorit

isat

ion

cons

iste

nt w

ith a

ctua

l loc

al c

ondi

tions

and

cro

ss-s

ecto

r coo

rdin

atio

n ha

ve b

ecom

e re

lativ

ely

less

com

plic

ated

, and

the

inte

grat

ed fo

rmul

atio

n of

loca

l dev

elop

men

t pla

ns b

y LG

s ha

s be

com

e re

lativ

ely

easy

.

< C

oncl

usio

n: H

ow to

vie

w p

artic

ipat

ory

loca

l dev

elop

men

t pla

ns u

nder

dec

entr

alis

atio

n re

form

s >

In s

umm

aris

ing

the

abov

e, th

e fo

llow

ing

thre

e po

ints

can

be

give

n as

key

ele

men

ts to

ach

ievi

ng a

ctua

lly

• m

eani

ngfu

l par

ticip

ator

y lo

cal d

evel

opm

ent p

lans

und

er d

ecen

tralis

atio

n re

form

: (1

) to

ensu

re re

al p

artic

ipat

ory

proc

esse

s an

d th

e re

flect

ion

of lo

cal n

eeds

in p

lans

; (2

) to

refle

ct p

artic

ular

real

ities

of t

he lo

cal a

rea,

and

inte

grat

e al

l the

pla

ns e

ffect

ivel

y at

the

loca

l lev

el; a

nd

(3) t

o en

sure

the

tech

nica

l rel

evan

ce o

f sec

tor s

ervi

ces

exam

ined

by

sect

or s

peci

alis

ts.

7 In

cide

ntal

ly,

man

y of

the

Jap

anes

e L

Gs

have

inc

orpo

rate

d co

mm

unity

par

ticip

atio

n an

d bo

ttom

-up

appr

oach

es i

nto

thei

r lo

cal

deve

lopm

ent

plan

ning

pro

cess

. H

owev

er t

hey

are

not

as

extr

eme

as th

ese

case

s (f

or f

urth

er d

etai

ls, s

ee 3

-2-2

(2)

).

8 Fr

om t

he p

ersp

ectiv

e of

“pa

rtic

ipat

ion

fatig

ue”,

ano

ther

iss

ue i

s th

e fe

asib

ility

of

plan

s fo

rmul

ated

thr

ough

par

ticip

ator

y pr

oces

ses.

A

t fi

rst,

resi

dent

s ha

ve s

tron

g ex

pect

atio

ns r

egar

ding

pa

rtic

ipat

ion

in t

his

plan

ning

pro

cess

to

refl

ect

thei

r ne

eds;

but

if

thes

e pl

anne

d pr

ojec

ts r

emai

n un

real

ised

for

any

len

gth

of t

ime,

the

n th

ese

expe

ctat

ions

will

lea

d to

dis

appo

intm

ent

and

henc

e di

sint

eres

t (fo

r fu

rthe

r de

tails

, see

2-2

-5).

9

In th

e ca

se o

f K

enya

, LG

s do

not

ful

fil a

ny k

ind

of n

otew

orth

y fu

nctio

ns in

loca

l pla

nnin

g ex

cept

for

the

LA

SDA

P fo

r us

e of

the

LA

TF

gran

t. I

n th

ese

case

s, D

istr

ict a

dmin

istr

atio

ns, w

hich

ar

e th

e lo

cal o

ffic

es o

f th

e C

G, a

nd D

DC

s at

tend

to th

ese

func

tions

.

20


2. C

onsi

sten

cy o

f lo

cal d

evel

opm

ent

plan

s w

ith s

ecto

r pl

ans

(con

tinue

d)

Sat

isfy

ing

all t

hree

ele

men

ts 1

00%

is a

n ex

trem

ely

com

plic

ated

dem

and.

Firs

tly, w

ith re

gard

to th

e qu

estio

n of

•

how

to c

ompr

omis

e be

twee

n (1

) and

(3),

it is

impo

rtant

to c

onsi

der i

t fro

m th

e vi

ewpo

int o

f effe

ctiv

enes

s of

the

serv

ices

to b

e de

liver

ed.

Then

, it i

s im

porta

nt to

est

ablis

h a

stro

ng c

oord

inat

ion

func

tion

and

auth

ority

in e

ach

loca

l are

a w

hich

can

ens

ure

(2) f

or th

at a

r ea.

For

this

pur

pose

, nat

ural

ly th

e de

volu

tion

of a

utho

rity

to L

Gs

is th

e be

st w

ay.

How

ever

, in

circ

umst

ance

s lik

e K

enya

whe

re a

dra

stic

cha

nge

to d

evol

utio

n is

not

fore

seen

yet

, at l

east

so

me

trans

ition

al m

easu

res

coul

d be

rele

vant

suc

h as

enh

anci

ng th

e au

thor

ity o

f the

DD

C w

ith a

vie

w to

fa

cilit

atin

g lo

cal l

evel

coo

rdin

atio

n fo

r int

egra

ted

deve

lopm

ent p

lann

ing.

3. N

atio

nal a

nd lo

cal

plan

ning

co

ordi

natio

n/

Inte

r-LG

pla

nnin

g co

ordi

natio

n

Har

mon

isat

ion

betw

een

bott

om-u

p an

d to

p-do

wn

plan

sH

ow a

re th

e bo

ttom

-up

loca

l dev

elop

men

t •

plan

s an

d th

e to

p-do

wn

natio

nal

deve

lopm

ent p

lan

reco

ncile

d?

How

to c

ope

with

wid

e-ar

ea s

ervi

ces

How

are

the

wid

e-ar

ea p

lann

ing

and

• w

ide-

area

ser

vice

s w

hich

sho

uld

func

tion

beyo

nd th

e bo

rder

s of

eac

h lo

cal

adm

inis

tratio

n, d

ealt

with

?

< H

ow to

mak

e bo

ttom

-up

and

top-

dow

n pl

ans

com

patib

le >

S

imila

r to

the

prob

lem

of i

nteg

ratin

g cr

oss-

sect

or p

artic

ipat

ory

loca

l dev

elop

men

t pla

ns w

ith s

ecto

r pla

ns, t

he

• as

sura

nce

of c

ompa

tibilit

y w

ith n

atio

nal p

lans

and

stra

tegi

es is

als

o a

diffi

cult

prob

lem

face

d in

pro

mot

ing

botto

m-

up p

artic

ipat

ory

loca

l dev

elop

men

t pla

ns.

And

yet

, aga

in, i

t is

the

plan

ning

offi

cers

at t

he D

istri

ct le

vel w

ho e

nd u

p ta

king

cha

rge

of th

is d

ifficu

lt ch

alle

nge.

Fo

r the

var

ious

Afri

can

coun

tries

whe

re th

ere

is s

till a

mou

ntai

n of

dev

elop

men

t iss

ues

at th

e na

tiona

l lev

el, t

hey

• ne

ed to

stra

tegi

cally

ove

rcom

e th

ese

issu

es b

y m

axim

isin

g th

e m

obilis

atio

n of

dom

estic

ally

ava

ilabl

e re

sour

ces.

Th

ere

are

natio

nal s

trate

gies

for t

his

purp

ose

such

as

the

PR

SP,

and

it is

impo

rtant

that

bot

h P

SR

and

de

cent

ralis

atio

n re

form

s, w

hich

form

par

t of t

he fo

rmer

, are

per

ceiv

ed a

s th

e m

eans

for a

chie

ving

this

maj

or

obje

ctiv

e.

Furth

erm

ore,

eve

n th

ough

they

are

cal

led “

loca

l dev

elop

men

t pla

ns”,

the

maj

ority

can

be

even

tual

ly fa

ctor

ised

into

•

indi

vidu

al c

oncr

ete

sect

or a

ctiv

ities

. In

this

sen

se, m

uch

of th

is p

robl

em a

lso

gets

bac

k to

the

prob

lem

of

com

patib

ility

with

sec

tors

. G

iven

the

abov

e, th

ey n

eed

to tr

y to

find

a m

echa

nism

to c

oord

inat

e be

twee

n S

WA

ps

and

dece

ntra

lisat

ion

refo

rm p

rogr

ams

at th

e C

G le

vel,

base

d on

the

ultim

ate

goal

s of

the

PR

SP.

The

re w

ill th

en

be th

e ta

sk o

f rec

onci

ling

betw

een

loca

l ide

ntity

and

the

req u

irem

ent f

rom

the

natio

nal d

evel

opm

ent s

trate

gies

.

< H

ow to

dea

l with

wid

e-ar

ea s

ervi

ces

> D

urin

g de

cent

ralis

atio

n, m

easu

res

will

need

to b

e ta

ken

for e

ssen

tial w

ide-

area

ser

vice

s th

at g

o be

yond

the

• bo

unda

ries

of in

divi

dual

LG

s. F

or e

xam

ple,

in a

gric

ultu

re, z

ones

cou

ld b

e cr

eate

d ac

cord

ing

to ri

ver b

asin

are

as.

In h

ealth

, uni

ts c

ould

be

crea

ted

at th

e P

rovi

ncia

l or R

egio

nal l

evel

s. I

n ot

her w

ords

, one

opt

ion

coul

d be

whe

re

the

CG

set

s up

loca

l offi

ces

to d

eal w

ith c

erta

in s

ervi

ces

at a

n ad

equa

te le

vel i

n ac

cord

ance

with

the

natu

re o

f tha

t pa

rticu

lar s

ervi

ce.

Alte

rnat

ivel

y ne

ighb

ourin

g LG

s co

uld

coop

erat

e to

set

up

offic

e co

oper

ativ

es o

r wid

e-ar

ea

conf

eder

atio

ns th

at m

anag

e a

spec

ific

serv

ice.

In

vario

us A

frica

n co

untri

es w

ith a

sho

rt hi

stor

y of

dec

entra

lisat

ion,

th

e la

tter c

ase

is n

ot o

ften

seen

yet

, but

it is

pos

sibl

e th

at th

is fo

rm w

ill ne

ed to

be

exam

ined

in th

e fu

ture

if p

roje

cts

or s

ervi

ces

aris

e w

hich

are

diffi

cult

for i

ndiv

idua

l LG

s to

dea

l with

alo

ne.

In a

ny c

ase,

ther

e ne

eds

to b

e a

clea

r de

finiti

on a

s to

the

dem

arca

tion

of ro

les

and

the

natu

re o

f col

labo

rativ

e re

latio

nshi

ps a

mon

g th

e re

leva

nt

inst

itutio

ns.

Issu

esC

heck

Poi

nts

Rem

arks


21

4. B

udge

ting

for

the

prio

ritis

ed p

roje

cts

in th

e lo

cal

deve

lopm

ent p

lan

Who

allo

cate

s bu

dget

s to

loca

l •

deve

lopm

ent p

lans

, and

how

are

they

al

loca

ted?

(inc

ludi

ng p

riorit

isat

ion

betw

een

sect

ors

and

betw

een

loca

l are

as)

To w

hat e

xten

t doe

s th

e de

velo

pmen

t pla

n •

and

budg

et a

lloca

tion

coin

cide

?

Form

ulat

ion

of lo

cal d

evel

opm

ent p

lan

is o

ne th

ing,

and

whe

ther

or n

ot th

e bu

dget

is a

lloca

ted

to th

at p

lan

is q

uite

•

anot

her t

hing

. E

ven

in U

gand

a an

d Ta

nzan

ia, w

here

dec

e ntra

lisat

ion

refo

rms

are

rela

tivel

y ad

vanc

ed, t

he

situ

atio

n is

not

eas

y at

all

in te

rms

of re

venu

e so

urce

s fo

r loc

al d

evel

opm

ent p

lans

. O

nly

a ve

ry li

mite

d pa

rt of

the

plan

can

be

cove

red

by d

iscr

etio

nary

unc

ondi

tiona

l dev

elop

men

t gra

nts,

suc

h as

LG

DP

(Uga

nda)

and

LG

CD

G

(Tan

zani

a) to

enj

oy th

eir “

expe

nditu

re a

uton

omy”

. (F

or fu

rther

det

ails

, see

2-2

-7 (2

) and

2-3

-3 (2

).) T

he re

ality

is

that

Dis

trict

pla

nnin

g of

ficer

s ha

ve to

look

for a

vaila

ble

fund

s fo

r the

rem

aind

er o

f the

pla

ns a

mon

g co

mpl

ex a

nd

wid

e-ra

ngin

g se

ctor

gra

nts

and

othe

r con

ditio

nal g

rant

s as

if c

uttin

g an

d pa

stin

g th

em li

ke a

pat

chw

ork.

Und

er

such

circ

umst

ance

s, th

e si

tuat

ion

will

neve

r eve

ntua

te w

here

LG

s ar

e ab

le to

allo

cate

bud

gets

to d

evel

opm

ent

prog

ram

mes

in a

ccor

danc

e w

ith th

eir o

wn

prio

ritie

s. F

urth

erm

ore,

LG

DP

and

L GC

DG

are

dev

elop

men

t gra

nts,

an

d be

caus

e th

ey a

re d

iffer

ent f

rom

recu

rren

t gra

nts,

in s

ome

case

s a

bala

nce

betw

een

the

two

will

not b

e ab

le to

be

mai

ntai

ned

in a

met

hodi

cal a

nd s

yste

mat

ic m

anne

r. Th

e de

pend

ence

on

a di

vers

e va

riety

of c

ondi

tiona

l gra

nts

ends

up

impe

ding

the

effe

ctiv

enes

s of

loca

l dev

elop

men

t pla

ns.

Rat

iona

lisat

ion

thro

ugh

the

cons

olid

atio

n of

gr

ants

(men

tione

d in

(2) 2

. “‘R

even

ue a

uton

omy’

and

‘E

xpen

ditu

re’”

in th

is ta

ble)

and

the

switc

hing

of m

ore

gran

ts

to u

ncon

ditio

nal g

rant

s ar

e be

ing

exam

ined

as

cruc

ial i

ssue

s in

reso

lvin

g th

ese

kind

s of

pro

blem

s.Th

is p

robl

em is

eve

n m

ore

serio

us in

cou

ntrie

s lik

e K

enya

whi

ch s

till h

ave

a ce

ntra

lised

stru

ctur

e (p

artia

lly

• de

conc

entra

ted)

(for

furth

er d

etai

ls, s

ee (4

) 2. o

f thi

s ta

ble)

. In

cas

es w

here

bud

gets

are

inco

rpor

ated

ent

irely

w

ithin

the

verti

cal s

truct

ure

of C

G, t

here

is h

ardl

y an

y ch

ance

that

loca

l dev

elop

men

t pla

ns h

ave

the

loca

l ide

ntity

re

flect

ed in

them

at t

he d

iscr

etio

n of

the

LG.

Ther

efor

e, in

ord

er fo

r loc

al d

evel

opm

ent p

lans

to h

ave

any

true

sign

ifica

nce,

it is

impo

rtant

to c

heck

the

exte

nt to

•

whi

ch a

uton

omy

over

bud

get e

xpen

ditu

re is

ass

ured

, in

addi

tion

to a

utho

rity

over

the

plan

ning

pro

cess

itse

lf.A

noth

e r is

sue

that

has

gre

at im

porta

nce

for t

he m

anag

emen

t asp

ects

of L

Gs

is th

e ap

plic

atio

n of

MTE

F to

LG

•

finan

cial

man

agem

ent.

By

impr

ovin

g th

is k

ind

of fi

nanc

ial m

anag

emen

t tec

hnol

ogy,

not

onl

y w

ill LG

s be

abl

e to

ac

quire

cap

acity

to re

alis

e th

eir f

orm

ulat

ed p

lans

effi

cien

tly, b

ut it

will

also

faci

litat

e tra

nspa

renc

y. P

uttin

g as

ide

the

subs

tant

ial a

spec

ts o

f the

refo

rms,

this

kin

d of

sup

port

to im

prov

e m

anag

emen

t tec

hniq

ues

is p

ract

ical

ly u

sefu

l.

5. T

he L

G c

ounc

ilsí

mon

itori

ng

func

tions

Are

loca

l cou

ncils

equ

ippe

d w

ith th

e •

func

tions

to m

onito

r the

loca

l dev

elop

men

t pl

an a

nd b

udge

ts?

To w

hat e

xten

t doe

s th

is w

ork?

•

It is

exp

ecte

d th

at th

e ac

coun

tabi

lity

to th

e lo

cal r

esid

ents

cou

ld b

e as

sure

d if

the

LG c

ounc

ils c

an e

ffect

ivel

y ch

eck

• th

at th

e fo

rmul

atio

n an

d im

plem

enta

tion

proc

ess

of th

e lo

cal d

evel

opm

ent p

lan

is a

ssur

ed, s

inc e

they

repr

esen

t th

e re

side

nts

thro

ugh

elec

tions

. Vi

ewin

g th

e cu

rren

t situ

atio

n in

man

y A

frica

n co

untri

es w

here

LG

s ar

e hi

ghly

de

pend

ent u

pon

fisca

l tra

nsfe

rs fr

om th

e C

G, t

he a

ccou

ntab

ility

of L

G s

taff

in th

e de

velo

pmen

t pla

nnin

g pr

oces

s w

ould

eas

ily g

o up

war

ds u

nles

s so

me

effe

ctiv

e m

easu

res

are

take

n. M

onito

ring

from

the

coun

cils

is o

ne o

f the

fe

w m

easu

res

in th

is re

gard

. O

n th

e ot

her h

and,

st ro

ng c

ontro

l by

the

coun

cils

may

pre

sent

ano

ther

kin

d of

risk

, i.e

., th

e po

ssib

ility

of c

orru

pt

• re

latio

nshi

ps b

etw

een

the

coun

cillo

rs a

nd th

e ad

min

istra

tion.

In

such

cas

es, p

riorit

ies

mig

ht b

e de

term

ined

with

in

appr

opria

te in

tent

ions

eve

n if

clea

r crit

eria

are

est

ablis

hed

in th

e LG

s fo

r the

prio

ritis

atio

n of

pla

nnin

g.

Furth

erm

ore,

at p

rese

nt, t

here

is a

pro

blem

with

the

capa

city

of l

ocal

cou

nci llo

rs.

In m

any

case

s, th

ey d

o no

t hav

e •

suffi

cien

t cap

acity

to p

erfo

rm th

eir m

onito

ring

func

tion

and

then

ass

ure

the

acco

unta

bilit

y of

the

adm

inis

tratio

n.

This

is a

fund

amen

tal i

ssue

if w

e w

ant t

o re

alis

e a

real

sen

se o

f dec

entra

lisat

ion.

Thu

s, tr

aini

ng fo

r cou

ncillo

rs is

al

so a

fund

amen

tal a

nd p

ress

ing

issu

e.

22


(5)

Dev

olut

ion

of S

ervi

ce D

eliv

ery

Ope

rati

ons

Issu

esC

heck

Poi

nts

Rem

arks

1. I

nstit

utio

nal s

etup

s fo

r se

rvic

e de

liver

y D

ivis

ion

of r

oles

am

ong

orga

nisa

tions

in

volv

ed in

ser

vice

del

iver

yW

hat a

re th

e ty

pes

of s

ervi

ces

that

the

CG

•

and

LGs

are

resp

ectiv

ely

resp

onsi

ble

for,

as w

ell a

s th

eir s

cope

of w

ork.

Is th

ere

a cl

ear d

ivis

ion

of ro

les

for

• se

rvic

es u

nder

the

juris

dict

ion

of th

e lo

cal

offic

es o

f sec

tor m

inis

tries

and

und

er th

e ju

risdi

ctio

n of

LG

s? (W

hat a

re th

e pe

rson

nel n

umbe

rs, b

udge

ts,

infra

stru

ctur

e an

d te

chno

logi

cal l

evel

s of

ea

ch?)

Adv

anta

ges

of d

ecen

tral

isin

g th

e im

plem

enta

tion

of s

ervi

ces,

and

poi

nts

to k

eep

in m

ind

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s an

d ef

ficie

ncy

> B

y al

low

ing

for s

ervi

ces

at th

e LG

leve

l whi

ch is

clo

se to

the

loca

l res

iden

ts, a

ttent

ion

to th

e lo

cal n

eeds

and

to

• th

e re

side

ntsí

requ

ests

for s

ervi

ce im

prov

emen

t will

be e

xped

ited.

Thi

s w

ill al

so m

ake

it po

ssib

le to

offe

r ser

vice

s m

ore

rele

vant

to th

e ac

tual

con

ditio

ns o

f eac

h lo

cal a

rea.

Fur

ther

mor

e, b

y de

volv

ing

disc

retio

nary

pow

er to

the

LGs,

bud

get a

lloca

tion,

pro

cure

men

t and

oth

er n

eces

sary

ope

ratio

ns c

an b

e m

ade

mor

e pr

ompt

ly.H

owev

er, d

evol

utio

n of

aut

horit

y to

the

LGs

is n

ot n

eces

saril

y th

e on

ly m

easu

re fo

r ach

ievi

ng th

is o

bjec

tive.

Eve

n •

with

dec

once

ntra

tion,

sim

ilar e

ffect

s co

uld

be e

xpec

ted

som

ehow

if re

ason

able

dis

cret

iona

ry p

ower

s ar

e gi

ven

to

loca

l bra

nch

offic

es.

With

cen

tralis

ed s

yste

ms

such

as

in K

enya

, rat

her t

han

goin

g st

raig

ht to

dev

olut

ion,

this

kin

d of

mod

erat

e an

d m

ore

real

istic

app

roac

h co

uld

be re

leva

nt a

s a

trans

ition

al m

easu

re10

. M

eanw

hile

, it w

ill ra

ther

deg

rade

the

serv

ice

deliv

ery

if th

e se

rvic

e de

liver

y au

thor

ities

are

dec

entra

lised

in a

way

•

that

del

iver

y op

erat

ions

are

adm

inis

tere

d by

man

y di

ffere

nt e

ntiti

es e

.g.,

CG

, hig

her l

evel

LG

, low

er le

vel L

G, e

tc.

with

out c

lear

dem

arca

tion

and

coor

dina

tion

amon

g on

e an

othe

r.

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s an

d ac

coun

tabi

lity

> S

ervi

ce im

plem

enta

tion

at th

e LG

leve

l will

also

faci

litat

e th

e po

ssib

ilitie

s fo

r col

labo

ratio

n be

twee

n LG

s an

d

• th

e re

side

nts

and

grea

ter t

rans

pare

ncy

of s

ervi

ce d

eliv

ery

as w

ell.

< Fr

om th

e pe

rspe

ctiv

e of

the

bala

nce

betw

een

inst

itutio

nal r

efor

ms

and

deve

lopm

ent o

f LG

abs

orpt

ive

capa

citie

s >

Ther

e is

no

doub

t tha

t a v

arie

ty o

f adv

anta

ges

can

be d

eriv

ed fr

om d

ecen

tralis

atio

n of

ser

vice

impl

emen

tatio

n,

• in

clud

ing

fast

er d

eliv

ery,

a b

ette

r res

pons

e to

loca

l nee

ds a

nd im

prov

ed tr

ansp

aren

cy.

How

ever

, pus

hing

forw

ard

with

inst

itutio

nal r

efor

ms

too

hast

ily w

ithou

t du e

rega

rd fo

r the

abs

orpt

ive

capa

city

of t

he L

Gs

pose

s th

e ris

k of

ca

usin

g co

nfus

ion

and

a fa

tal s

tagn

atio

n of

ser

vice

s in

stea

d. T

here

fore

, the

re n

eeds

to b

e a

care

ful a

naly

sis

of

the

pers

onne

l, bu

dget

s, in

frast

ruct

ure,

tech

nolo

gy, e

tc. o

f eac

h LG

, fol

low

ed b

y an

exa

min

atio

n of

how

muc

h au

thor

ity s

houl

d be

dev

olve

d an

d ho

w fa

st, a

nd h

ow to

ass

ure

the

nece

ssar

y te

chni

cal b

acks

topp

ing

as w

ell a

s ca

p aci

ty d

evel

opm

ent o

f the

LG

s. D

ecen

tralis

atio

n is

not

som

ethi

ng th

at s

houl

d be

take

n in

a s

ingl

e st

ride:

it is

im

pera

tive

that

it b

e se

en a

s a

long

pro

cess

, and

ther

e ne

eds

to b

e st

rate

gic

prog

ram

min

g, in

clud

ing

the

optio

n of

ph

ased

dev

olut

ion

bala

nced

with

ade

quat

e ca

paci

ty d

evel

opm

ent o

f the

LG

s11.

< R

espo

nsib

ilitie

s an

d au

thor

ity o

f the

res

pect

ive

inst

itutio

ns in

volv

ed in

the

serv

ice

deliv

ery,

and

div

isio

n of

rol

es a

mon

g th

em >

A

s ou

tline

d ab

ove,

dec

entra

lisat

ion

of s

ervi

ces

is o

ne o

f the

cor

e is

sues

in d

ecen

tralis

atio

n re

form

. W

hile

it h

as a

n •

arra

y of

mer

its, t

here

are

als

o m

any

poin

ts th

at s

houl

d be

kep

t in

min

d. T

he o

ptim

um s

yste

m fo

r ser

vice

del

iver

y m

ust b

e de

sign

ed w

ith d

ue c

onsi

dera

tion

to a

ll th

ese

poin

ts.


23

Con

sequ

ently

, it s

houl

d be

defi

ned

as to

; the

ent

ity to

be

give

n re

spon

sibi

litie

s an

d au

thor

ities

of r

espe

ctiv

e •

serv

ices

, whi

ch e

ntity

sho

uld

cove

r whi

ch a

spec

t and

to w

hat e

xten

t, to

whi

ch le

vel i

t sho

uld

be d

ecen

tralis

ed,

whe

ther

it s

houl

d be

to L

Gs

or lo

cal b

ranc

h of

fice

of C

G, w

hich

leve

l of L

Gs

or lo

cal b

ranc

h of

fices

of C

G is

ad

equa

te to

ass

ume

the

duty

, etc

. with

car

eful

ass

essm

ent o

f eac

h o n

e of

the

conc

erne

d en

titie

s. T

his

asse

ssm

ent i

nclu

des;

per

sonn

el a

nd b

udge

t cap

aciti

es th

at e

ach

entit

y co

unts

on,

and

the

appr

opria

te le

vel o

f the

se

rvic

e de

liver

y un

it in

ord

er to

pro

vide

opt

imum

ser

vice

s in

acc

orda

nce

with

the

real

ities

and

the

need

s of

the

loca

l com

mun

ities

. It

shou

ld b

e re

itera

ted

that

whe

neve

r the

dec

isio

n is

mad

e to

dev

olve

cer

tain

resp

onsi

bilit

ies

to

LGs,

it is

impo

rtan t

to e

nsur

e ad

equa

te p

erso

nnel

, fun

ds a

nd o

ther

con

ditio

ns n

eces

sary

for t

he L

Gs

to a

ssum

e th

e re

spon

sibi

litie

s in

volv

ed.

Whe

n ex

amin

ing

the

dece

ntra

lisat

ion

of a

cou

ntry

ís s

yste

m o

f ser

vice

im

plem

enta

tion,

thes

e po

ints

nee

d to

be

chec

ked

befo

re a

nyth

ing

else

. W

ith re

gard

to th

e qu

estio

ns c

once

rnin

g ho

w to

defi

ne th

e m

ost a

dequ

ate

leve

l of s

ervi

ce d

eliv

ery

units

for

• re

spec

tive

serv

ices

, and

whe

t her

it s

houl

d be

with

dev

olut

ion,

del

egat

ion

or d

econ

cent

ratio

n, th

e an

swer

s di

ffer

from

sec

tor t

o se

ctor

. Fu

rther

mor

e, e

ven

with

in a

sec

tor,

it is

impe

rativ

e to

see

the

deta

ils o

f eac

h se

rvic

e. T

he

best

mec

hani

sms

of s

ervi

ce d

eliv

ery

as w

ell a

s th

e co

llabo

rativ

e re

latio

nshi

p am

ong

diffe

rent

pub

lic e

ntiti

es w

ill

also

diff

er in

diff

eren

t ser

vice

s.

Sys

tem

of s

uppo

rt, c

olla

bora

tion

and

coor

dina

tion

of th

e C

G to

ass

ure

the

succ

essf

ul p

roce

ss o

f the

de

cent

ralis

atio

n re

form

s,

Has

ther

e be

en a

redu

ctio

n in

tech

nica

l •

capa

city

in s

ervi

ce d

eliv

ery

as a

resu

lt of

de

volv

ing

the

resp

onsi

bilit

y an

d au

thor

ity

from

the

sect

or m

inis

tries

to th

e LG

s?

Wha

t kin

d of

tech

nica

l bac

ksto

ppin

g is

•

prov

ided

from

hig

her l

evel

inst

itutio

ns fo

r th

e pr

ovis

ion

of s

ervi

ces

at th

e lo

cal l

evel

? W

hat k

ind

of in

tera

ctio

n is

ther

e be

twee

n •

CG

and

LG

s (c

olla

bora

tion,

tech

nica

l ba

ckst

oppi

ng/ s

uppo

rt, re

latio

nshi

ps o

f su

perv

isio

n an

d m

ento

ring,

etc

.)?

Wha

t kin

ds o

f mec

hani

sms

are

ther

e fo

r •

coor

dina

tion

betw

een

the

CG

and

the

LGs?

Wha

t abo

ut a

mon

g th

e ne

ighb

ourin

g LG

s?

< S

yste

m o

f sup

port

, col

labo

ratio

n an

d co

ordi

natio

n of

CG

to a

ssur

e th

e su

cces

sful

pro

cess

of t

he

dece

ntra

lisat

ion

refo

rms

> Th

e m

ost i

mpo

rtant

poi

nt th

at m

ust b

e m

onito

red

whe

n ad

vanc

ing

the

dece

ntra

lisat

ion

of s

ervi

ces

is w

heth

er th

ere

• ha

s no

t bee

n a

redu

ctio

n in

tech

nica

l cap

acity

as

a re

sult

of s

hifti

ng th

e m

ain

serv

ice

prov

ider

from

the

sect

or

min

istri

es to

the

LGs.

Onc

e th

is h

as b

een

chec

ked,

it is

impo

rtant

to in

vest

igat

e th

e m

anne

r in

whi

ch te

chni

cal

back

stop

ping

mec

hani

sms

from

eac

h of

CG

min

istri

es h

ave

been

est

ablis

hed

as s

uppo

rt fo

r thi

s de

cent

ralis

atio

n,

and

also

to in

vest

igat

e ho

w th

ese

mec

hani

sms

are

func

tioni

ng.

Alth

ough

dec

entra

lisat

ion

refo

rms

mig

ht b

e co

rrec

t in

theo

ry, c

onsi

derin

g th

e pr

esen

t sta

te o

f LG

s in

Afri

can

coun

tries

, suc

h m

echa

nism

s ar

e co

nsid

ered

in

disp

ensa

ble.

Eve

n in

Uga

nda

and

Tanz

ania

, whe

re D

by

D re

form

s ha

ve b

een

vigo

rous

ly p

rom

oted

, the

im

porta

nce

of te

chni

cal b

acks

topp

ing

is n

ow re

appr

ecia

ted.

In

both

cou

ntrie

s, th

e R

egio

ns a

re c

onsi

dere

d to

pla

y an

impo

rtant

role

as

inte

rmed

iate

ent

ities

link

ing

betw

een

LGs

and

the

CG

for t

he p

rovi

sion

of t

echn

ical

ba

ckst

oppi

ng13

, thu

s st

reng

then

ing

the

capa

city

of t

he R

egio

ns.

Con

side

ring

the

abov

e, d

ue c

onsi

dera

tion

need

s to

be

give

n to

the

conv

enie

nce

of e

stab

lishi

ng a

wel

l fun

ctio

ning

•

colla

bora

tive

rela

tions

hip

betw

een

the

CG

and

the

LGs

to fo

ster

tota

l nat

iona

l cap

acity

rath

er th

an c

ompl

etel

y sp

littin

g th

e fu

nctio

ns o

f the

LG

s an

d th

ose

of th

e C

G.

At t

he s

ame

time,

this

kin

d of

inte

ract

ive

rela

tions

hip

will

fa

cilit

ate

the

capa

city

dev

elo p

men

t of L

Gs

thro

ugh

OJT

and

tran

sfer

of k

now

-how

from

the

CG

to L

Gs

by m

eans

of

colla

bora

tion

exer

cise

s.

10

For

defi

nitio

ns a

nd a

com

pari

son

of d

evol

utio

n, d

eleg

atio

n an

d de

conc

entr

atio

n, s

ee B

ox 3

-1.

11

Dec

entr

alis

atio

n in

Jap

an h

as ta

ken

deca

des.

Cap

acity

dev

elop

men

t of

its L

Gs

was

pri

oriti

sed

usin

g a

dele

gatio

n-fo

cuse

d sy

stem

as

a tr

ansi

tion

mea

sure

, whi

ch s

erve

d to

pre

pare

con

ditio

ns

for

the

even

tual

dev

olut

ion

to th

e L

Gs

unde

r th

e de

cent

ralis

atio

n re

form

s of

200

0.

12

For

furt

her

deta

ils, s

ee 3

-2-2

(3)

, 3-2

-3 (

3).

13

See

the

Tanz

ania

Mor

ogor

o H

ealth

Pro

ject

(a

JIC

A te

chni

cal c

oope

ratio

n pr

ojec

t) (

4-1-

2 (1

) b)

) as

an

exam

ple

in T

anza

nia

that

ant

icip

ated

this

sig

nifi

canc

e.

24


1. I

nstit

utio

nal s

etup

s fo

r se

rvic

e de

liver

y

(con

tinue

d)

Dev

olut

ion

of r

espo

nsib

ility

/aut

hori

ty to

us

er g

roup

sA

re th

ere

any

case

s w

here

the

• re

spon

sibi

lity/

auth

ority

ove

r the

m

anag

emen

t of s

ervi

ces

have

bee

n de

volv

ed to

a u

ser g

roup

?If

yes,

how

are

the

rela

tions

hips

and

the

• di

visi

on o

f rol

es b

etw

een

the

LG a

nd th

e us

er g

roup

?

Out

sour

cing

to th

e pr

ivat

e se

ctor

In s

ervi

ce im

plem

enta

tion,

hav

e an

y •

serv

ices

bee

n co

mm

issi

oned

to th

e pr

ivat

e se

ctor

(NG

Os,

con

sulta

nts,

etc

.)?

If ye

s, h

ow w

as th

e di

visi

on o

f rol

es

• be

twee

n th

e LG

and

the

third

-par

ty

orga

nisa

tion?

< D

evol

utio

n of

res

pons

ibili

ty/a

utho

rity

to u

ser

grou

ps >

Th

ere

are

an in

crea

sing

num

ber o

f cas

es w

here

the

resp

onsi

bilit

y/au

thor

ity fo

r ser

vice

s m

anag

emen

t is

bein

g •

devo

lved

to u

ser g

roup

s: fo

r exa

mpl

e, to

SC

s in

the

prim

ary

educ

atio

n se

ctor

, and

to c

omm

unity

hea

lth w

orke

rs o

r he

alth

com

mitt

ees

in th

e he

alth

sec

tor.

Eve

n in

Ken

ya w

here

dec

entra

lisat

ion

refo

rms

are

yet t

o be

laun

ched

, the

pr

actic

e of

dec

entra

lisat

ion

to u

ser g

roup

s ca

n be

obs

erve

d.

Con

side

ring

the

serio

us p

robl

em o

f a la

ck o

f cap

acity

at t

he fr

ontli

ne lo

cal a

dmin

istra

tion

in A

frica

n co

untri

es, i

t is

• hi

ghly

rele

vant

to ta

ke a

dvan

tage

of s

uch

self-

help

effo

rts o

f the

com

mun

ity m

embe

rs th

emse

lves

to c

ompl

emen

t th

e go

vern

men

tís e

fforts

. Fu

rther

mor

e, th

is k

ind

of p

ract

ical

exp

erie

nce

of m

anag

ing

the

com

mun

ities

í mat

ters

by

them

selv

es m

ay h

ave

mor

e po

s itiv

e ef

fect

s. T

his

coul

d gr

adua

lly e

nabl

e th

e de

velo

pmen

t of a

real

sen

se o

f loc

al

auto

nom

y am

ong

the

resi

dent

s to

war

ds a

mat

ure

civi

l soc

iety

that

form

s th

e fo

unda

tion

for a

real

dec

entra

lised

so

ciet

y. O

n th

e ot

her h

and,

the

expe

rienc

e of

wor

king

toge

ther

bet

wee

n LG

s an

d th

e co

mm

unity

tow

ards

sha

red

com

mon

goa

ls w

ill fo

ster

cre

dibi

lity

and

solid

arity

bet

wee

n th

e tw

o pa

rties

(For

furth

er in

form

atio

n on

this

poi

nt,

see

3. “

Rel

atio

nshi

p be

twee

n lo

cal c

omm

uniti

es/re

side

nts

and

the

loca

l adm

inis

tratio

n” in

this

tabl

e).

2. C

ross

-sec

tor

coor

dina

tion

in

impl

emen

tatio

n of

se

rvic

es

Are

SW

Ap-

base

d lo

cal s

ervi

ce d

eliv

ery

• sy

stem

s in

pla

ce in

the

sect

ors?

How

are

th

e de

cent

ralis

atio

n co

mpo

nent

s in

corp

orat

ed in

them

? To

wha

t ext

ent a

re th

ere

cros

s-se

ctor

•

serv

ices

? H

ow a

re th

ey c

oord

inat

ed a

nd

impl

emen

ted?

To

wha

t ext

ent i

s th

ere

coor

dina

tion

amon

g re

spec

tive

sect

or

offic

ers

in c

harg

e?

In o

rder

to re

alis

e th

e ac

tual

impr

ovem

ent o

f ser

vice

del

iver

y, a

n in

disp

ensa

ble

fact

or is

the

stre

ngth

enin

g of

the

• ca

paci

ty o

f the

resp

ectiv

e se

ctor

s in

cha

rge

of th

e co

ncer

ned

serv

ices

. Th

us, t

he c

onte

nts

of th

e S

WA

p ha

ve a

lot

to d

o w

ith th

e de

cent

ralis

atio

n re

form

. H

owev

er, t

here

are

als

o co

nsid

erab

le d

ifficu

lties

in h

arm

onis

ing

the

Dec

entra

lisat

ion

Ref

o rm

s w

ith e

ach

sect

orís

SW

Ap

in A

frica

n co

untri

es.

Und

er a

SW

Ap-

base

d pr

ogra

mm

e in

ea

ch s

ecto

r, th

e se

ctor

min

istry

trie

s to

gua

rant

ee e

ffect

iven

ess

and

effic

ienc

y of

ser

vice

s, fo

r whi

ch te

chni

cal

back

stop

ping

is in

tend

ed.

How

ever

, th

is o

ften

lead

s to

the

enha

ncem

ent o

f top

-dow

n se

rvic

e de

liver

y sy

stem

, is

cont

radi

ctor

y to

dec

entra

lisat

ion.

In

this

sen

se, i

t is

nece

ssar

y to

mak

e ca

refu

l effo

rts to

har

mon

ise

and

coor

dina

te

betw

een

SW

Aps

and

the

Dec

entra

lisat

ion

Ref

orm

s at

the

cent

ral l

evel

14.

At t

he lo

cal l

evel

s, o

n th

e ot

her h

and,

the

chal

leng

e is

how

to d

evel

op a

sys

tem

to fa

cilit

ate

cros

s-se

ctor

•

coor

dina

tion

getti

ng ri

d of

the

conv

entio

nal v

ertic

al c

omm

and

syst

em o

f sec

tor d

eliv

ery.

The

aim

is to

allo

w L

Gs

to

inte

grat

e al

l the

nec

essa

ry a

ctio

ns to

add

ress

the

intri

nsic

loca

l iss

ues

i n a

n op

timal

man

ner?

W

ith re

gard

to th

e flo

w o

f fun

ds to

sup

port

serv

ice

deliv

ery

at th

e lo

cal l

evel

, the

re a

re tw

o ty

pes

of g

rant

s. O

ne is

•

a ty

pe o

f gra

nt th

at is

allo

cate

d to

loca

l are

as in

line

with

the

polic

ies

of e

ach

sect

or, a

nd th

e ot

her i

s th

at o

f un

cond

ition

al d

evel

opm

ent g

rant

s (L

GC

DG

, LG

DP,

etc

.). C

ases

can

be

occa

sion

ally

foun

d w

here

the

purp

ose

of

thes

e gr

ants

ove

rlap

or w

here

they

are

exe

cute

d w

ithou

t coo

rdin

atio

n. I

n or

der t

o pr

ovid

e se

rvic

es e

ffect

ivel

y, w

ell

plan

ned

and

coor

dina

ted

use

of a

ll fu

nds

is re

quire

d w

ith th

e pr

ovis

ion

of c

lear

crit

eria

for b

oth

type

s so

as

to

ensu

re d

elib

erat

e sy

nerg

ies

betw

een

them

(see

(2) 2

. “D

evel

opm

ent g

rant

s an

d re

curr

ent g

rant

s” in

this

tabl

e).

Issu

esC

heck

Poi

nts

Rem

arks


25

3. R

elat

ions

hip

betw

een

loca

l co

mm

uniti

es/

resi

dent

s an

d th

e lo

cal a

dmin

istr

atio

n

Wha

t kin

ds o

f exa

mpl

es a

re th

ere

of

• co

llabo

ratio

n be

twee

n lo

cal

adm

inis

tratio

ns a

nd c

omm

uniti

es fo

r se

rvic

e de

liver

y? H

ow h

ave

thes

e ac

tiviti

es b

een

deve

lope

d an

d ho

w a

re

thes

e co

llabo

ratio

n ca

ses

func

tioni

ng?

< Fr

om th

e pe

rspe

ctiv

e of

effi

cien

cy >

In

Afri

ca, l

ocal

adm

inis

tratio

ns a

t the

low

est-l

evel

s ar

e vu

lner

able

, and

they

hav

e on

ly b

een

able

to fu

nctio

n in

an

• ex

trem

ely

limite

d fa

shio

n by

them

selv

es.

As

a w

ay o

f mak

ing

up fo

r thi

s, th

ere

can

be o

bser

ved

case

s w

here

the

com

mun

ity m

embe

rs th

emse

lves

con

tribu

ted

and

impl

emen

ted

serv

ices

in c

olla

bora

tion

with

the

adm

inis

tratio

n.

Exa

mpl

es in

clud

e S

Cs

in th

e ed

ucat

ion

sect

or a

nd c

omm

unity

hea

lth w

orke

rs in

the

heal

th s

ecto

r as

we

saw

in (5

) 1 “

Dev

olut

ion

of re

spon

sibi

lity/

auth

ority

to u

ser g

roup

s” a

bove

in th

is ta

ble)

.

< Fr

om th

e pe

rspe

ctiv

e of

eff

ectiv

enes

s >

Ther

e ar

e va

rious

sig

nific

ant b

enefi

ts a

nd m

erits

to th

e pa

rtici

pato

ry im

plem

enta

tion

of s

ervi

ce d

eliv

ery,

as

• m

entio

ned

in 1

. abo

ve ( “

Dev

olut

ion

of re

spon

sibi

lity/

auth

ority

to u

ser g

roup

s”).

On

the

othe

r han

d, in

cas

es w

here

the

parti

cipa

ting

parti

es in

the

proc

ess

of p

lann

ing

and

impl

emen

tatio

n ar

e •

rest

ricte

d, th

ere

are

risks

that

the

real

nee

ds o

f the

vul

nera

ble

grou

ps o

f the

com

mun

ity s

uch

as; t

he p

oor,

wom

en,

etc.

are

not

atte

nded

to.

The

mod

e of

com

mun

ity p

artic

ipat

ion

need

s to

be

chec

ked

care

fully

giv

en th

is p

oint

.

< Fr

om th

e pe

rspe

ctiv

e of

acc

ount

abili

ty >

C

omm

unity

par

ticip

atio

n in

ser

vice

del

iver

y br

ings

resi

dent

s cl

oser

to th

eir l

ocal

adm

inis

tratio

n an

d ra

ises

gre

ater

•

publ

ic in

tere

st.

This

is e

xpec

ted

to re

sult

in g

reat

er tr

ansp

aren

cy fo

r loc

al re

side

nts

conc

erni

ng w

heth

er s

ervi

ces

are

actu

ally

impl

emen

ted

as p

lann

ed, a

nd w

heth

er b

udge

ts a

re b

eing

impl

emen

ted

prop

erly.

4. B

udge

t allo

catio

n fo

r th

e im

plem

enta

tion

of

serv

ices

Are

fund

s ne

cess

ary

for s

ervi

ces

reac

hing

•

LGs

prom

ptly

in c

ase

it de

pend

s on

fisc

al

trans

fer f

rom

CG

? A

re L

Gs

able

to fu

lly e

xecu

te th

eir

• bu

dget

s?

Sta

gnat

ion

of s

ervi

ce im

plem

enta

tion

by L

Gs

due

to d

elay

s in

the

CG

rem

ittin

g gr

ants

< Fr

om th

e pe

rspe

ctiv

es o

f eff

ectiv

enes

s an

d ac

coun

tabi

lity

> W

hen

LGs

are

high

ly d

epen

dent

on

gran

ts fr

om C

G fo

r the

ir se

rvic

e de

liver

y op

erat

ions

, the

life

line

for s

ervi

ces

• ca

n be

the

timel

y re

mitt

ance

of f

unds

from

CG

. H

owev

er it

is fa

irly

com

mon

to o

bser

ve th

is fl

ow to

be

dela

yed

with

sev

ere

cons

eque

nces

, cau

sing

the

LG s

ervi

ce im

plem

enta

tion

to b

ecom

e pa

raly

sed.

In

parti

cula

r, it

is o

ften

the

case

that

the

gran

ts a

re n

ot re

mitt

ed a

t the

beg

inni

ng o

f fisc

al y

ear,

and

that

they

com

e al

l at o

nce

tow

ards

the

end

of th

e fis

cal y

ear,

mea

ning

that

LG

s do

not

hav

e tim

e to

dis

burs

e, th

em a

nd c

onse

quen

tly a

re fo

rced

to s

end

the

fund

s ba

ck to

the

Trea

sury

. Fu

rther

mor

e, s

ince

it is

not

pos

sibl

e to

est

imat

e w

hen

the

fund

s w

ill be

ava

ilabl

e un

der s

uch

circ

umst

ance

s, m

ediu

m a

nd lo

ng-te

rm fo

reca

sts

cann

ot b

e m

ade

for p

lann

ing.

It i

s re

gret

tabl

e th

at th

e ou

tcom

es o

f dec

entra

lisat

ion

refo

rms

are

impe

ded

in th

is w

ay, n

ot d

ue to

an

esse

ntia

l pro

blem

with

de

cent

ralis

atio

n, b

ut to

suc

h pr

oble

ms

of lo

gist

ics.

Thi

s ne

eds

to b

e re

med

ied

at a

ny c

ost.

On

the

othe

r han

d, it

is a

lso

true

that

bud

get a

lloca

tions

can

be

dela

yed

due

to th

e de

ficie

nt c

apac

ity o

f the

LG

. •

14

It a

ppea

rs th

at th

e im

port

ance

of

this

poi

nt is

bec

omin

g re

cogn

ised

in v

ario

us c

ount

ries

. In

Tan

zani

a, th

ere

was

no

com

pone

nt f

or s

ecto

r se

rvic

e de

liver

y in

the

LG

RP

in th

e in

itial

sta

ges,

but

in

rec

ent

year

s th

e im

port

ance

of

harm

onis

atio

n w

ith s

ecto

r re

form

s ha

s be

en e

mph

asis

ed, a

nd i

n 20

06, t

he C

hief

Sec

reta

ry s

umm

oned

the

per

man

ent

secr

etar

ies

from

eac

h of

the

rel

evan

t m

inis

trie

s to

fac

ilita

te th

e im

plem

enta

tion

of th

e L

GR

P. F

urth

erm

ore,

in Z

ambi

a w

here

the

dece

ntra

lisat

ion

refo

rm p

rogr

amm

e w

as in

trod

uced

late

r, co

mpo

nent

s fo

r th

e de

volu

tion

of s

ecto

r au

thor

ity a

re in

corp

orat

ed in

its

DIP

fro

m th

e ou

tset

, pos

sibl

y by

mak

ing

good

use

of

the

earl

ier

expe

rien

ces

of it

s ne

ighb

ours

.

26


2.

Rel

atio

nshi

p to

the

nat

iona

l con

text

and

dev

elop

men

t go

als

at t

he n

atio

nal l

evel

Issu

esC

heck

Poi

nts

Rem

arks

1. H

isto

ry a

nd s

ocie

ty

Rel

atio

nshi

p be

twee

n th

e go

vern

ance

•

syst

ems

orig

inat

ing

from

the

colo

nial

pe

riod

and

the

loca

l soc

ietie

sR

egio

nal d

ispa

ritie

s at

tribu

tabl

e to

eth

nici

ty

• an

d ot

her s

ocia

l asp

ects

E

ffect

s of

neo

-pat

rimon

ialis

m o

n lo

cal

• go

vern

ance

By

natu

re, m

oder

n st

ates

are

“im

agin

ed c

omm

uniti

es”;

but i

n A

frica

, bec

ause

eth

nic

fragm

enta

tion

is s

igni

fican

t •

(and

furth

er a

ccen

tuat

ed b

y co

loni

al s

yste

ms)

, bec

ause

they

hav

e a

rela

tivel

y sh

ort h

isto

ry, a

nd b

ecau

se n

atio

nal

bord

ers

wer

e dr

awn

in a

n ex

trem

ely

unna

tura

l man

ner,

stat

es w

ere

form

ed th

at w

ere

mar

kedl

y ar

tifici

al.

Whe

n m

any

Afri

can

coun

tries

ach

ieve

d in

depe

nden

ce, t

hey

reta

ined

thei

r int

erna

lly fr

agm

ente

d an

d un

stab

le n

atur

e,

durin

g th

eir d

emoc

ratis

atio

n fo

llow

ing

the

end

of th

e C

old

War

, que

stio

ns a

s to

the

legi

timac

y of

this

fram

ewor

k w

ere

revi

site

d. (A

s a

resu

lt, m

any

coun

tries

exp

erie

nced

arm

ed c

onfli

ct.)

Ther

e ar

e di

vers

e et

hnic

ities

: som

etim

es th

ere

are

disp

ariti

es b

etw

een

the

rich

and

the

poor

, and

som

etim

es th

ere

• ar

e so

me

regi

ons

with

in a

cou

ntry

that

iden

tify

with

or h

ave

mor

e hi

stor

ical

con

nect

ions

with

nei

ghbo

urin

g co

untri

es.

Furth

erm

ore,

soc

ial c

ohes

iven

ess

also

var

ies

depe

ndin

g on

the

regi

on.

How

ever

, one

can

als

o re

cogn

ise

certa

in a

dvan

ces

in in

tegr

atio

n an

d re

conc

iliatio

n du

e to

mod

erni

satio

n an

d ur

bani

satio

n as

wel

l as

educ

atio

nal p

olic

ies.

In

som

e ca

ses,

pol

itics

are

gov

erne

d by

the

links

of t

he in

form

al c

hain

bet

wee

n in

fluen

tial p

atro

ns a

nd c

lient

s,

• ra

ther

than

by

the

form

al in

stitu

tiona

l set

ups

of th

e st

ate.

In

case

suc

h in

form

al h

uman

rela

tions

hips

are

form

ed to

lin

k th

e LG

s an

d th

e C

G, a

nd th

e de

cent

ralis

atio

n pr

oces

s m

ay p

rogr

ess

on th

e ba

sis

of s

uch

rela

tions

hips

. Th

e C

G d

evol

ves

reso

urce

s to

the

LGs,

and

in tu

rn, i

t acq

uire

s po

litic

al s

uppo

rt fro

m lo

cal l

eade

rs.

Sim

ilarly

, eve

n af

ter h

avin

g sh

ifted

to m

ulti-

party

sys

tem

s, e

ssen

tially

, par

ties

such

as

the

CC

M in

Tan

zani

a an

d

• th

e N

RM

in U

gand

a st

ill ha

ve a

sig

nific

ant d

egre

e of

pow

er th

at is

unr

ival

led

by th

e ot

her p

artie

s. F

urth

erm

ore,

ve

stig

e s o

f the

sin

gle-

party

sys

tem

rem

ain

in v

ario

us a

spec

ts, a

nd th

e po

litic

al p

artie

s st

ill ha

ve a

stro

ng in

fluen

ce

in lo

cal s

yste

ms

of g

over

nanc

e.

On

the

othe

r han

d, d

ecen

tralis

atio

n ha

s ha

d a

certa

in p

ositi

ve im

pact

in c

ount

ries

like

Ken

ya w

here

stro

ng

• tri

balis

m a

nd a

cen

tralis

ed s

yste

m s

till r

emai

n. F

unds

are

now

reac

hing

the

area

s of

min

or e

thni

c gr

oups

, who

us

ed to

rece

ive

hard

ly a

ny b

enefi

ts fr

om th

e ce

ntra

l adm

inis

tratio

n un

der t

he c

entra

lised

sys

tem

. It

shou

ld b

e ca

refu

lly e

xam

ined

whe

ther

(fina

ncia

l) de

cent

ralis

atio

n w

ill br

ing

a po

sitiv

e re

sult

or n

egat

ive,

whe

n it

is in

trodu

ced

in a

situ

atio

n w

here

the

influ

ence

of e

thni

city

stro

ng.

2. P

oliti

cal a

nd

gove

rnan

ce

syst

ems

Rel

atio

nshi

p be

twee

n a

sing

le-p

arty

•

dict

ator

ship

/mul

ti-pa

rty s

yste

m a

nd

polit

ical

inte

rven

tions

in lo

cal a

reas

B

alan

ce b

etw

een

cent

ral g

over

nmen

t •

cont

rol a

nd lo

cal a

uton

omy

Sin

ce th

e 19

90s,

ther

e ha

ve b

een

coun

tries

whe

re d

emoc

ratis

atio

n ev

olve

d in

con

sona

nce

with

dec

entra

lisat

ion

• (T

anza

nia)

, whi

le th

ere

have

bee

n co

untri

es w

here

dec

entra

lisat

ion

evol

ved

as a

n te

mpo

rary

alte

rnat

ive

to

dem

ocra

tisat

ion

(Uga

nda)

. M

ulti-

party

sys

tem

s fo

rmed

und

er d

emoc

ratis

atio

n du

e to

pre

ssur

es fr

om o

utsi

de a

nd

bein

g dr

iven

from

with

in, b

ut a

s m

ost p

oliti

c al p

artie

s ar

e or

gani

satio

ns th

at re

flect

som

e et

hnic

ity, m

ulti-

party

sy

stem

s ha

d th

e fu

nctio

n of

enc

oura

ging

eth

nic

confl

ict a

t the

cen

tral l

evel

(Rw

anda

, Bur

undi

). D

ecen

tralis

atio

n w

as a

lso

bein

g re

com

men

ded

as a

mec

hani

sm fo

r alle

viat

ing

that

pre

ssur

e (U

gand

a).

In o

rder

to e

xten

d co

ntro

l by

the

cent

ral s

tate

adm

inis

tratio

n as

far a

s lo

cal s

ocie

ties,

to s

tart

with

, a lo

cal

• or

gani

satio

n is

nec

ess a

ry w

hich

func

tions

to a

cer

tain

deg

ree.

How

ever

, und

emoc

ratic

cen

tral c

ontro

l has

nor

mal

ly

prio

ritis

ed re

sour

ce a

lloca

tions

and

lang

uage

pol

icie

s th

at ta

rget

spe

cific

eth

nici

ties

or re

gion

s. T

he v

ery

prin

cipl

e of

dec

entra

lisat

ion

is to

opp

ose

this

. It p

reve

nts

any

rise

of d

isco

nten

t by

givi

ng a

cer

tain

deg

ree

of a

uton

omy

to

each

leve

l of l

ocal

org

anis

atio

n.


27

3. D

evel

opm

ent

stra

tegi

es a

nd

econ

omic

gro

wth

Pos

ition

ing

of d

ecen

tralis

atio

n in

•

fram

ewor

ks s

uch

as th

e P

RS

P an

d M

TEF

Effe

cts

of s

truct

ural

adj

ustm

ent a

nd o

ther

•

past

pol

icie

s on

the

curr

ent s

truct

ure

of

loca

l adm

inis

tratio

n

Sin

ce m

any

poor

peo

ple

live

in ru

ral a

reas

, fro

m a

pol

icy

poin

t of v

iew

, the

prin

cipl

es o

f PR

S a

ccor

d w

ith th

ose

of

• de

cent

ralis

atio

n in

the

sens

e th

at th

ey d

irect

reso

urce

s to

rura

l are

as. F

urth

erm

ore,

as

polic

y m

echa

nism

s, s

ince

P

RS

(and

HIP

Cs,

dep

endi

ng o

n th

e co

untry

) ser

ve a

s fu

nds

for l

ocal

gra

nts

that

are

dire

cted

tow

ard

rura

l are

as,

ther

e w

as n

o co

nflic

t bet

wee

n th

e tw

o. (A

lthou

gh a

ll th

ree

coun

tries

hav

e ra

ised

PR

S, K

enya

is n

ot a

HIP

C.)

Uga

nda

and

Tanz

ania

are

tryi

ng fo

r MTE

F an

d ot

her i

nitia

tives

, eve

n at

the

dist

rict l

evel

. S

ince

cen

tralis

ed a

nd re

pres

sive

sys

tem

s th

at fo

llow

ed in

depe

nden

ce te

nd to

be

syst

ems

of g

over

nanc

e fo

r •

spec

ific

ethn

ic g

roup

s, m

erel

y ad

voca

ting

dece

ntra

lisat

ion

beco

mes

a s

ymbo

lic g

estu

re, p

rom

isin

g a

new

sty

le o

f go

vern

ance

to th

e pe

ople

. Fur

ther

mor

e, it

can

als

o re

duce

the

burd

en o

f the

CG

taki

ng th

e ra

p fo

r fai

led

polic

ies.

S

truct

ural

adj

ustm

ent p

olic

ies

led

to lo

cal s

ervi

ces

bein

g cu

t, an

d so

in th

e 19

90s,

the

publ

ic s

ecto

r was

cal

led

on

to re

stor

e th

em. T

here

was

a p

oint

of v

iew

that

LG

s an

d th

e pr

ivat

e se

ctor

sho

uld

take

cha

rge

of th

is ta

sk, r

athe

r th

an th

e fo

rmer

cen

tral g

over

nmen

t.

4. G

over

nanc

e re

form

fr

amew

orks

P

ositi

onin

g of

dec

entra

lisat

ion

in P

SR

and

•

othe

r ref

orm

fram

ewor

ks

As

outli

ned

abov

e, in

som

e re

spec

ts, t

he a

ppro

ache

s to

an

appr

opria

te b

alan

ce b

etw

een

the

publ

ic a

nd p

rivat

e •

sect

ors,

the

prov

isio

n of

ser

vice

s to

the

citiz

en a

s a

clie

nt, a

nd a

n im

prov

emen

t in

the

effic

ienc

y of

ser

vice

s ac

cord

w

ith th

e pr

inci

ples

of d

ecen

tralis

atio

n. T

anza

nia

is th

e co

untry

that

mos

t atte

mpt

ed to

pro

mot

e de

cent

ralis

atio

n fro

m th

is p

ersp

ectiv

e.

5. S

ecto

r st

rate

gies

P

ositi

onin

g of

the

loca

l ser

vice

del

iver

y in

•

SW

Ap

In o

rder

to s

uppl

y re

sour

ces

to lo

cal s

ervi

ce p

oint

s, th

ere

need

s to

be

defin

ite s

ecto

r pol

icie

s an

d th

e fo

rmat

ion

of

• sy

stem

s. H

owev

er, b

ecau

se s

ecto

r pol

icie

s co

me

unde

r the

juris

dict

ion

of s

ecto

r min

istri

es a

nd b

ecau

se

dece

ntra

lisat

ion

redu

ces

thes

e fu

nctio

ns a

nd b

udge

ts, t

here

are

als

o co

ntra

dict

ory

fact

ors.

Alth

ough

con

ditio

nal

gran

ts w

ith n

o di

vers

ions

of m

onie

s fro

m b

udge

t ite

ms

suite

d to

the

purp

ose

of m

onito

ring

and

prov

idin

g pa

rity

and

cons

iste

ncy

betw

een

the

plan

s an

d bu

dget

s of

the

CG

and

the

actu

al o

pera

tions

at t

he b

otto

m, c

onve

rsel

y, th

ey

also

hav

e th

e di

sadv

ant a

ge o

f con

stra

inin

g th

e di

scre

tiona

ry p

ower

of L

Gs.

28


3.

Rel

atio

nshi

p be

twee

n lo

cal c

omm

unit

ies/

resi

dent

s an

d th

e lo

cal a

dmin

istr

atio

n

Issu

esC

heck

Poi

nts

Rem

arks

1. C

omm

unity

par

ticip

atio

n as

a

com

plem

enta

ry m

easu

re to

th

e w

eak

low

er-le

vel l

ocal

ad

min

istr

atio

ns

Are

ther

e an

y ca

ses

whe

re lo

cal r

esid

ents

are

•

invo

lved

in th

e pl

anni

ng a

nd im

plem

enta

tion

of

som

e se

rvic

e de

liver

y th

at is

sup

pose

d to

be

cove

red

by th

e go

vern

men

t? A

re th

ere

any

case

s w

here

the

resi

dent

s/co

mm

uniti

es a

re

inde

pend

ently

runn

ing

som

e sp

ecifi

c se

rvic

es?

Are

ther

e an

y ca

ses

whe

re N

GO

s or

oth

er lo

cal

• su

ppor

t org

anis

atio

ns a

re s

houl

derin

g th

e ab

ove-

men

tione

d se

rvic

es?

In c

ases

like

thos

e de

scrib

ed in

the

abov

e tw

o •

poin

ts, w

hat k

ind

of ro

le d

oes

the

gove

rnm

ent

assu

me,

and

wha

t kin

ds o

f rel

atio

nshi

ps h

as th

e go

vern

men

t bui

lt w

ith th

ese

colle

ctiv

e ac

tions

? To

wha

t ext

ent h

as th

e co

vera

ge o

f •

adm

inis

trativ

e se

rvic

es b

road

ened

and

how

m

uch

mor

e ef

ficie

nt h

ave

they

bec

ome

as a

re

sult

of th

e pa

rtici

patio

n an

d co

oper

atio

n of

the

resi

dent

s?

How

larg

e is

the

exis

ting

mar

ket i

n w

h ich

•

adm

inis

trativ

e se

rvic

es c

an b

e ou

tsou

rced

to th

e pr

ivat

e se

ctor

?

It is

com

mon

for t

he lo

wes

t-lev

el lo

cal a

dmin

istra

tions

of L

Gs

in d

evel

opin

g co

untri

es to

be

• ex

trem

ely

wea

k, a

nd it

is v

irtua

lly im

poss

ible

for t

hem

to s

atis

fact

orily

pro

vide

all

nece

ssar

y se

rvic

es in

depe

nden

tly.

Now

, as

a w

ay o

f sup

plem

entin

g th

is in

adeq

uacy

, atte

ntio

n is

bei

ng

draw

n to

the

colle

ctiv

e ac

tion

of th

e re

side

nts

and

adm

inis

tratio

ns a

s an

alte

rnat

ive

patte

rn fo

r pe

rform

ing

adm

inis

trativ

e se

rvic

es a

nd p

rogr

amm

es.

Her

e w

e id

entif

y ca

ses

of c

olla

bora

tion

betw

een

adm

inis

tratio

ns a

nd re

side

nts

or th

e pr

ivat

e •

sect

or, a

nd e

xam

ine

to w

hat e

xten

t the

se e

xerc

ises

fulfi

l the

abo

ve fu

nctio

n, a

s w

ell a

s th

e ex

tent

to w

hich

this

cou

ld b

e ef

fect

ive

as o

ne o

f the

opt

ions

for s

ervi

ce d

eliv

ery

impl

emen

tatio

n by

loca

l adm

i nis

tratio

ns.

2. C

omm

unity

par

ticip

atio

n as

a

mea

ns to

refl

ect t

he n

eeds

of

ben

efici

arie

s in

the

adm

inis

trat

ive

serv

ices

In w

hat m

anne

r and

to w

hat e

xten

t are

resi

dent

s •

parti

cipa

ting

in th

e pl

anni

ng p

roce

sses

for l

ocal

ad

min

istra

tive

serv

ices

?To

wha

t ext

ent a

re th

ere

colla

bora

tive

• re

latio

nshi

ps b

etw

een

the

loca

l adm

inis

tratio

n an

d lo

cal c

omm

uniti

es in

the

deliv

ery

of

serv

ices

? H

ow a

re th

e ne

eds

and

the

opin

ions

of

resi

dent

s be

ing

refle

cted

in th

is?

Are

ther

e ex

ampl

es w

here

col

labo

ratio

n •

betw

een

loca

l adm

inis

tratio

n an

d pe

ople

ís

colle

ctiv

e ac

tions

has

resu

lted

in b

ette

r acc

ess

to

serv

ices

for t

he p

oor a

nd th

e w

eak?

W

hat l

evel

of s

atis

fact

ion

have

loca

l res

iden

ts

• fe

lt th

roug

h pa

rtici

patin

g in

the

plan

ning

and

/or

impl

emen

tatio

n of

ser

vice

del

iver

y an

d th

roug

h be

nefit

ing

the

serv

ices

?

It is

exp

ecte

d th

at th

e pr

oces

s of

col

labo

ratio

n be

twee

n lo

cal r

esid

ents

and

adm

inis

tratio

ns,

• na

mel

y, p

artic

ipat

ory

plan

ning

→ in

volv

emen

t of r

esid

ents

in im

plem

enta

tion →

enj

oym

ent o

f the

be

nefit

s of

ser

vice

s, c

an b

e an

effe

ctiv

e m

eans

of r

eflec

ting

the

need

s of

the

bene

ficia

ries.

Thi

s po

int s

houl

d be

ver

ified

by

anal

ysin

g in

divi

dual

cas

es.


29

Hav

e th

ese

kind

s of

col

labo

rativ

e re

latio

nshi

ps

• re

sulte

d in

gre

ater

con

tact

bet

wee

n th

e lo

cal

adm

inis

tratio

n an

d th

e lo

cal r

esid

ents

? H

ave

the

loca

l adm

inis

tratio

n an

d re

side

nts

appr

ecia

bly

chan

ged

thei

r per

cept

ions

and

atti

tude

s to

war

ds

each

oth

er?

3. I

mpr

ovem

ent i

n th

e ac

coun

tabi

lity/

tran

spar

ency

of

adm

inis

trat

ive

serv

ices

as

a re

sult

of c

omm

unity

pa

rtic

ipat

ion

Wha

t kin

ds o

f per

cept

ions

do

loca

l res

iden

ts

• ha

ve w

ith re

spec

t to

the

loca

l adm

inis

tratio

n an

d lo

cal a

dmin

istra

tive

serv

ices

? W

hat k

inds

of i

nfor

mat

ion

does

the

LG d

iscl

ose/

• pr

esen

t to

the

loca

l res

iden

ts w

ith re

spec

t to

the

rele

vant

col

labo

rativ

e ac

tiviti

es?

Thro

ugh

colla

bora

ting

with

the

adm

inis

tratio

n, d

o •

the

resi

dent

s fe

el th

at th

e tra

nspa

renc

y of

the

adm

inis

tratio

n ha

s im

prov

ed?

It is

exp

ecte

d th

at c

omm

unity

par

ticip

atio

n in

pla

nnin

g an

d im

plem

enta

tion

proc

esse

s of

•

adm

inis

trativ

e se

rvic

es c

an a

lso

be e

ffect

ive

from

the

pers

p ect

ive

of a

ccou

ntab

ility/

trans

pare

ncy

to th

e lo

cal r

esid

ents

. W

e an

alys

e in

divi

dual

cas

es to

ver

ify th

is p

oint

.

4. D

evel

opm

ent o

f cre

dibi

lity

betw

een

the

loca

l ad

min

istr

atio

n an

d th

e re

side

nts/

loca

l com

mun

ities

th

roug

h pa

rtic

ipat

ion

and

colla

bora

tion

(per

spec

tive

of

legi

timac

y)

Hav

e th

ere

been

app

reci

able

cha

nges

in th

e •

perc

eptio

n of

the

resi

dent

s/lo

cal c

omm

unity

to

war

ds th

e go

vern

men

t/adm

inis

tratio

n th

roug

h ex

perie

ncin

g th

e re

leva

nt c

olla

bora

tive

prog

ram

mes

? S

imila

rly, h

ave

ther

e be

en a

ppre

ciab

le c

hang

es

• in

the

min

dset

/atti

tude

of t

he lo

cal a

dmin

istra

tion

offic

ials

with

resp

ect t

o co

llabo

ratio

n w

ith th

e lo

cal c

omm

unity

?

< Fr

om th

e pe

rspe

ctiv

e of

legi

timac

y >

In th

e pa

st, A

frica

n st

ates

and

gov

ernm

ents

pro

vide

d ha

rdly

any

sig

nific

ant a

dmin

istra

tive

• se

rvic

es fo

r whi

ch re

side

nts

wer

e ab

le to

feel

any

ben

efits

. Th

eref

ore,

bui

ldin

g le

gitim

acy

as a

st

ate

has

been

an

impo

rtant

issu

e fo

r the

gov

ernm

ents

of v

ario

us A

frica

n co

untri

es.

This

als

o gi

ves

caus

e to

the

just

ifica

tion

of d

ecen

tr alis

atio

n re

form

s, a

nd it

is s

aid

that

, thr

ough

de

cent

ralis

atio

n, g

over

nmen

ts w

ill at

tem

pt to

pro

vide

bas

ic s

ervi

ces

from

a p

ositi

on c

lose

r to

the

resi

dent

s. F

rom

this

per

spec

tive,

the

build

ing

of c

oncr

ete

rela

tions

hips

of t

rust

thro

ugh

colle

ctiv

e ac

tion

and

colla

bora

tive

expe

rienc

es b

etw

een

resi

dent

s an

d ad

min

istra

tions

is p

erce

ived

as

an

effe

ctiv

e m

eans

for a

chie

ving

this

. W

e w

ill ve

rify

this

poi

nt th

roug

h ex

amin

ing

indi

vidu

al c

ases

.

5. E

nhan

cem

ent o

f the

sel

f-or

gani

sing

cap

abili

ty o

f the

sm

alle

st u

nit o

f loc

al

auto

nom

y (c

omm

uniti

es/

natu

ral v

illag

es) a

nd

enha

ncem

ent o

f net

wor

ks

betw

een

them

and

LG

s

Thro

ugh

colle

ctiv

e ac

tion,

wha

t kin

ds o

f gro

ups

• ha

ve b

een

form

ed w

ithin

the

smal

lest

uni

t of

loca

l aut

onom

y (c

omm

uniti

es/n

atur

al v

illage

s)?

In

wha

t way

and

to w

hat e

xten

t hav

e th

eir

self-

orga

nisi

ng c

apab

ilitie

s be

en e

nhan

ced?

(th

eir i

nstit

utio

nal c

apac

ity to

resp

ond

prop

erly

to

chan

ging

ext

erna

l env

ironm

ents

and

to d

eal w

ith

the

dive

rse

rang

e of

em

ergi

ng is

sues

on

thei

r ow

n)

Sim

ilarly

, in

wha

t way

s ha

ve s

yste

ms

of

• co

llabo

ratio

n an

d co

ordi

natio

n be

twee

n th

ese

com

mun

ities

and

the

loca

l adm

inis

tratio

n be

en

deve

lope

d an

d en

hanc

ed?

As

the

smal

lest

uni

ts o

f loc

al a

uton

omy,

LC

1s in

Uga

nda,

Villa

ges

and

Kito

ngoj

i (Vi

tong

oji)

in

• Ta

nzan

ia, a

nd lo

catio

ns a

nd S

ub-L

ocat

ions

in K

enya

hav

e pl

ayed

a h

ighl

y im

porta

nt ro

le

hist

oric

ally

in d

ecis

ion-

mak

ing

of re

side

nts.

At t

he n

atio

nal l

evel

and

at t

he h

ighe

r LG

leve

ls,

rela

tions

hips

of t

rust

hav

e te

nded

to b

e w

eak

(at l

east

as

thin

gs c

urre

ntly

sta

nd) a

s a

resu

lt of

be

ing

influ

ence

d by

trib

es, p

oliti

cal p

artie

s an

d ot

her f

acto

rs, a

nd a

s a

resu

lt of

bei

ng fu

rther

re

mov

ed fr

om re

side

nts.

Fro

m th

e pe

rspe

ctiv

e of

sel

f-gov

erna

nce,

the

low

er u

nits

men

tione

d ab

ove

have

bec

ome

extre

mel

y si

gnifi

cant

as

b ein

g lik

e na

tura

l villa

ges.

Als

o fro

m th

e pe

rspe

ctiv

e of

adm

inis

tratio

n, in

con

trast

to h

ighe

r lev

els

of g

over

nmen

t, w

hich

are

mor

e pr

one

to b

eing

stro

ngly

influ

ence

d by

the

verti

cal a

dmin

istra

tion

of s

ecto

r min

istri

es, a

t the

low

er le

vels

of

LG

, the

se e

ffect

s ar

e w

eake

r. M

oreo

ver,

bein

g cl

oser

to th

e re

side

nts,

they

refle

ct c

omm

unity

ne

eds

mor

e ea

sily,

and

they

are

rela

tivel

y m

ore

cond

uciv

e to

rela

tions

hips

of c

olla

bora

tion

and

coor

dina

tion

in e

ach

sect

or.

Col

lect

ive

actio

n an

d co

llabo

ratio

n w

ith a

dmin

istra

tions

are

ex

pect

ed to

be

valu

able

opp

ortu

nitie

s fo

r the

cap

acity

dev

elop

men

t of e

ach

of th

ese

units

, whi

ch

is p

erce

ived

as

bein

g tre

men

dous

ly im

porta

nt fo

r the

dev

elop

men

t of l

ocal

aut

onom

y in

Afri

ca.

30


6. N

urtu

ring

a p

erce

ptio

n of

se

lf-go

vern

ance

(vill

age

auto

nom

y) fo

r re

side

nts

and

loca

l com

mun

ities

thro

ugh

part

icip

ator

y de

velo

pmen

t

Thro

ugh

colle

ctiv

e ac

tion,

to w

hat e

xten

t has

the

• pe

rcep

tion

of s

elf-g

over

nanc

e be

en e

nhan

ced,

de

velo

ping

aw

aren

ess

and

willi

ngne

ss o

f the

re

side

nts

to p

artic

ipat

e to

mak

e th

eir c

omm

unity

be

tter?

It is

exp

ecte

d th

at th

e ex

perie

nce

of lo

cal c

omm

uniti

es re

solv

ing

thei

r ow

n pr

oble

ms

them

selv

es,

• an

d ov

erco

min

g pr

oble

ms

in c

oope

ratio

n w

ith th

e ad

min

istra

tion

and

othe

r sup

port

orga

nisa

tions

w

il l be

a v

alua

ble

oppo

rtuni

ty to

stim

ulat

e an

aw

aren

ess

of s

elf-g

over

nanc

e by

loca

l co

mm

uniti

es.

We

will

verif

y th

is p

oint

thro

ugh

look

ing

at in

divi

dual

cas

es.

7. T

he e

xper

ienc

e of

loca

l au

tono

my

as a

“sc

hool

of

dem

ocra

cy”

(exp

erie

nce-

base

d le

arni

ng p

roce

ss)

In v

iew

of a

ll of

the

abov

e, a

s an

exp

erie

nce-

• ba

sed

lear

ning

pro

cess

, has

the

expe

rienc

e of

co

llabo

ratio

n th

roug

h co

llect

ive

actio

n be

twee

n th

e lo

cal a

dmin

istra

tion

and

the

loca

l com

mun

ity

led

to a

stro

nger

dem

ocra

cy?

In o

rder

to re

ali s

e tru

e lo

cal a

uton

omy

and

dece

ntra

lisat

ion,

whi

ch is

bas

ed o

n th

e de

velo

pmen

t •

of a

civ

il so

ciet

y,

the

loca

l civ

il so

ciet

y ne

eds

to b

e en

hanc

ed th

roug

h th

e ac

cum

ulat

ion

of th

ese

type

s of

ex

perie

nces

ove

r the

long

term

.

Issu

esC

heck

Poi

nts

Rem

arks

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