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Session 1.2. Concepts and rationale:
Creating a systemic view on decentralisation
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Session Overview
1. Introduce the various dimensions of decentralisation
2. Increase the understanding of decentralisation as an “open system” of different interacting elements
3. Increase the understanding of the complexity of decentralisation
4. Blueprints to decentralisation don't exist
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Democratic imperative
Decentralisation
Achieving MDGs
Pressures from below (local
governments and civil society
Effective service delivery
local economic development
urban growth and spatial planning
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Potential benefits of decentralisation
Improved efficiencyImproved governanceImproved equityImproved development and poverty reduction
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PROsPROsPROsPROs CONsCONsCONsCONs
• Better service deliveryBetter service delivery
• Local democratisation and Local democratisation and
local governancelocal governance
• Improved equityImproved equity
• Improved development and Improved development and
poverty reductionpoverty reduction
• Mismatch mandates and Mismatch mandates and delivery capacitydelivery capacity
• Elite capturing and ‘bad Elite capturing and ‘bad local governance’local governance’
• Inter-jurisdictional Inter-jurisdictional disparitiesdisparities
• Local development not Local development not supported by central supported by central
policiespolicies
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The Two Waves of Decentralisation
Earlier wave of decentralisation focused on re-organization public sector (de-concentration)
1990s: recent wave of decentralisation
New model based on four building blocks:
Democratically elected local governments (devolution of
powers to autonomous local
bodies)
Local governance(civil society participation
and downward accountability)
Local (economic)
development(pro-poor
Decentralisedservice delivery
State modernization
and overall public sector
reform
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Decentralisation
1 : Political Decentralisation
2 : Administrative Decentralisation
3 : Fiscal Decentralisation
4 : Local government – local governance - local economic development
5 : Territorial planning
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Existence of bodies separated by law with
from centreAdapting public institutions to decentralised
context
Organisation downward accountability
A well-developed and inclusive local political process (participation)
Free and fair elections
Devolution of power to local governments
Local autonomy to programme and
spend (own) resources
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Existence of lower levels of government, agencies,
field offices
Delivery of public services & functions
at lower levels
Execution ‘on behalf of’ central government
Clarifying accountability lines to local and central government (control/ tutelle)
Ensuring effective local-
intergovernmental relationships
Transferring decision-making
authority, resources
Building institutional capacities at lower
levels
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Resources for Local
governments
Allocation of responsibilities among levels of government
Impact of fiscal decentralisation?
Central government control
(upward accountability)
Fiscal transfer systems among different levels of government
Introduction of planning and
budgeting cycle at decentralised level
Allocation various taxes among levels
of government
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Tendencies and paradoxes
Administrative Decentralisation
Political Decentralisation
Fiscal Decentralisation
Devolution
Deconcentration
Divestment and Privatisation
Delegation
Pu
blic
Sec
tor
Pri
vat
e se
cto
r/ n
on
-g
ov
ern
men
tal
inst
itu
tio
ns
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Emergence and consolidation
of legitimate, effective and viable local
governments
Recognising legitimate role (‘obligatory entry
point’)
Accountability of local governments
(upwards, horizontal, downwards)
Local public finance
Local government capacity building
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Responsive andaccountable
local governments
Institutional and organisational set-up for local governance process
Existence and quality of accountability
mechanisms
Mechanisms for exchange of information and dialogue
Improvement local finances
(including citizen’s willingness to pay
taxes
Empowerment civil society (dialogue
partners and ‘watchdog’
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Partnerships local governments, private sector and
communities in defined area
Acceptance ‘catalyst’ role local governments
New generation of local economic
development (LED) initiatives
Impact decentralised decisions on the local
economy
Link local development and territorial planning
Local coalitions in support of integrated
local development strategies
Link local level dynamics to
processes at upperlevel
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Coordinating decentralisation with
territorial (spatial)planning
Is territorial division of country conducive to decentralisation?
Ensure provision of spatial planning
information (in addition to sectoral information)
Creation of ‘regional hubs’ to ensure articulation between decentralisation and
territorial planning
Promoting social and economic synergies between urban and rural municipalities
Linking admin. decentralisation with
inter-sectoral coordination
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Decentralisation: a work in progress
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Decentralisation: a complex reality
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Simple and complex systems
Cooking
Simple
Predictable
Recipe
Decentralisation
Complex
Not predictable
Assessment
Scenarios
Adaptive management
Social learning
Puzzle
Simple
Predictable
Single solution
Trial & error
Machine
Complicated
Not predictable
Guidelines
Problem tree
Planning
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ComplicatedComplex
Chaotic Simple
Source: Cognitive Edge (www.cognitive-edge.com)
Cynefin Framework
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How to understand complex realities?
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Ping pong ball game
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Seeing the broader picture
Moving beyond normative – technocratic concepts
Start from decentralisation realities on the ground
Thinking in systems and feedback loops
Adopt an 'open-system perspective'Focus on linkages between different
dimensions of decentralisationDecentralisation as a multi-actor,
multi-sector and multi-perspective process
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Thinking in systems
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Decentralisation as an ‘open system’
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Examples of linkages (1)
Political decentralisation dependent on administrative and fiscal decentralisation (communes without capacities/resources)
Decentralisation dependent on broader state reforms
Decentralisation dependent on democratisation (flawed elections erode legitimacy)
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Examples of linkages (2)
Link between decentralisation as ‘political process’ and local development dynamics’
Need to move from ‘local governments’ to ‘local governance’
Local actors want to participate in national/sectoral policy processes
Decentralising the mind of donor agencies (local government vs. community projects)
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Visualisation of linkages
Administrative Decentralisation
Political Decentralisation
Fiscal Decentralisation
Broader State
Reforms
Democratisation
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The danger of imposing blueprints…
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From blue prints to co-design