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strengthening the centre to enable
effective local governance
PAR & Decentralisation
UNDP Practice Meeting
Bratislava, 20 April 2004
Luigi N. TessioreDecentralization & Local Governance Policy Advisor
Central and Eastern African Sub-Regional Resource Facility UNDP
April 2004 PAR PresentationLNT
2
Main goal of PA
The main goal of public sector activities is to meet citizens’ needs
Is decentralization the panacea?
April 2004 PAR PresentationLNT
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The Paradigm of Decentralization
Poverty reduction
Local Development
Good Local Governance
Decentralization Reforms
April 2004 PAR PresentationLNT
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Decentralization
Brings a plurality of decision making centres dealing with:
• Political aspects
• Administrative aspects
• Fiscal aspects
This raises concerns…… about the political agenda
April 2004 PAR PresentationLNT
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Defining good local governanceWhat do we understand as “good local governance”? good local governance is seen as an institutional system (a set of organizational and procedural measures) for managing local public affairs. This system should be characterized by three critical dimensions[1]:(a) Performance of the local authorities (in terms of fiscal effort and discipline, as well as allocative and operational efficiency) in managing public resources and discharging their responsibilities for: 1. Delivery of economic and social services, 2. Protection of the environment and management of natural resources 3. Promotion of economic development,(b) Participation of organized and individual citizens in local public sector decision-making, through mechanisms that supplement and enhance, rather than replace or contradict, the functioning of the institutions of democratic representation,(c) Partnership, between local authorities, civil society organizations and private sector units for the provision and production of local collective goods and services.
[1] See Romeo, Leonardo, UNCDF: "A Local Governance Approach to Post-Conflict Recovery" October 2002.
April 2004 PAR PresentationLNT
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STOP 1
April 2004 PAR PresentationLNT
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Spread of PAR interventions in Africa
• Typology (i) Promoting a Professional Civil Service, (ii) Functional Reviews, (iii) Training of Civil
Servants, (iv) ICT to Enhance Public Services: same as other regions
• HDI: 60% of interventions are in Low HDI, opposite to the general trend of other regions that see
a concentration in Medium HDI countries
April 2004 PAR PresentationLNT
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PAR sectors
• Civil service reform
• Improving policy making systems
• Reforming the machinery of government
• Reforming the public expenditure management system
April 2004 PAR PresentationLNT
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Decentralization reforms
Fiscal
•Revenues collection & management•Tax collection & management•Investment planning•Public expenditure management system•Fiscal transfers & compensatory mechanisms
Administrative
•De-concentrate administration•Inter-governmental administrative relations•Civil service structures•Competencies & Procedures •ICT
Political •Policy making systems•Inter-institutional relations•Overlooking bodies
April 2004 PAR PresentationLNT
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PAR Decentralization
Reforming the public expenditure management system
Fiscal
Civil service reform Administrative
Improving policy making systems;
Reforming the machinery of government
Political
April 2004 PAR PresentationLNT
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Fiscal decentralizationUP-STREAM• Inter-Governmental Fiscal Relations
– Treasury– Revenues collection & management– Tax collection & management– Fiscal transfers & compensatory mechanisms
DOWN-STREAM
• Participatory Planning and Budgeting – Investment planning, M&E– Public expenditure management system– Audits (internal & external) and oversight
April 2004 PAR PresentationLNT
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Challenges in Designing and ImplementingIntergovernmental Transfers
• Macroeconomic Concerns
• The Challenge of Multiple Objectives
• Criteria for Allocating Resources
• Political and Bureaucratic Interference
• Overall Effects of Intergovernmental Transfer Programs
(Paul Smoke – ADB)
April 2004 PAR PresentationLNT
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Civil service reform
Promoting a Professional Civil Service• Facilitate passages/transfers of CS from central to local
administrations; • One or more independent CS?? (integrated with the
other levels);• Key areas and necessary tools:
• Legal compatibility of CS structures and hierarchy at central and local level (grades, functional positions, etc.);
• Legal equivalence of salary scales;• Homogeneity of recruitment and selection systems; • Packages, incentives for leaving central administration; • Packages, incentives for transfers of CS form central to local;• Legal mechanisms for facilitating rotation, exchange, of CS
between different levels of PA;
April 2004 PAR PresentationLNT
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Improving policy making systems
• Facilitate inter-institutional dialogue and negotiations;
• Avoid duplications and overlapping of responsibilities between different institutional levels;
• Key areas and necessary tools:
April 2004 PAR PresentationLNT
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Training of Civil Servants
• Include the three levels of capacity (systemic, institutional and individual);
• Concentrate on the legal competencies of the LG;
• Focus on inter-institutional dialogue and negotiation capacity;
• E-training (when feasible) can contribute to both (i) development of capacity and (ii) creation of LG network
April 2004 PAR PresentationLNT
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Key areas and necessary tools 1
A) Developing local governments capacity should cover three dimensions:
a. The build up of a systemic capacity for effective and cooperative intergovernmental relations between local authorities and the central and de-concentrated public administration;
b. The strengthening of institutional capacity, through the introduction of improved methods and organizational arrangements for managing local public sector resources.
c. The improvement of individual capacities through training of elected personnel and local administration staff.
April 2004 PAR PresentationLNT
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Key areas and necessary tools 2
B) Developing local capacityLocal capacity to plan and manage the delivery of sustainable public
services requires a systemic approach that recognizes three critical levels:
a) The local governments themselves, where capacity must be built to plan, program, budget, implement, monitor and evaluate local services delivery, environment and development activities.
b) The de-concentrated State administration, (at provincial/regional level) where capacity must be built to provide the financial and technical support that local authorities will require and exercise the necessary legality controls and performance monitoring.
c) The communities of residents, whose settlement-level and special interests organizations must be promoted and strengthened to actively participate in local government processes of allocation of resources and programs/projects implementation.
April 2004 PAR PresentationLNT
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Reforming the machinery of government
ICT to Enhance Public Services (ATTENTION ICT is only a tool)
• First the government should work, after we can think about e-government;
• Opposite to central administrations, local ones deliver proximity services. This makes the impact of ICT on local services delivery different, and need specific attention on maintenance cost and long term sustainability of investments;
• Concentrate on economic development and critical enabling sectors, and core institutional activities (civil registry, electoral registry, etc.);
• Strategic impact of local government networks (e-training and e-government);
April 2004 PAR PresentationLNT
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ICT to Enhance Public Services
Key areas and necessary tools:• Asses ex ante availability and cost of
communications and energy;• Concentrate on rentable investments:
Land use and management and cadastre (GIS);
• Local civil registry and electoral registry are powerful tools for democracy, participation and transparency;
April 2004 PAR PresentationLNT
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Issues and PotentialitiesPolitical agenda MDGs, poverty alleviation
thru services delivery
Localize interventions different specific needs/tools
Bottom-up approach from practice to policy
Separation of roles and integration of policies
avoid duplications and increase performance
Networking, relations, connections
dialogue both inter-institutional and social
April 2004 PAR PresentationLNT
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cito
yens
/ éle
cteurs
structures représentatives
structures exécutives
services techniques
capacités de planification
capacités budgétaires
livra
ison d
e se
rvic
es
LG Horizontal accountability
Administrative accountability
Political accountability
April 2004 PAR PresentationLNT
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Local Dialogue Framework & Network (Sudan)
??% of women seats in all structures ??
LO
CA
LIT
YC
om
mu
nit
yS
TA
TE
LOCALITY
COMMUNITY
STATEInhabitants
ElectorsProducers
Inhabitants Electors
Producers
Locality dialogue place
State dialogue place
Community dialogue place
Social Dialogue system Civil SocietyLocal Governments
Community grassruth
organizations
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