Strengthening the centre to enable effective local governance PAR & Decentralisation UNDP Practice Meeting Bratislava, 20 April 2004 Luigi N. Tessiore

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

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Main goal of PA

The main goal of public sector activities is to meet citizens’ needs

Is decentralization the panacea?


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The Paradigm of Decentralization

Poverty reduction

Local Development

Good Local Governance

Decentralization Reforms


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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


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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.


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STOP 1


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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


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PAR sectors

• Civil service reform

• Improving policy making systems

• Reforming the machinery of government

• Reforming the public expenditure management system


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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


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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


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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


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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)


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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;


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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:


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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


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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.


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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.


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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);


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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;


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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


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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


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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

Documents

Strengthening the centre to enable effective local governance PAR & Decentralisation UNDP Practice Meeting Bratislava, 20 April 2004 Luigi N. Tessiore