Fumihiko Saito

Decentralization and Local Governance: Introduction and Overview

In many parts of the world today, various forms of decentralization measures are now implemented. It is hoped that decentralized states will fulfill high expectations reflecting the demands of our time. These measures are expected to make the states both democratic and developmental. Toward democratization, decentralization intends to widen the opportunities for citizens to participate in local decision-making processes. As for economic development, the decentralized states are expected to reduce poverty by making public services more responsive to the needs of people. Decentralization, therefore, has often been regarded as a “panacea” as well as a normatively justified policy that has no room for criticism.

Possibility of Creating a Deliberative Solution in Uganda

As we have seen in the previous chapter, Uganda’s attempt at decentralization is at least one of the most ambitious in Africa, and could possibly be the most ambitious in Sub-Saharan Africa except for South Africa (Ndegwa 2002). It is thus worth revisiting its experience with a particular focus on the extent to which the decentralized structure of the LC system facilitates deliberative processes for resolving common issues at the grassroots. Assessing deliberation in Uganda generates important lessons for debating the direction and likelihood of development in the world in general, and Africa in particular.

A Continuing Role for Rickshaws in Dhaka, Bangladesh

ABSTRACT Dhaka, the capital of Bangladesh, has a unique problem in managing large volumes of cycle rickshaw traffic. This problem can only be solved by an integrated approach to urban and transportation planning which respects and is sensitive to the underlying social and economic role of this unique form of affordable door-to-door mode of transportation. This paper examines the reasoning behind some of the necessary measures to ensure that rickshaws can continue to play an important role in the citys life. These measures include an improvement in traffic management and enforcement schemes as well as an upgrading of the current rickshaws design for better passenger safety and to improve the welfare of the drivers.

Poverty, Empowerment and the Local Council: Views from the Grassroots

This chapter presents the views of people at the grassroots about how the Local Council system should, as well as does function. In order to obtain a wide range of views, the three districts were selected for this study. These three districts represent, interestingly enough, slightly different degrees of poverty and development within Uganda. Generally Mukono, being close to Kampala, outperforms the national average, while the other two districts do not. Tororo faces more problems than Rakai. But all three districts are improving in the Human Development Index in the 1990s (UNDP, 1998). Therefore, comparisons among the three districts are useful for observing the similarities and differences of the impact of decentralization efforts (Tables 4.1 and 4.2). Tables 4.1 District human development profile Income index Education index Life expectancy index Human Development Index Mukono 0.285 0.62 0.4483 0.44 Tororo 0.174 0.505 0.392 0.375 Rakai 0.2231 0.548 0.4033 0.3784 National Average 0.2098 0.605 0.4323 0.4046 Sources: UNDP [1998] Uganda Human Development Report 1998,(Kampala, UNDP), p.15; and UNDP [1997] Uganda Human Development Report 1997,(Kampala, UNDP), p.13. Note: Data of Mukono and Rakai are from 1996, while that for Tororo is from 1995. Table 4.2 District human poverty profile Not expected to survive to age 40 (%) (1996) Illiteracy (P2) (%) (1995) No access to safe water (%) (1995) No access to health services(%) (1995) Underweight children (%) (1996) Human Poverty Index (1996) Mukono 33.1 38.1 86 55.7 25.9 43.8 Tororo 37.8 46.9 80.5 55.6 34.4 47.4 Rakai 36.7 35.2 94.6 60.7 25.9 46.2 National Average 36.3 38.4 51.5 51 31.8 39.3 Source: UNDP [1998] Uganda Human Development Report 1998,(Kampala, UNDP), p. 22.

Evolution of Decentralization in Uganda: Opportunities, Perceptions and Constraints

This chapter examines the historical background of Uganda in order to clarify the context in which decentralization measures are currently implemented. The post-independent history of Uganda since 1962 reveals long-lasting civil strife, decaying state institutions and economic bankruptcy. When the National Resistance Movement (NRM) seized power in 1986, it did not want to repeat this painful past (The name of “resistance” reflected their guerrilla struggle and political desire of rejecting instability in their regime). The NRM wished to pursue decentralization to widen popular support by increasing people’s participation in decision making through local governments. This policy was intended to contribute to more effective socio-economic development with the ultimate goal of reducing persistent poverty in the country.1 The NRM’s decentralization efforts, with donor support, have been accelerated since 1993. The Constitution, 1995, and the Local Governments Act, 1997, provide rights and responsibilities for local governments. While these legislations have created opportunities for stakeholders to negotiate mutually agreeable outcomes, turning the opportunities into sustained improvement of local livelihood remains a serious challenge.

The Representation of the Disadvantaged: Women, Youth and Ethnic Minorities

There are certain social groups which are more disadvantaged and vulnerable than others. In this chapter, the examples of women, the youth, and ethnic minorities in Uganda are discussed. The first section reviews gender disparities and how women relate to the LC system. The second part analyzes the relationship between youth and the NRM. In the third section, the issue of ethnic diversity and its implications for the LC system are examined. More emphasis is placed on gender than on age and ethnicity issues, partly because the NRM places significant emphasis on the role of women, which is clearly stated in the constitution as well.1 This research suggests that the decentralized state has a mixed impact on the formation of partnerships for respective disadvantaged groups.

Decentralization Debate: Democracy, Development and Collective Action

The background in which decentralization measures are implemented in developing countries, especially in Africa, is complicated. The modern state was born in a particular historical context of sixteenth to eighteenth century Europe. This form of political order was extended to different parts of the world, including Africa, by the expansion of Europe which was then the dominant world power. The transition from colonial to native authorities did not necessarily improve democratic practices or economic well-being for the majority of Africans. Legacies of colonialism, although they are not the only factor contributing to contemporary difficulties faced by the tropical countries, still exert profound influences on today’s political and economic affairs.

Decentralized Primary Education: Potential of Community Contributions

People in Uganda consider education to be critical to overcome pervasive poverty, which has persisted over generations. They cite lack of education as one of the major reasons for poverty. The poor often say that people with education have a better life. This is why communities continued to assist local schools during the period of social turmoil and the virtual collapse of public services in the 1970s and the early 1980s. The NRM has also been making education one of its priorities for development. In 1996, during the presidential election, incumbent President Yoweri Museveni promised the Universal Primary Education (UPE) as a new policy for poverty reduction. The UPE was formally launched in December 1996, and its implementation started the following year. It is essentially a subsidy to cover the cost of tuition for four children per family.1

Decentralization and Health Services: Challenge for Public Confidence

Just like education, health is also important for mitigating poverty in Uganda. Health can be broadly defined as a state of physical, mental and social well-being and not merely the absence of disease. The poor certainly acknowledge that poor health is one of the major causes and consequences of poverty. Thus, maintaining good health is one of the essential conditions for people to use their abilities fully.

Fiscal Decentralization: Re-centralization by Other Means?

Finance is a major terrain in which stakeholders compete and collaborate. Fiscal decentralization affects the prospects of partnership formations among often contending stakeholders. Uganda has used a phased approach in fiscal decentralization. In FY 1993/94 a first group of 13 districts were allowed to make certain decisions on tax collection and revenue allocations. In FY 1994/95, a second group of another 13 districts followed, and then a third batch of 13 districts in FY 1995/96. During this initial phase, an experiment was made to share revenues among different levels of local governments. The earlier experiences assisted the formulation of the Constitution, 1995, that provides three forms of central government transfers to local governments. First, unconditional grants are provided for discretionary use by local authorities. Second, conditional grants are funds already earmarked for specific activities by the central government. The third form is equalization grants for districts, which cannot provide public services up to national standards. In FY 1997/98, all districts were financially decentralized in terms of recurrent expenditures. In the meantime, the Local Governments Act, 1997, clearly provided the policy framework of decentralization. Local Governments Financial and Accounting Regulations, 1998, offered detailed guidelines for managing revues and expenditures. The LC 3 (sub-county) is now in charge of local tax collection, which is shared with other levels of local government.