AN EXAMINATION ON THE OPERATIONALISATION OF THE DECENTRALISATION SYSTEM IN GOOD GOVERNANCE AND MANAGEMENT IN KABAROLE DISTRICT CASE STUDY FORT-PORTAL MUNICIPALITYMUSANA SAMUEL05/U6865/PSSUPERVISOR Mr. MUHWEZI B DEREKA Research project submitted to Makerere University, Faculty of Arts in partial fulfillment of the requirements for the award of Bachelors Degree in Urban and Regional Planning.DECLARATIONI, Musana Samuel declare that this is my original work and hasnever been produced by anyone to any College, University or University for any award therefore I retain the copy right.MUSANA SAMUEL . SIGNATUREMr. MUHWEZI B DEREK . SIGNATUREDATE .. CANDIDATEDATE.. SUPERVISORI dedicate this work to my caring Mum, Ms Kanyunyuzi Christine, and My late Grandmother (RIP) Pelusi Amooti.ACKNOWLEDGEMENTI would like to take this opportunity to thank my Mother Ms Kanyunyuzi Christine Amooti, Uncle Dr Paul and Mrs. Carol Mpuga, for their guidance and support in my entire education career. Special thanks to the entire Kagoros Family Uncles, Aunties thank you for rising me up.My special gratitude goes to my supervisor Mr. Muhwezi Derek for his guidance and moral support though out my entire research work.I would like to extend my sincere regards to the entire staff of Kabarole District Local government, Fort Portal Municipality, Kabarole Research and Resource Centre and the local community who provided me with information Lastly to my course mates especially Walugembe Martin Wandera Peter and Oguttu Moses and to all my friends and teachers thanks for your love. My God bless you!ABSTRACTThe study gives critical examination on the ground operation of the decentralization system in Uganda. Decentralization is regarded as a policy tool aimed at improving local democracy, accountability, efficiency as well as intra and inter district equity, effectiveness and sustainability in provision of social services in Uganda. The study was aimed at examining the attempts to promote the rule of law and human rights in Fort Portal Municipality. Further more the research reveals how decentralization has led promotion co- operation among civil society organizations and other partners in development. The researcher recommends further study to be done in order to cover other critical areas where the study has not adequately covered.TABLE OF CONTENTDECLARATION DEDICATION ACKNOWLEDGEMENT1.1 BACK GROUND OF THE STUDY 1.2 STATEMENT OF THE PROBLEM 1.3.0 OBJECTIVES 1.3.1 GENERAL OBJECTIVE 1.3.2 SPECIFIC OBJECTIVES 1.3.3 RESEARCH QUESTIONS 1.4.0 1.4.2 STUDY AREA FORT PORTAL MUNICPALITY 1.4.1 Kabarole district 1.4.3 SIGNIFICANCE OF THE STUDY 1.5.0 DEFINITIONS OF THE TERM USED. 1.5.1 Decentralization 1.5.2 Political decentralization 1.5.3 Deconcentration 1.5.4 Fiscal decentralization 1.5.5 Devolution 1.5.6 Delegation 1.5.7 Privatization 1.5.8 Governance 1.5.9 Good Governance CHAPTER TWO LITERATURE REVIEW 2.1.0 2.1.1 2.1.2 2.1.3 Political structure History of decentralization Decentralization Decentralization in Uganda2.1.4 Political hierarchal 2.2.0 2.2.1 THE LOCAL GOVERNMENT ACT (1997) THE MUNICIPAL COUNCIL2.2.2 DECENTRALIZATION AND GOOD GOVERNANCE MANAGEMENT OF PUBLIC AFFAIRS. 2.2.3 The principle of subsidiary of authority and resources to the lowest planning level 2.2.4 Efficiency in the delivery of public services 2.2.5 Equitable access to decision making 2.2.6 Privatization 2.3.2 Strategies that can be adopted to promote genuine decentralization and good urban governance. CHAPTER THREE METHODOLOGY 3.1.1 3.1.2 3.1.3 Research design Instruments used Sample selections3.1.4 Sample size 3.1.5 Primary data source 3.1.6 3.1.7 3.1.9 3.2.1 3.3.1 Interview guide Secondary data source Data analysis Limitations of the study Research procedure3.1.8 Documents usedCHAPTER FOUR 4.1.0 PRESENTATION AND DISCUSSION OF THE FINDINGS 4.1.2 OVER VIEW OF THE RESPONDENTS Table 1; Summary of the Respondents 4.1.3 JUSTIFICATION OF THE SURVEY THE ADMINISTRATIVE STRUCTURE OF FORT PORTAL MUNICIPALITY 4.2.1 The Political Administration of Fort Portal Municipality 4.2.2 4.2.3 Role of politicians under the decentralization system ROLES OF POLITICIANS UNDER THE LOCAL GOVERNMENT ACT 19974.2.4 4.2.5 4.3.1 4.3.2FUCTIONS OF THE EXECUTIVE COMMITTEE; Roles of Councilors THE TECHINCAL STAFF OR FORT PORTAL MUNICIPALITY Roles played by different departmentsThe Structure of Technical Staff The table shows Departments and their functions 4.4.1 DECENTRALIZATION VERSUS GOOD GOVERNANCE IN FORT PORTAL MUNICPALITY The table shows the public participation to why government had to decentralize its powers. 4.4.2 4.4.5 4.5.1 4.5.2 4.5.3 4.5.4 4.5.7 4.5.8 How has the government promoted decentralization process? Decentralization Actalylist of Development CHALLENGES FACING FORT PORTAL MUNICIPALITY Corruption and Embezzlement of Public Funds Political interference Lack of an Effective Monitoring Mechanism Lack of Planning Rapid Urbanization4.5.6 Out Dated and Uncoordinated LawsCHAPTER FIVE CONCLUSIONS AND RECOMENDATIONS 5.1.1Conclusions. 5.2.1 RECOMMENDATIONS 5.2.2 6.1.1 Recommendation for good governance LIST OF ABBREVIATIONS APPENDIX 6.1.2 REFERANCES 6.3 BUDGET ESTIMATESCHAPTERONE1.1 BACK GROUND OF THE STUDY Decentralization, good governance and management are key indicators of development .The concept of development is beyond that of maximizing gains in Gross National Product and indeed beyond economic growth as a primary objective but requires transformation in social, economic and political structures that enables the public to help themselves to increase their productivity, incomes and general standards of living. Therefore, this requires policies to be fashioned to deliberately and carefully spread the benefits of increasing public participation in decision making. Consequently, a shift towards mobilization of local communities and material resources accompanied by local structures that would permit local autonomy in decision making a primary concern especially in response to designing and implementation of development programs . In Uganda, the planning was not only complex to implement the planning agenda but also inappropriate for promoting equitable growth and self sufficiency among regions. In Africa and East Africa in particular, a central government planning was used as colonial tool of retaining power, disabling Africans from running their own local affairs. Decentralization was interpreted as away that would empower Africans to demand for their independence. Consequently, the post colonial era in Uganda can be best described as 1960-1970 era of mass struggle,1971-1985 as an era political turmoil and 1986 to date as an era of reconstruction and strengthening of institutions even though with loopholes. The element of decentralization was born in the 1962 constitution just as a mere decentralization of power from the central government to by then established federal states /kingdoms of Busoga, Ankole, Bunyoro, Buganda and Tooro kingdoms. Thequestion remained, what about regions without kingdoms? The new era of decentralization system promotes good governance and management practices .This would discussed in the subsequent Chapters.1.2STATEMENT OF THE PROBLEMThe current decentralization system was adopted as areconstruction strategy related to the National Resistance Movement liberation manifesto 1980-1986.Which was to create a local government system that encourages democracy, efficiency in delivery of services, development oriented and a system that promotes empowerment of communities to take charge of their destiny though strengthening of local institutions and promoting good governance which has met several challenges. The study keenly focuses on Fort Portal Municipality attempts to live to the NRM liberation agenda. Closely looking at how the local government operates and hindrances towards the implementation of decentralization system, such as inadequate funds, lack of professional staff, lack of clear policies, corruption and other issues that are raised in the research findings1.3.0 OBJECTIVES1.3.1 GENERAL OBJECTIVE To examine how the decentralization system operates at local governments. 1.3.2 SPECIFIC OBJECTIVES 1. To Indentify and describe the local government system andstructures in Fort Portal Municipality. 2. To examine the extent to which the decentralization system has lived in the attempt to promote good governance and management. 3. To examine the challenges of decentralization. 4. To find out and suggest possible solutions /strategies towards fully implementation of decentralization system.1.3.3 RESEARCH QUESTIONS The study was guided by the following the questions. 1. How do local governments operate? 2. What are the benefits of decentralization system in Fort Portal Municipality? 3. What challenges those local governments face under the decentralization system? 4. What are the recommendation /solution to the challenges of decentralization system and good governance?1.4.0STUDY AREA1.4.1 Kabarole districtKabarole district is located in the western part of Uganda and boarders with district of Bundibugyo in the North, Kibale District inthe North East, and Kyenjonjo in the East, Kamwenge District in the South East and Kasese District in the South. Kabarole district attained a district status in 1974 from the great Tooro district. Kabarole district boundaries were further redrawn in 1998 after former counties of Kyenjonjo and Kamwenge were elevated to district status respectively. Presently, Kabarole District comprises of Fort Portal Municipality Bunyangabu County and Burahya County with 13 sub counties 3 Municipal Divisions and 64 parishes.1.4.2FORT PORTAL MUNICPALITYFort Portal Municipality was founded in 1893 as a garrison for Sir Gerald Portal as a former colonial administrative base for Western region .Fort Portal too serves as the head quarter of Tooro kingdom, one of the oldest monarchies in Uganda. The Municipality lies at the foot of Rwenzori Mountain 5050 feet above sea level and is comprised of 3 Divisions namely; East Division, West Division and South Division with a total population of 13,542911.4.3 SIGNIFICANCE OF THE STUDYThis research will serve as a contribution to the overall knowledge and literature on decentralization, good governance and management it is a vital reference to policy makers, Technocrats and students with interests in decentralization and good governance. The findings of the study go a long way in examining how decentralization operates, community perception towards1 UBOS 2002 CENSUS REPORTgood governance. I hope it will be recommendable contribution to the Municipality in setting strategies and recommendations on how to overcome decentralization challenges.1.5.0 DEFINITIONS OF THE TERM USED.1.5.1 Decentralization According to Prof. Apollo Nsibambi and F.X. Lubanga (1996) defined decentralization as The transfer of legal, administrative or financial and political authority to make decisions and manage public functions from the central government to fulfill the organization of agencies like subordinate units of government / non governmental organizations. Similarly Ronchinelli and Nellis (1986) defines decentralizations as An administrative perspective which refers, to the transfer of responsibilities of planning, management, the rising and allocation of field units of government.However, decentralization takes place a number of forms which include; 1.5.2 Political decentralizationThis refers to the transfer of power and authority to local government this includes Districts, Municipalities, Divisions, Sub counties and other Councils. At each tier, the local government are run by democratically and popularly elected councils.1.5.3 Deconcentration Deconcentration means the redistribution of administrative responsibilities only within the regional government, at one extreme what is referred to as deconcentration is a mere shifting of work load from the central governments to its regional departments. 1.5.4 Fiscal decentralization This is the empowerment of local governments to mobilize and raise local revenue from various ranges of specific taxes. These include property tax, trading licenses among others. 1.5.5 Devolution Devolution refers to the transfer of resources, tasks and decision making power to lower-level authorities which are; (a) largely or wholly independent of the central government, and (b) democratically elected people2. Deconcentration and devolution may be territorial or functional. When power is decentralised to units which are geographically separated from the centre, eg District or Municipalities, it is territorially given. 1.5.6 Delegation Another form of decentralization is the delegation of decision making and management authority for specific functions to organizations to which authority is delegated, may not even be located. May not even be located within the regular government structure (Ronchinelli, 1981) 1.5.7 Privatization This is the transfer of tasks form the government to the private2 J.Manor, 1995, p.1sector. In the case of decntralisation, power is transferred from the centre to the districts, could be further transferred to the private sector by contracting out services for effectiveness and efficiency. For example, markets belonging to the Municipality could be hired out to efficient private companies to run the on behalf of the Municipality. It is argued that privatization empowers private public partnership which has led to efficient delivery of services. However, critics of this view argue that private firms that take up such enterprises are normally so big so large that its only passing one major power centre to another (J.Manor, 1995 p.1).it is argue that privatization increases choice for customers who receive services. But it is counter argued that user charges, which often come with privatization, exclude many poorer people and thus do not necessarily increase choice. 1.5.8 Governance The Webster dictionary defines governance as the manner in which power is exercised in the management of the countrys economic and social resources for development. There, governance is complex environment in which decisions are taken while engaging the community1.5.9 Good Governance According to UN Habitat (United Nations Centre for Human Settlements) Defines good governance as the sum of many ways in which individuals and institutions, public and private partners, plan and manage public affairs while involving all stakeholders.CHAPTER TWOLITERATURE REVIEW 2.1.0 History of decentralizationThe growth with equity policies adopted in many countries during the 1970,s highlights many set backs of the central control over planning and administration. New structures were indeed needed to promote community participation, greater self sufficiency inregional economies. This led to the development of decentralization concept. In Latin America, countries established regional development co-operations to stimulate local investments and agriculture. Many Africa countries including Uganda set up provincial, districts and regional department. In Asia growth of frontier regional resource management agencies, integrated Rural Development schemes and financial Aid programmes for district and village administrative units.2.1.1Decentralizationagencies for the governmentsDecentralization in sub Saharan Africa largely focused on administrative and political operations in development. (WEKWET 1990).According to Cheema and Rodinella, decentralization mainly focused on development planning and development concerns. The main argument towards decentralization remains making plans that are pro-people and relevant to local needs. Lubanga (1996)laments that apart from serving as a method of empowering people, decentralization is regarded as a policy tool aimed at improving local democracy, accountability, efficiency aswellasintraandinterdistrictequity,effectivenessandsustainability in provision of social services in Uganda. Therefore decentralization is a tool towards promoting good governance principles which include; political social and economic empowerment.2.1.2 NRMDecentralization in Uganda10 point programme according to the book sowing theDecentralization system in Uganda can be traced back from 1986 Mustered seed, it states that NRM aims at establishing a new local government that would be more democratic, participatory, efficient and development oriented. This agenda was to be fulfilled through restructuring, policy formulation and capacity building. Establishment of the Resistance Council (RC) system, the National Resistance Council (NRM) and the Constitutional Assembly (CA) were crucial in designing the local government structure. One of the key principle of the newly created NRM government was to create fundamental change and not a mere change of guards, unite the politically fragmented Uganda, economic reconstruction and strengthening, institutional building that were surrounded by tribalism, nepotism politics of hatred.2.1.3Political structureThe first committee of RC 1987 statue consisted of nine membersthat included the chairman, vice chairman, general secretary, secretaries of women affairs, youth, defense, mobilization and People With Disabilities (PWDS) which were elected by the majority suffrage. Indeed this was the first massive participated election and leadership hence stating a land mark in the decentralization system. However, critics, described elections as rigged and with number of loopholes according to Prof.Momdani.2.1.4Political hierarchalThe old system of the resistance council was transformed into a new conventional local government unit known as Local Council (LCs). The political hierarchy of local governments begins at the district / city i.e. LC V / Mayor respectively, LC IV Municipalities, LC III Parishes/ wards, and LC I for cells / zones. for Countries / for for Sub Counties/ Divisions, LC II2.2.0THE LOCAL GOVERNMENT ACT (1997)The local government Art section 31 stipulates the following functions of the local government council. Subject to the constitution the local government council shall within its area of jurisdiction; a) Exercise all political and executive powers and functions; b) Provide services as it deems fit exception of thefunctions, c) Powers and services listed under part two of the second Schedule; d) e) Protect the constitution and other laws in Uganda and promote democratic governance and; Ensure the implementation and compliance to the government policy. The people entrust the above powers to local councils to ensure good governance and democratic participation in decision making and control.2.2.1THE MUNICIPAL COUNCILThe chairman of a Municipal Council is the political head of the district. The Town Clerk is the executive head of the Municipality The Town Clerk is charged with coordinating the various Departments of Municipality, is the Municipal accounting officer and an administrative arm that unites the administrative arm to the council. The Town Clerk acts as the chief monitor, monitoring the former centralized departments operating at the Municipality. For a successful decentralization, peoples views and concerns are paramount. councilors. They should be taken with extra care entrusted in hands of the people were a democratic representative in form of2.2.2 DECENTRALIZATION AND MANAGEMENT OF PUBLIC AFFAIRS.GOODGOVERNANCEDecentralization allows local leaders to locate services and facilities more effectively within communities, integrate isolated or lagging areas into the development program. This signifies good governance practice where by services are brought nearer to the people despite of their political say. The most important effect of decentralization towards good governance and management has been noted in improving development A.Nsibambi. Notably Decentralization encourages public participation in planning, Co-ordination of field activities, accountability and reporting systems MISR 1997) by Prof.planning, implementation and decision making process hence increasing community ownership of the development process.In order to clearly examine the benefits of decentralization it is paramount to understand the principles of good governance. Good governance principles include the following; subsidiary of authority and resources to the lowest of point/level of administration. Efficiency in the delivery of public service and promoting local economic development, transparency and accountability of politicians and public servants. Lastly promoting sustainabledevelopment, promotion of human rights rule of law.2.2.3 The principle of subsidiary of authority and resources to the lowest planning levelThis principle entails three main concepts that is decentralization, local democracy and subsides. This indicates that decentralization promotes good governance by encouraging election of leaders. equity. The local government Act 1997 covers provision that encourages democracy, public participation and2.2.4Efficiency in the delivery of public servicesThe local government Act 1997 empowers local councils to make plans concerning their areas of jurisdictions. This has greatly had land mark in efficient services delivery since the public needs are integrated in the planning process. The fact that despite of the central governments boasting abundant staff that is planners, administrators and even funds their plans remain sterile and just regarded as ministerial blue prints However, efficiency deliver of services can be only possible wit strong institutions improved local revenue, clear goals and objective participation of the masses and maximizing their contribution as the English sayings, that if you want to go fast go alone and if you want to go far lets go together Indeed going far with delivery of services, the community must worked and integrated fight from decision making to monitoring andevaluation.2.2.5process.Equitable access to decision makingMen and women must participate as equals in decision making The decentralization system promotes power security, equity as far as access to resources and control is concerned (the 30% quota for women in local councils) According to the Bible describes men and women as equal hence equally responsible in development affairs. The local government Act provides for 1/3 of the total number of political representatives to be women. However, the number of men in high position and council dominance is still high due to the past stigmatization and discrimination of women in decision making. Decentralization has strengthened the venerable groups like PWDs the youth and children in decision making. 2.2.6 Privatization as a form of decentralization has promoted the growth of the private sector and integration in management of the public affairs, further more this has strengthened the civil society organizations in advocacy for community concerns. 2.2.7 Sustainability. According to Rio declaration defines sustainability development that meets the present needs without compromising development needs of the future generation.From 1980s sustainable development concept has been designed in to link environmental issues with economic issues. Sustainable development is seen as a way to reverse both poverty and environment destructions. The local agenda 21 gave the initiation of Act locally think globally indeed well governed and managed societies live beyond their villages to a global village. Sustainability supports the need to eradicate poverty by giving poor people more access to resources.2.2.8TransparencyandAccountabilityofalldecision makers and Stakeholders.Accountability to both the community and the central government is a good practice in governance and management of affairs indeed many local governments have failed to leave to had main agenda of good governance Prof. Apollo Nsibambi agues that decentralization did not only decentralize power and governments but also decentralized corruption. Transparency and accountability can be achieved through audit reports and strengthening the office of the Inspector general of government and other institution that corruption. It can be noted that cost sharing can be introduced this empowers citizens to demand for accountability. To the public service financial information not only promotes goodgovernanceandpublicparticipationbutalsoevaluatesperformance challenges of decentralization.2.3.1 Challenges to genuine Decentralization and Good Governance.It should be noted that decentralization as a policy in Uganda was undertaken to improve on service delivery, promote democracy, encourage public participation among others. Therefore any challenge that stands in the way of the decentralization process affects good governance as well. Most countries in Africa either in the beginning or middle of a transaction to decentralized government and have not severe consequences to proper efficient management and administration in local councils since roles; functions of the different authorities are not properly spelt out.Limited capacity to raise revenue by the local government results into a continue dependence by the council on central governments for revenue dependence by the financial year 2007/ 2008 Kibale district had accumulated a debt of Uganda Shs. 500M to clear various contracts. Further more some local government like Kabongo District,Nakaseke District has been reported to only generate less than 10 million Shillings in total revenue internally collected. This means that the central government still has to finance all the local authorities which is a big burden hence leading to inefficient service delivery. In implementation of this system of governance some ministries were not of the view to fully give powers to local government and this has continued to affect the progress of the decentralization policy because such ministries do not fully separate but remain rigid and want to do their own activities. Such a scenario hinders transparency, luck of Co-ordination between the different sectors this affects efficiency and effectiveness of service delivery as local council will not know their specific roles and functions hence this leaves certain services undelivered. Local authorities have binding decisions affecting their areas of jurisdiction according to the local government statute (1997), however it has been found out that the decentralization authority is being misused. Local council executives have not been able to effect major developmental changes but have connived with the sub-county chiefs to miss-appropriate available funds for personal gains this indicates that corruption has been decentralized to the lower tiers.At implementation of the decentralization system of governance no adequate training was carried out, this leads to unskilled/semiskilled personnel being employed in key positions and this hinders good governance since such a staff with no qualifications ends up. Misappropriating funds personal gains. For example Kiira Town Council was granted a town council status in 2006 and just appointed politicians in the area to take charge of the council. This has resulted into conflicts between the speaker and other conflicts. The local government Act 1997 provides that political head of a council shall be chairperson however; some of these elected politicians and councilors more so in law developed countries like Uganda are either semi-illiterate or illiterates yet their decisions are very binding for the successful development of an area. This has hindered the full realization of good governance qualities that were intended. Election of politicians by the local people is a manifestation of good governance as it allows public participation thus promoting democracy. However the frequencies and loop holes in these elections erode the intended benefits for example before the planned development projects are implemented, another chair person and group of councilors are voted into authority. These may be corrupt and may never implement the previous projects claimingthat they have new plans for the people this limits good governance. In some districts massive rigging has been reported a case in point is Kyejonjo District whose LC elections were nullified. In appropriate clear system that specifies roles and functions of the different authorities still remains a big challenge. In case of an RDCS, there roles are not well defined and also other council committees are not aware of scope of their responsibilities thus leading to conflicts and abandoning of projects. The issue of politicians and council members thinking for the community is a hindrance to decentralization governance as these leaders suggest policies, plans without fully involving the local people in decision making. implementing development. Project thus the public loses its trust in the leaders as its needs are not incorporated in the plans. This results into failure ofThe decentralized system of governance has been donor funded. In Uganda, the EU, DANIDA has been the main donating agent together with other NGOs and CBOs. This is a good gesture due to the limited resources available to meet the different services. However there is a challenge since donor funds have stringsattached and hence not considering the communities most pressing need. There is also an element of weak coordination of donor support plus NGO/CBO programmes which have resulted into cases of competition for scarce financial and human resources, conflicting programmes and duplication of efforts. It has been widely proven that availing employees with incentives improves on the quality of services delivered and their commitment. However due to the limited available resourceswages and salaries are low and this sparks off corruption, mishandling of public funds by some selfish individuals in order to get rich quick at the expense of the poor instead of delivering services. The New vision report June 16 2008 reported the Masaka LC5 boss was reported as getting fuel allowance of 3.5 Millions an increment from 1.8 million in a month.2.3.2Strategies that can be adopted to promote decentralization and good urbangenuinegovernance.In decentralization system, accountability to the government for the use of grant funds, revenue must be complemented by accountability by service providers to the community; cost sharing and the establishments of civil society organization with real decision making authority hence require training as to their appropriate role and functions. Accumulated evidence to date suggest that requiring could in helping citizens realize participation central the efficient as a grant grant of conditionality administration decentralization Donald R.Winkler,1994 argues that if local councils are to be held accountable for efficiency and effectiveness with which government services are delivered, they must have budgetary discretion, including the recruitment and payment of personnel, the contracting for goods and services and the composition of local expenditures How ever the central government many times tends to put grant conditionalitys and this in most cases overlooks the authority of local councils to make useful decisions. Local officials should have discretion to choose they directly deliver services or to contact with private non-organizational or governmental organization for their delivery then efficient decentralization can fully be realized thus promoting good governance. Regular consultation and systematic co-ordination of activities of activities should be institutionalized so as to minimize duplication of efforts and attain complimentary in the activities of various compliment governmentpotentialstake holders serious policy coordination measures should there fore be instituted to ensure that dispersal of service control does not result in fragmentation of public service. Incentives should be given /awarded based on performance so as to improve on the quality of staff and its commitment. Performance and locally based deals act as are placement for accountability lines of management. Motivating staff is clearly not going to be easy and a balance between properly planned range of services and appropriate level of reward those providing services must be struck. Specialized polling can be used to discover the particular service needs of women ,the elderly and people with disabilities,different ethnic groups and the poor or way in which the existing parten of services may be failing to address those needs. Citizens should also satisfaction about their rights on the timing and quality of services, complaints procedures, redress and penalties in the event of non-compliance .this will help local authorities to deliver services that are priority to people and the public will be able to monitor the efficiency of services delivered to the knowing their rights. In summary former World Bank president Robert S MC Namara noted that, if the government were serious about distributing benefits of development more equitability Experience shows thatthere is a greater chance of success if institutions provide popular participation, local leadership and decentralization of authority. In the study by UNDP 2000 report on rural development found out of ability of communities to influence priorities of public agencies and to obtain efficient service delivery depend on effective local organization.CHAPTER THREEMETHODOLOGY This chapter presents the methodology used in data collecting,Research, establishment of the sample Data analysis instruments used procedures and limitations in the data collection process.3.1.1Research designThe research design used in the study was descriptive and analytical whereby both quantantive and qualitative methods were used. The study focused on the operationalisaion of decentralization and it is attempts to promote good governance.3.1.2Instruments usedThese instruments included questionnaire which were used for gathering quantifiable data from respondents. Unstructured interview guides were used to conduct interview sessions. The researcher used other methods like observation to see interpret observable features.3.1.3Sample selectionsDuring the study purposive sampling was used in selecting key stakeholders as far as municipal governance is concerned these included t, the asst town clerk, Town Planner(finance),Physical Planner ,The Registrar and 4 councilors were interviewed consequently one division was selected and two operating NGOs in the municipality these were Kabarole research and resource centre and Engabu za Tooro.3.1.4 Sample sizeThe questionnaire were administered to 50 respondent out of the targeted 70 respondents hence achieving hence hit target of over 70%.During the research the following techniques were used; Structured interviews, focus group discussions, documentary\ review and questionnaire were used .the questionnaires used were divided into two sections one for local leaders and the targeted community respectively.3.1.5 Primary data sourceThese included observation, interviews, structured and unstructured. For example during the reconnaissance survey the researcher identified the trend of development of fort portal town.3.1.6Interview guideThese were e conducted with key targeted informants who included the town planner, asst town clerk and members of the civil society organization.3.1.7Secondary data sourceThis involved the use of available official books, records, reports on decentralization that were crucial guide in writing the literature review. The above records were obtained from Kabarole Research and Resource centre Makerere University Library and Fort Portal Municipality.3.1.8 Documents usedThese were used in order to ascertain whether the previous research work has a relationship with the one am carrying out.3.1.9Data analysisThe field notes were written and edited at the end of ever field day this ensures accuracy and consistency. In the information classification, tabulation and compilations were done later on using a computer.3.2.1Limitations of the studyOne great challenge during the research process was financial constraints to facilitate the research.During the field respondents failed to honor there appointments either due to fixed work schedules or underrating the relevancy and significance of the student research Lack of awareness to issues pertaining local administration, service delivery by the community. In general reception by the local administration greatly affected the proceedings other research process the researcher reminded local authorities that the research findings would later be presented to them3.3.1Research procedureThis section stipulates how the research was carried out in these the researcher prepared research proposal that guided the researcher in conducting the study. The proposal was presented to my supervisor and later approved. The research obtained an introduction letter from the department of geography that was usefully in explaining were interest during the field to different persons. The research conducted a reconnaissance survey in order to get acquitted with the field, indentifying key respondents and making appointments. Data collecting process lasted for a period of two weeks and later analyzed the using a computer the final draft was finally compiled proof read and presented to the supervisor for approval.CHAPTER FOUR4.1.0PRESENTATION AND DISCUSSION OF THE FINDINGSThis chapter presents the findings of study which were critically analyzed. It presents different methodical approaches that were used in the process of gathering data. The characteristics of the respondents are also presented in this chapter. The different reaction and quotations are also presented. 4.1.2 OVER VIEW OF THE RESPONDENTS The analysis below shows the key respondents during the research study. The biggest numbers of respondents were from the local community making a total response of 48%.civil society and local authorities contributed 20% each respectively were as councilors only contributed 12%.study the table belowTable 1; Summary of the Respondents Category of Respondents Local Authorities Councilors Civil Society NGOS/CBOS Community TOTAL source ;Field Survey Targete d 20 10 15 25 70 Respons %age e Respons Received e 10 6 10 24 50 20% 12% 20% 48% 100% No Respons e 10 4 5 1 204.1.3JUSTIFICATION OF THE SURVEYThe highest turn was registered among the local community because there are ready available and easy to reach. Councilorsregistered the least response because there are part timers at the Municipality. Where as Municipal Authorities and Civil Society members had a tie of 20% there were busy with both field and office commitments.THE ADMINISTRATIVE STRUCTURE OF FORT PORTAL MUNICIPALITY Fig 1;MayorDeputy MayorTown ClerkSPEAKER Deputy Town ClerkExecutive membersHeads of DepartmentsSource; Field Survey4.2.1 The Political Administration of Fort Portal MunicipalityThe municipality is headed by the Mayor who is the overalladministrator of the municipal council .fort portal municipal council has a total number of 26 councilors. According to section 9(1) of the local government act 1997 A council is the highest political authority within the area of jurisdiction of a local government and has legislative and executive powers to be exercised in accordance with the constitution. However the act agues the divisions (Local Council 3) team up with the municipality in matters of planning and policy formulation. 70% of the respondents at the municipality recognized the fact that they have got good working relation ship with their counter parts at the divisions. This was attributed to the regularly meetings held at least every month at the Municipality level where different issues are raised and solutions are also drawn. The study established that Local Council One and Two still exist despite there term office being expired. These administrative units are mainly involved judicial matters and at times solve land disputes. Despite there crucial role in ensuring law and order these administrative units are operate illegally and ore seen as an establishment of the ruling party to extent its political administration to the grass root .one member of the civil society organization lamented.Role of politicians under the decentralization system4.2.2 In the survey conducted among the councilors 70% confirmed that their major role as community representatives is to present community views to the council.55% confirmed that their role is to contribute to the decision and policy making process. Whereas 24% revealed that their role is to monitor and evaluate technocratsThe graph below shows as summery of the role of politiciansFig. 2dhgt25165772 8fLayoutInCell1 fHidden0fPseu doInline0fLayo utInCell1Source; Field Survey4.2.3 ROLES OF POLITICIANS UNDER THE LOCAL GOVERNMENT ACT 1997 Section 17 and 26 of the LGA 1997 provide that an executive committee that works with the chair person shall consist of the Chair person, Vice chair person and Committee secretaries not exceeding five as the council may determine 4.2.4 FUCTIONS OF THE EXECUTIVE COMMITTEE;Initiate and formulate polices for council approval. Monitor the implementation of government programs where liaising with the private sector like NGOs and CBOs. Receive and solve disputes such as land matters that are forwarded by lower councils. Carry any other duty as may be authorized by the council Conduct appraisal at every end of financial year in order to evaluate performance Note the cardinal function of the executive committee is to determine the sense of direction of the council is the principle legislative body in the area of jurisdiction 4.2.5 Roles of Councilors To represent peoples needs to the council. To mobilize the community and resources in order to achieve development. Councilors are obliged to promote the democracy and rule law. Councilors act as chain link between the local government and the local community.4.3.1TECHINCAL MUNICIPALITYTHE STAFF OR FORT PORTALThe ultimate goal Fort Portal Municipality is to To provide quality services, focus on local and national priorities of the residents so as to improve their welfare How ever this can only be realized if only technical staff as well the politicians of Fort Portal Municipality committed and competent enough to serve the community needs. During the survey the research established that Fort Portal Municipality consists of eight departments headed by the Town Clerk. Subsequently these departments similar working partners at the divisions in order to ensure consistent service deliverThe Structure of Technical Staff Fig 34.3.2Roles played by different departmentsAs discussed earlier in the literature review that one clear principle of competent staff is ability clearly define there roles and obligations this enhances competency and avoids clashes.Table3;The table shows Departments and their functionsDEPT Administratio n Physical planning EngineeringHEAD Town Clerk Physical Planner Municipal Engineer Internal Senior Auditor Medical personnelFUCTIONS General administration, staff welfare, supervision and implementation Overall land matters building control, Supervision of all engineering works in the municipality Checking and balancing all books of Accounts at the Municipality Inspection of all Heath Services under the municipality, vector control inspection of abattoirs Supervise all schools both Primary and Secondary Coordinate and supervise Environmental management issues in the municipalityAuditPublic HealthEducation and Municipal sports Education Officer EnvironmentSource; Field SurveyEnvironmen t OfficerDuring the research 75% of the technocrats confirmed that there is a good team play between staff and good coordination betweendepartments this has ensured good service delivery. How ever 40% agreed to the factor that there is still poor information flow attributing this to lack information technology like computers and internet facilities. The Technical staffs who were interviewed revealed that there is still shortage of office space and the poor sanitation at the municipal head quarters since the building is nearly condemned due to the 1994 earthquake . How ever by the time the research was conducted the municipality had finalized with the ground breaking stage of their proposed Ug Sh 2Billion Office complex. In order to evaluate staff performance monthly reports were introduced in order to ensure performance4.4.1DECENTRALIZATION VERSUS GOOD GOVERNANCE IN FORT PORTAL MUNICPALITY In the previous notes the cardinal aim of the decentralization policy was to promote good governance, ensure public participation transparency enhance accountability and promote good service delivery. The findings below will reveal the public perception about decentralization in the municipality, evaluating its success and failures the survey was conducted among the politicians and the local community.The table shows the public participation to why government had to decentralize its powers.Table 4Aims Bring services closer to the people. Promote accountability. Donor pressure under structure adjustment.(SAPs)%age response 60% 55% 23%Ensure equitable development Reduce beauracry50% 10%During the study the researcher established that Fort Portal municipality continues to have strong support to the NRM government attributing this to the 60% of the respondents believing that bring services closer to the people was the ultimate goal the government. While 23% attributed to fact that the government was only succumbing to donor pressure. 4.4.2 How has the government promoted decentralization process? By providing financial support to local governments both Conditional and Unconditional grants. In acting laws policies and Laws Provision services like building of schools, health centers, roads.4.4.5Decentralization Actalylist of DevelopmentIn the 80% of the respondents confirmed that fort portal municipality enjoys a special privilege in terms of services delivery like roads schools and health facilities among others .fort portal Municipality is linked by 3 Tarmacked roads namely; Fort portal -Kasese road, Fort portal- Mubende high way, FortpotalBundibugyo road which are under construction. Further more the study reveled that fort portal is among the fast growing towns in Uganda for example the town is a home for tworegistered universities that is Mountains of the Moon University and Uganda Pentecostal University. In health services the municipality has as regional referral hospital, two private hospitals, at least five health centers, several registered private clinics. Commercial activities and developments the civil society appreciated the fact that fort portal is a regional destination for tourists with several good Hotels Education further more two secondary schools were selected to by the government to centers of excellence in the whole western this has been appreciates towards good governance. Further more fort portal municipality is earmarked to be beneficiary 20 industrial parks that will be distributed around the country. In the attempt to promote the rule of law and human rights the municipality ensures it promotes co operation among security agents together with civil society organizations in the region.4.5.1CHALLENGES FACING FORT PORTAL MUNICIPALITYDespite of the enormous benefits that have a been realized under the decentralization system a lot of challenges also have been encountered as follows; Lack of funds to facilitate the smooth running of services as discussed earlier fort portal is not an isolated case as far financial constrains is concerned 90% percent of politician attributed this to the abolition of graduated tax with out timely taxcompensation .the Financial Planner confirmed that even though tax compensation scheme was introduced the money is not timely received by the local governments. He also blamed the fact that the new introduced taxes have failed to be collected due to lack of awareness.4.5.2 Corruption and Embezzlement of Public FundsAs noted in the literature review that decentralization literally meant decentralizing corruption fort portal is not an exceptional case. Of the respondents.55% from the community confirmed that in order to get any service from the Municipality you need to offer a bribe sighting the Law Enforcement Department and Physical Planning Departments as the most ineffective departments in the Municipality.4.5.3 Political interferenceThe study reveals that many projects have failed to take off due to political interference. The councilors confirmed that municipal authorities are some times frustrated by political interests among the politicians in the municipality for example the proposal to sell off the Community Hall plot in order raise money to construct new municipal headquarters.4.5.4Lack of an Effective Monitoring Mechanism12.5 % of the councilors noted that the municipality lucks an effective monitoring mechanism to evaluate technocrats. Advocating for a policy that will empower politicians to evaluate technocrats4.5.6 Out Dated and Uncoordinated LawsThese have in most cases led to conflicts for example land wrangles between national forest authority and Mpanga secondary school that had to be intervened by parliament. Other laws that need to be urgently amended include the Town and Country Planning Act that was in enacted in19644.5.7Lack of PlanningThe research established that Fort Portal town is a fairly colonial old planned town. How the biggest challenge is the upcoming satellite trading centers like Hakatoma, Kitumba, Kachwamba and Harubaho which are first growing centers.4.5.8Rapid UrbanizationAs earlier noted that Fort Portal is increasingly becoming the regional town this has attracted several business as well increased population. Despite of increased population other services like shelter, water services have remained constantly. This underrates attempts efforts to promote good governance.CHAPTER FIVECONCLUSIONS AND RECOMENDATIONS 5.1.1Conclusions. The study findings reveal the appreciation of the benefits that have come with decentralization system. As one politician quoted say that indeed we are solely responsible for our destination thesurvey establishes more touchable results like enhance accountability improved service delivery. Increased citizenry participation actively involved in decision making, holding leaders accountable. How ever the central government still holds a major responsibility to supervise all local governments, provide timely funding as well amending out dated laws if the benefits of decentralization are to be realized. Promoting a strong civil society will go along way in holding politicians more responsive and accountable to the electorates. As well promoting the role of the media in evaluating checks and balance of local governments 5.2.1 RECOMMENDATIONS The study suggests a number of suggestions and interventions that can be made to promote good governance as well as realizing purpose of decentralization. Further more the study revealed that they is lack of community sensitization a great number of respondents were not aware of the roles of there leaders.The pie chart respondents suggestions towards good governance in percentages Fig.3According to the study, technocrats suggests that the roles and duties of politicians should be clarified since councilors claimed that the have a role to evaluate the technical staff. Furthermore technocrats should beheld more accountable by writing monthly appraisals since during the research a great number of them were not in the office claiming their gone to the field. In order to keep leaders held more accountable the civil society organizations recommend that leaders should sign performance contracts Encourage partnerships between local governments and development agents since donors have both the finances and the technical capacity to promote local govern such innovation have promoted physical planning in districts of Lira and Busia where the urban authorities have partnered with DED(a German International Development Organization)5.2.2Recommendation for good governanceIn the attempt for developing countries to achieve Millennium Development Goals by the year 2015.its absolutely ultimate to promote values of good governance as the former UN Secretary General Kofi Annan states that, Good governance perhaps the single most important factor in eradicating poverty and promoting. Introduction of reform programs like the Joint Annual Review on Decentralisation, Strength the office of the IGG, the role of the public accounts committee are ideally essential but more important if these bodies are enabled to perform their duties without political interference.APPENDIX6.1.1 EU CA CBOS DANIDA LCs LGA LGDP LLG MOLG NRA NRC PWDs RDCs NGOS WB UNDP LIST OF ABBREVIATIONS European Union Constitution Assembly Community Based Organizations Danish Aid for International Development Local Councils local Governments Act Local Government Development Fund Lower Local Governments Ministry of Local Government National Resistance Movement National Resistance Council People With Disabilities Resident District Commissioner Non Government Organizations World Bank United Nations Development Program6.1.2REFERANCESA.Nsibambi Ed (1997) Decentralisation and civil society in Uganda the Quest. Antonio Estance (1995),Decentralisation infrastructure,advantages and invitatitions World Bank discussion papers (290) Washington DC World Bank. M.O.L.G Decentralisation and local Governace in Uganda Development Planning for Local Government s GOU (1995) Constitution of Republic of Uganda GOU (1997) Local Government ACT GOU 200 Harmonized Participatory Planning guide of Local Governments. MFDPED 2002 Poverty Eradication Action Plan (PEAP) M.O.L.G The internal management of local governments Cheema G Shebir and Ronedineli 1983, Decentralisation and Development, Policy Implementation in the developing countries. London publications. Decentralisation and power shift. An imperative for good governance. A source book on decentralization and federalism experience Vol 1(ii)6.3Table 5 BUDGETESTIMATESTOTAL COSTTable 5ITEMS STATIONARY Duplicating paper Pen and Pencils Secretarial Services -Typing Setting -Binding -Internet Transport to Tort Portal Personal items Air time Consultations Research assistantQUANTITY1 Ream 1 Dozen10,000/ 2000/60 Pages @500 3 copies @ 10000 Max 5hrs35,000/ 30,000/ 10,000/2 Trips50,000/20,000/ 40,000/ 10,000/TOTAL207,000/