FRAMEWORK FOR LOCAL GOVERNANCE & LOCAL DEVELOPMENT Jurgita Siugzdiniene Development at Local Level...

FRAMEWORK FOR LOCAL FRAMEWORK FOR LOCAL GOVERNANCE & LOCAL GOVERNANCE & LOCAL

DEVELOPMENTDEVELOPMENT

Jurgita SiugzdinieneJurgita SiugzdinieneDevelopment at Local Level in Central Asia Development at Local Level in Central Asia

WorkshopWorkshopAshgabat 9 October 2008Ashgabat 9 October 2008

OBJECTIVES OF THE OBJECTIVES OF THE PRESENTATION/DISCUSSIONPRESENTATION/DISCUSSION

1.1. Present and discuss a conceptual framework for Present and discuss a conceptual framework for local governance & local development and agree on local governance & local development and agree on the terminology;the terminology;

2.2. Discuss the role of local government in local Discuss the role of local government in local development;development;

3.3. Facilitate programming discussion on local Facilitate programming discussion on local governance & local development;governance & local development;

This is not a one-way presentation but a This is not a one-way presentation but a dialogue…..dialogue…..

1.1. CONCEPTUAL FRAMEWORK: CONCEPTUAL FRAMEWORK: GOOD LOCAL GOVERNANCE FOR GOOD LOCAL GOVERNANCE FOR LOCAL DEVELOPMENT LOCAL DEVELOPMENT

LOCAL GOVERNANCELOCAL GOVERNANCE

Comprises a set of institutions, mechanisms and Comprises a set of institutions, mechanisms and processesprocesses,, through which local government, central agencies, through which local government, central agencies, community members and their groups, private sector can community members and their groups, private sector can articulate their interests and needs and exercise their rights and articulate their interests and needs and exercise their rights and obligations at the local level;obligations at the local level;

Local Governance is not just about local governmentsLocal Governance is not just about local governments- All local institutions contributes to local governance;- All local institutions contributes to local governance;- LG important pillar around which to anchor relationships - LG important pillar around which to anchor relationships

among local institutions;among local institutions; Local governance is not synonymous to Local governance is not synonymous to

decentralization.decentralization.

Good Local Governance for Local DevelopmentGood Local Governance for Local Development

Good local governance:

Empowered local community;

Participation to meet people needs;

Capable local institutions to engage in partnerships (CBOs, private sector)

Effective and accountable local government;

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Local development :

Improvements in social and economic welfare of people & accumulation of social capital

E n a b l i n g e n v i r o n m e n t

LOCAL

SERVICES

Based on WB

GOOD LOCAL GOVERNANCE GOOD LOCAL GOVERNANCE REQUIRESREQUIRES

Changing attitudes and practicesChanging attitudes and practices, that is more than , that is more than changes in rules and procedures;changes in rules and procedures;

New institutional arrangementsNew institutional arrangements to manage complex to manage complex processes and overcome institutional boundaries;processes and overcome institutional boundaries;

Changes in the distribution of powerChanges in the distribution of power between between central and local levels and among local actors.central and local levels and among local actors.

FACTORS THAT MAY AFFECT GOOD FACTORS THAT MAY AFFECT GOOD LOCAL GOVERNANCE (1)LOCAL GOVERNANCE (1)

Local governance is understood in different ways by different Local governance is understood in different ways by different people and organizations. Therefore, support to local people and organizations. Therefore, support to local governance is usually fragmented; governance is usually fragmented;

Different entry points: direct community support, local Different entry points: direct community support, local government support, decentralized sectoral support;government support, decentralized sectoral support;

Institutional environment is not always favorable to local Institutional environment is not always favorable to local initiatives:initiatives:

Ambiguous national legislation, policies and regulations;Ambiguous national legislation, policies and regulations; Role and status of civil society and private sector associations Role and status of civil society and private sector associations

and organizations;and organizations; Values and norms grounded in the culture.Values and norms grounded in the culture.


Local governments do not have sufficient capacities and Local governments do not have sufficient capacities and resources to play a community leadership role:resources to play a community leadership role:

Limited or/and unclear mandate and responsibilities of LGs;Limited or/and unclear mandate and responsibilities of LGs;

Organizational capacities and resources are inadequate to meet Organizational capacities and resources are inadequate to meet citizen expectations or the responsibilities transferred to them citizen expectations or the responsibilities transferred to them by national policies; by national policies;

Lack of a modern understanding of the role of local Lack of a modern understanding of the role of local government;government;


Lack of institutionalized opportunities to participate in local planning, policy making and service delivery processes;

Lack of permanent participation and monitoring procedures;Lack of permanent participation and monitoring procedures; Opportunities to participate maybe not equally available to all;Opportunities to participate maybe not equally available to all;

Insufficient inclusion of different social and disadvantaged groups as contributors to local governance, service provision and as service beneficiaries;


Lack of adequate coordination and cooperation among Lack of adequate coordination and cooperation among local stakeholders and with central level institutions;local stakeholders and with central level institutions;

Absence of mechanisms for coordinating activities between Absence of mechanisms for coordinating activities between community groups, local government bodies, and central community groups, local government bodies, and central agencies; agencies;

Coordination weaknesses between local governments and de-Coordination weaknesses between local governments and de-concentrated central agencies due to different lines of concentrated central agencies due to different lines of responsibility and inadequately developed horizontal responsibility and inadequately developed horizontal mechanisms for cooperation;mechanisms for cooperation;

Weak capacities of community members and organizations to Weak capacities of community members and organizations to participate and partner with each other and with public sector participate and partner with each other and with public sector organizations;organizations;

Insufficient capacities of LG associations, weak channels of Insufficient capacities of LG associations, weak channels of communication. communication.

HOW WE SUPPORT GOOD LOCAL HOW WE SUPPORT GOOD LOCAL GOVERNANCE?GOVERNANCE?

We carry out a comprehensive situation assessment to design a country specific support strategy;

We promote integrated approach: capacities of all stakeholders involved are important;

Local government is our main entry point;

We ensure strong linkages with policy making process (scaling up best practices, policy advice);

One of our key strategies: integrated local development planning.

Integrated local development Integrated local development planning:planning:

Helps to agree on a common development vision of the Helps to agree on a common development vision of the area;area;

Ensures integration of local governance activities with Ensures integration of local governance activities with other spheres of local development planning at regional other spheres of local development planning at regional and national levels;and national levels;

Serve as bases for engagement and partnerships between Serve as bases for engagement and partnerships between local governments and various stakeholders and interest local governments and various stakeholders and interest groups at local level;groups at local level;

Ensures effective utilization of limited financial and human Ensures effective utilization of limited financial and human resources;resources;

Develops capacities local stakeholders. Develops capacities local stakeholders.

EXAMPLE 1:EXAMPLE 1: Integrated and inclusive local Integrated and inclusive local development planning (BiH, Armenia, development planning (BiH, Armenia,

Georgia)Georgia)Main issues to be addressed: Main issues to be addressed: Different methodologies and various approaches are Different methodologies and various approaches are

applied for local development planning;applied for local development planning; Few links with higher level planning processes;Few links with higher level planning processes; Insufficient attention to the institutionalization of Insufficient attention to the institutionalization of

participatory spaces and limited inclusion of different participatory spaces and limited inclusion of different social and disadvantaged groups into planning;social and disadvantaged groups into planning;

Local development plans are mainly project oriented and Local development plans are mainly project oriented and rely mainly on donor funding, weak linkages with rely mainly on donor funding, weak linkages with budgeting process and performance management systems.budgeting process and performance management systems.

Selected strategy to address the issues (1):Selected strategy to address the issues (1):

Involvement of central and local stakeholders to develop a Involvement of central and local stakeholders to develop a national methodology for local development planning;national methodology for local development planning;

Methodology introduces:Methodology introduces: linkages with higher level planning documents and processes;linkages with higher level planning documents and processes; mechanism for inclusion of disadvantaged groups mechanism for inclusion of disadvantaged groups

(vulnerability assessment, Focus Group discussions); (vulnerability assessment, Focus Group discussions); suggests how to institutionalize participation; suggests how to institutionalize participation; provides guidelines for developing capacities of community provides guidelines for developing capacities of community

members; members; links with budgeting and performance management links with budgeting and performance management

processes;processes;


Development of national training and consultation Development of national training and consultation packagepackage to ensure a uniform implementation of the to ensure a uniform implementation of the methodology, provision of technical support to selected methodology, provision of technical support to selected local governments local governments (strengthening local development function (strengthening local development function of LG, setting relevant processes, development of facilitations of LG, setting relevant processes, development of facilitations skills, etc.)skills, etc.) . .

Anchoring of the training and consultation packageAnchoring of the training and consultation package????

EXAMPLE 1:EXAMPLE 1: Sustainable training and Sustainable training and development system for LGs development system for LGs (Georgia, BiH,

Armenia) There is a need to ensure that LG capacities are developed for a

uniform implementation of national policies and this happens on a continues bases;

Ad hoc and supply driven training and development; Personnel management function in local governments is generally

either not developed at all or very weak and tends to focus on the administrative dimension of managing staff and record keeping. There is a lack of capacity to articulate training and development needs.

Quality assurance mechanisms are not in place and there are no commonly agreed standards for training;

Local training market is not well developed and potential training providers have limited capacities to develop and implement quality training programmes on their own.


Support a participatory development and implementation of the National Training and Development Framework for local government (all decisions are made by national stakeholders, UNDP only provides technical support and advice);

The Framework defines: (1) the principles of training and development; (2) priority programs; (3) priority target groups; (4) the institutional structure of the local government training system (roles, responsibilities, linkages, legal framework); (5) a quality assurance mechanism; (6) the financing framework; and (7) the reporting and monitoring mechanism.


Strengthen HR management functionStrengthen HR management function in the local in the local government units (sample procedures and guidelines for government units (sample procedures and guidelines for recruitment, performance appraisal and development of recruitment, performance appraisal and development of municipal training plans); municipal training plans);

Based on the accumulated expertise Based on the accumulated expertise provide policy provide policy advice to the Governmentadvice to the Government on strengthening HR on strengthening HR management and municipal service systems; management and municipal service systems;

Strengthen local training providers: Strengthen local training providers: training and advice training and advice on development of curricula, ToT, data base;on development of curricula, ToT, data base;

Support the establishment ofSupport the establishment of training and development training and development infrastructure.infrastructure.

Questions for discussionQuestions for discussion::

1. 1. WHAT ARE THE KEY FACTORS THAT WHAT ARE THE KEY FACTORS THAT AFFECT GOOD LOCAL GOVERNANCE IN AFFECT GOOD LOCAL GOVERNANCE IN YOUR COUNTRIES?YOUR COUNTRIES?

2. HOW WE CAN ADDRESS THESE FACTORS?2. HOW WE CAN ADDRESS THESE FACTORS?

2. LOCAL GOVERNMENT AS A 2. LOCAL GOVERNMENT AS A COMMUNITY LEADERCOMMUNITY LEADER

WHY ARE LOCAL GOVERNMENTS WHY ARE LOCAL GOVERNMENTS IMPORTANT?IMPORTANT?

Local communities need strategic leadership In the past LG would solve the problems themselves, today

they are much more likely to discharge their role through partnership;

LGs are best positioned to offer participatory mechanisms open to all members of a community:- - manage different interests; manage different interests; - channel public funding, foster balanced development ; channel public funding, foster balanced development ; - to better absorb external support, slow out- migration and to better absorb external support, slow out- migration and

the overly rapid growth of capital cities;the overly rapid growth of capital cities;- and provide critical links to national governments.and provide critical links to national governments.

LOCAL GOVERNMENT REFORMLOCAL GOVERNMENT REFORM – KEY ISSUES – KEY ISSUES (based on experience of Post-(based on experience of Post-Communist Europe)Communist Europe)

1.1. Democracy and effectiveness;Democracy and effectiveness;2.2. Which service delivery responsibilities should be Which service delivery responsibilities should be

assigned to local governments?assigned to local governments?3.3. How these responsibilities should be financed?How these responsibilities should be financed?4.4. How we should keep local governments How we should keep local governments

accountable?accountable?

Decision on these questions depends on country Decision on these questions depends on country traditions, economical situation, culture… traditions, economical situation, culture…

No single right answer, no prescriptionsNo single right answer, no prescriptions

1. Democracy and effectiveness1. Democracy and effectiveness

Virtuous circle – “democratic accountability increases the Virtuous circle – “democratic accountability increases the effectiveness of public spending, and better public effectiveness of public spending, and better public spending legitimates and strengthens democracy”;spending legitimates and strengthens democracy”;

It only works ifIt only works if: : Local governments are really democratically elected;Local governments are really democratically elected; Have a skills and resources necessary to manage the Have a skills and resources necessary to manage the

public services they have been assigned;public services they have been assigned; If local voters really have the information and the If local voters really have the information and the

motivation to monitor.motivation to monitor.However, this encounters number of practical problems However, this encounters number of practical problems

and especially in developing countries.. and especially in developing countries..

2. Which service delivery responsibilities can 2. Which service delivery responsibilities can be assigned to local governments?be assigned to local governments?

Capacity of local governments to manage particular Capacity of local governments to manage particular functionsfunctions?? It might be good reasons to assign it first as It might be good reasons to assign it first as delegated function;delegated function;

Responsibility for most modern public services must be Responsibility for most modern public services must be shared between levels of government;shared between levels of government;

Rational decisions about these questions are influenced Rational decisions about these questions are influenced by the historic, demographic and topographic by the historic, demographic and topographic characteristics of individual countries;characteristics of individual countries;

How this sharing should best be defined will differ from How this sharing should best be defined will differ from country to country.. country to country..

3. How these responsibilities can be financed?3. How these responsibilities can be financed?

LG should have adequate and predictable revenue LG should have adequate and predictable revenue sources;sources;

There is a preference that biggest share of revenues would There is a preference that biggest share of revenues would come from own sources, however:come from own sources, however:

- Tax bases of most developing countries are skewed to - Tax bases of most developing countries are skewed to capital cities;capital cities;

- There are very few high yield taxes that can be - There are very few high yield taxes that can be reasonably be made LG taxes. reasonably be made LG taxes.

4. 4. How do we promote accountable local How do we promote accountable local government? government?

All reforms were implemented with little thinking about All reforms were implemented with little thinking about their accountability implications; their accountability implications;

LG should be accountable to higher levels of government LG should be accountable to higher levels of government (upward accountability) as well as to local community (upward accountability) as well as to local community (downward accountability);(downward accountability);

Community members should have the ability and Community members should have the ability and opportunity to demand accountability and the LGs should opportunity to demand accountability and the LGs should have the means and incentives to respond to citizen have the means and incentives to respond to citizen demands for accountability and better service delivery. demands for accountability and better service delivery.

Local Governance OutcomesResponsive, effective, efficient, sustainable servicesEnhanced political, financial and administrative accountabilityGreater local control over development planning and decision makingStrengthened accountability through greater citizen monitoring and vigilance over power holders

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Public Accountability approaches

Political accountability•Local council oversight•Electoral accountability

Administrative accountability•Bureaucratic hierarchy•Civil service rules•Procurement practices

Financial accountability•Local public financial management

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Social Accountability Approaches

Participatory planning Participatory budgetingParticipatory expenditure trackingCitizen access to information campaigns

Participator monitoring and evaluation

Participatory management of investments/projects

Citizen feedback for services (report cards, social audits)

Thus, local governments to fulfill their role Thus, local governments to fulfill their role effectively, must have:effectively, must have:

Clearly defined responsibilitiesClearly defined responsibilities for the management and for the management and finance of public services;finance of public services;

Independent budgetsIndependent budgets with adequate, predictable, and with adequate, predictable, and transparent revenues;transparent revenues;

Effective and participatory Effective and participatory accountability mechanismsaccountability mechanisms. . The right to own propertyThe right to own property as well as the actual as well as the actual

ownership of at least some of the publicly owned land ownership of at least some of the publicly owned land and buildings located in their jurisdiction;and buildings located in their jurisdiction;

Legal identityLegal identity and and the right to enter into contractsthe right to enter into contracts in in their own name;their own name;

…… ……and capacitiesand capacities

How we can support local government How we can support local government reform? (1)reform? (1)

INSTITUTIONAL ENVIRONMENTINSTITUTIONAL ENVIRONMENT Advocate, raise awareness (based on real examples);Advocate, raise awareness (based on real examples); Support LG policy development process:Support LG policy development process:

- Strengthen policy making capacities of responsible agencies;- Strengthen policy making capacities of responsible agencies;

- Support the development of legislation, strategic documents;- Support the development of legislation, strategic documents;

- Facilitate inter-ministerial cooperation;- Facilitate inter-ministerial cooperation; Develop capacities of the line ministries for LG reform;Develop capacities of the line ministries for LG reform; Facilitate the dialog between central and local level (formal Facilitate the dialog between central and local level (formal

procedures, strengthen LGAs, Working Groups, Forums);procedures, strengthen LGAs, Working Groups, Forums);

How we can support local government How we can support local government reform? (2)reform? (2)

ORGANIZATIONAL AND INDIVIDUAL CAPACITIES:ORGANIZATIONAL AND INDIVIDUAL CAPACITIES:

- Employment conditions;- Employment conditions;

- HRM;- HRM;

- Training systems;- Training systems;

ACCOUNTABILITY AND PARTICIPATION. ACCOUNTABILITY AND PARTICIPATION.

THANK YOU!THANK YOU!

QQuestion for discussionuestion for discussion::LOCAL GOVERNMENTS IN CENTRAL ASIA: WHAT ARE THE KEY CHALLENGES AND HOW CAN WE HELP TO ADDRESS THEM?

FRAMEWORK FOR LOCAL GOVERNANCE & LOCAL DEVELOPMENT Jurgita Siugzdiniene Development at Local Level...

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