Back and Next - Back and NextLocal government reform and decentralisation in The Gambia
Thursday, September 25, 2008
Putting the enabling legislation and institutional processes into motion Decentralised Planning and Development (Cont’d)
In The Gambia, both centralisation and decentralisation coexist in our political system, we have a dual system in which both centralisation as it refers to the consolidation of centralising forces towards the strengthening of structures and the body politic of the nation state on one hand, and decentralisation as in the deliberate formation of autonomous structures at regional and local levels for the reinforcement of processes in the greater empowerment of citizens in the control, and ownership of public policy and decision-making at regional and local levels.
This state of administrative dualism is a common feature of the democratisation processes in countries around the world.
There seems to be consensus in recent World Bank and UNDP research, since in the 1980s, that too much centralisation on one hand and absolute local autonomy on the other are both harmful to the state as a polity and as an economic sphere and that it is necessary to put in place a system of collaboration (decentralisation) between the national, regional and local centres of decision-making.
This renewed interest in the restructuring of the state is reinforced with the recognition that less centralisation makes national institutions more effective, whilst contributing to the greater efficiency and effectiveness of local and regional planning and development through local government authorities, NGOs and civil society organisations. It enhances the promotion of cooperation between government and citizens, increases transparency, and accountability at all levels, improves the response capability of institutions whilst reducing wide spread poverty which results from regional disparities.
The legislative and institutional arrangements in place for decentralised planning in The Gambia seek to ensure that the prescribed structures and processes are democratic and participatory, and they project a sense of ownership of the process at community level. The rationale is to identify and address community felt needs, promote community participation and decision making, enhance opportunities for sustainable and integrated community development and minimize wastage of resources and duplication of efforts.
The Planning Institutions
The shift to decentralised planning require the establishment of grassroots institutions within the prescribed legal framework for facilitation of participatory approaches. The key institutions are the Village Development Committees (VDC), responsible for identifying community needs and priorities in the formulation of village development plans; the Ward Development Committees (WDC), responsible for the formulation of ward development plans and the Councils, responsible for the Council development plans, through the Planning and Development Departments. In the case of Banjul City Council (BCC), where there are no villages or VDCs, the Ward Development Committees, WDCs are divided into sub-committees each responsible for the sectoral and thematic development of the ward area in education, health, environmental sanitation, etc.
These sub-divided WDCs are referred to as the Sub-ward Development Committees. In Kanifing Municipality there are also no villages as such and therefore, no VDCs. The Sub-ward Development Committees are considered as sub-units of the ward area - parallel to VDCs in the rural areas and serving as the entry points for intervention in the wards. The concept of Sub-ward Committees is not provided in the local government texts but the approach is conveniently utilised in KMC and BCC.
Facilitating Institutions and process
The Local Govt Act 2002 provides for the collaboration of state and non-state actors with local authorities in the implementation of the planning and development process. In Section 91, it states that “technical departments operating within the area of jurisdiction of every council shall support the development process of the council through extension workers operating at ward and village levels”.
These facilitating institutions provide back-up support for capacity building and technical expertise in the formulation of plans within the context of the decentralised planning framework. Multi-disciplinary Facilitating Teams (MDFTs) consisting of representatives of the various government departments and non-governmental organisations (NGOs) operating in the villages and wards assist in the capacity building of grassroots communities and institutions. The Departments of Planning and Development at the council level are to spearhead the integrated planning system, mobilising the required technical and financial resources and providing the necessary back-stopping and capacity building at ward and village levels. The shift to decentralisation necessitated a change to participatory approaches incorporating the participation of beneficiaries for community empowerment and sustainability in the formulation and development of plans.
Coordination, Approval and Financing of Plans
The Three Tier Planning System is incorporated with a corresponding Three Tier Plan Approval Format. At each planning tier, a coordinating and approval committee is established, charged with the coordination, formulation and implementation of the plan with the help of Technical Officers of the Multi Disciplinary Facilitation Teams. At the village level, this is the Village Development Committee (VDC), at the Ward Level, the Ward Development Committee (WDC) and at the Council Level, the Area, Municipal or City Council.
In accordance with the Local Government Act 2002, 60% of the development budget of a council is invested through the development plan of the council. And in Section 6 of the Local Government Finance and Audit Act 2004, “the President may in accordance with the constitution of the Republic cause to be presented to the National Assembly proposals of moneys to be paid out of the consolidated fund to the councils for each financial year as a General Grant which shall not exceed ten per centum of the capital budget of each council and be the minimum grant paid to a council to operate decentralised services”.
A Grant-in-Aid which is conditional and consists of specific moneys to a council to finance programmes agreed on between the central government and councils and be expended only for the purpose for which it is made, in accordance with agreed conditions. An Equalisation Grant may also be made to a council for the purpose of equalisation and based on the degree to which the council is lagging behind the national average standard in the provision of social services.
This is calculated based on a formula which takes into consideration factors including the population, age structure and the existing levels of services in the councils, the resource base, potential for commerce and industry of the area and their impact on the environment. These grants are remitted directly to the General Fund of the beneficiary council, a basket into which all revenue generated by the council shall be paid and from which all liabilities to be discharged by the council are charged.
Monitoring and Evaluation
The process of Decentralised Planning is cyclical. The implementation of Programmes and Projects start with their approval at each planning tier and availability of funds. The preparation and implementation of the plan is a process tracked to ensure consistency with the goals and objectives of the Area, Municipal, or City Council concerned. Similarly each project, which is part of a programme which emanates from this global plan, has its own in-built monitoring and evaluation plan.
Kemo Conteh is the senior partner, Governance Development and Management Services (GDMS), a consultancy firm at 9 Mamadi Manyang Highway, Kanifing Industrial Estate: Tel 4393393 email: octocorps@yahoo.com He was formally the director of Governance, Department of State for Local Government, Lands and Religious Affairs.
In The Gambia, both centralisation and decentralisation coexist in our political system, we have a dual system in which both centralisation as it refers to the consolidation of centralising forces towards the strengthening of structures and the body politic of the nation state on one hand, and decentralisation as in the deliberate formation of autonomous structures at regional and local levels for the reinforcement of processes in the greater empowerment of citizens in the control, and ownership of public policy and decision-making at regional and local levels.
This state of administrative dualism is a common feature of the democratisation processes in countries around the world.
There seems to be consensus in recent World Bank and UNDP research, since in the 1980s, that too much centralisation on one hand and absolute local autonomy on the other are both harmful to the state as a polity and as an economic sphere and that it is necessary to put in place a system of collaboration (decentralisation) between the national, regional and local centres of decision-making.
This renewed interest in the restructuring of the state is reinforced with the recognition that less centralisation makes national institutions more effective, whilst contributing to the greater efficiency and effectiveness of local and regional planning and development through local government authorities, NGOs and civil society organisations. It enhances the promotion of cooperation between government and citizens, increases transparency, and accountability at all levels, improves the response capability of institutions whilst reducing wide spread poverty which results from regional disparities.
The legislative and institutional arrangements in place for decentralised planning in The Gambia seek to ensure that the prescribed structures and processes are democratic and participatory, and they project a sense of ownership of the process at community level. The rationale is to identify and address community felt needs, promote community participation and decision making, enhance opportunities for sustainable and integrated community development and minimize wastage of resources and duplication of efforts.
The Planning Institutions
The shift to decentralised planning require the establishment of grassroots institutions within the prescribed legal framework for facilitation of participatory approaches. The key institutions are the Village Development Committees (VDC), responsible for identifying community needs and priorities in the formulation of village development plans; the Ward Development Committees (WDC), responsible for the formulation of ward development plans and the Councils, responsible for the Council development plans, through the Planning and Development Departments. In the case of Banjul City Council (BCC), where there are no villages or VDCs, the Ward Development Committees, WDCs are divided into sub-committees each responsible for the sectoral and thematic development of the ward area in education, health, environmental sanitation, etc.
These sub-divided WDCs are referred to as the Sub-ward Development Committees. In Kanifing Municipality there are also no villages as such and therefore, no VDCs. The Sub-ward Development Committees are considered as sub-units of the ward area - parallel to VDCs in the rural areas and serving as the entry points for intervention in the wards. The concept of Sub-ward Committees is not provided in the local government texts but the approach is conveniently utilised in KMC and BCC.
Facilitating Institutions and process
The Local Govt Act 2002 provides for the collaboration of state and non-state actors with local authorities in the implementation of the planning and development process. In Section 91, it states that “technical departments operating within the area of jurisdiction of every council shall support the development process of the council through extension workers operating at ward and village levels”.
These facilitating institutions provide back-up support for capacity building and technical expertise in the formulation of plans within the context of the decentralised planning framework. Multi-disciplinary Facilitating Teams (MDFTs) consisting of representatives of the various government departments and non-governmental organisations (NGOs) operating in the villages and wards assist in the capacity building of grassroots communities and institutions. The Departments of Planning and Development at the council level are to spearhead the integrated planning system, mobilising the required technical and financial resources and providing the necessary back-stopping and capacity building at ward and village levels. The shift to decentralisation necessitated a change to participatory approaches incorporating the participation of beneficiaries for community empowerment and sustainability in the formulation and development of plans.
Coordination, Approval and Financing of Plans
The Three Tier Planning System is incorporated with a corresponding Three Tier Plan Approval Format. At each planning tier, a coordinating and approval committee is established, charged with the coordination, formulation and implementation of the plan with the help of Technical Officers of the Multi Disciplinary Facilitation Teams. At the village level, this is the Village Development Committee (VDC), at the Ward Level, the Ward Development Committee (WDC) and at the Council Level, the Area, Municipal or City Council.
In accordance with the Local Government Act 2002, 60% of the development budget of a council is invested through the development plan of the council. And in Section 6 of the Local Government Finance and Audit Act 2004, “the President may in accordance with the constitution of the Republic cause to be presented to the National Assembly proposals of moneys to be paid out of the consolidated fund to the councils for each financial year as a General Grant which shall not exceed ten per centum of the capital budget of each council and be the minimum grant paid to a council to operate decentralised services”.
A Grant-in-Aid which is conditional and consists of specific moneys to a council to finance programmes agreed on between the central government and councils and be expended only for the purpose for which it is made, in accordance with agreed conditions. An Equalisation Grant may also be made to a council for the purpose of equalisation and based on the degree to which the council is lagging behind the national average standard in the provision of social services.
This is calculated based on a formula which takes into consideration factors including the population, age structure and the existing levels of services in the councils, the resource base, potential for commerce and industry of the area and their impact on the environment. These grants are remitted directly to the General Fund of the beneficiary council, a basket into which all revenue generated by the council shall be paid and from which all liabilities to be discharged by the council are charged.
Monitoring and Evaluation
The process of Decentralised Planning is cyclical. The implementation of Programmes and Projects start with their approval at each planning tier and availability of funds. The preparation and implementation of the plan is a process tracked to ensure consistency with the goals and objectives of the Area, Municipal, or City Council concerned. Similarly each project, which is part of a programme which emanates from this global plan, has its own in-built monitoring and evaluation plan.
Kemo Conteh is the senior partner, Governance Development and Management Services (GDMS), a consultancy firm at 9 Mamadi Manyang Highway, Kanifing Industrial Estate: Tel 4393393 email: octocorps@yahoo.com He was formally the director of Governance, Department of State for Local Government, Lands and Religious Affairs.
Author: DO
See Also - See Also