CASE STUDY REPORT Citizens Voice in Improving Service Delivery

Transcription

1 CASE STUDY REPORT Citizens Voice in Improving Service Delivery July 2013 By Julie Klugman External Consultant Australian Community Development and Civil Society Strengthening Scheme (ACCESS) Phase II

2 Table of Contents! Introduction!...!3! Case Study Objectives!...!4! Methodology and Approach!...!4! Theoretical Context!...!4! Overview of Key Partners and Roles!...!6! Overview of Village Complaints Centres (CCs)!...!7! Key Findings!...!8! Increased awareness and understanding of rights!...!8! Improved Community Capacity and Confidence!...!9! Increased Involvement of Women, Targeting of Poor Households!...!10! Volunteer Change Agents!...!11! Negotiated Agreements between Citizens/CSOs and Governments!...!11! Governments recognition of the Value of CCs/CSOs!...!13! CCs Supporting Change Agents within Government!...!14! Lessons Learned!...!15! Linking Policy and Practice!...!15! Connecting Practical Gains with Strategic Change!...!15! Importance of Understanding Local Contexts!...!16! Importance of Trust and Legitimacy of CSOs!...!16! Program Approach and Resourcing!...!16! Start with focus on Raising Awareness of Rights!...!17! Emphasis and Resourcing for Social Inclusion!...!17! Building on Local Resources!...!17! Strengthening Alliances and Linkages (Horizontal and Vertical)!...!18! Using Soft advocacy approach!...!18! For Further Consideration!...!18! Respective roles of CSOs and Governments!...!18! Strategies to Build on Engagement of Women in CCs (to further empower women)!...!19! Promoting CCs as Community Assets!...!19! Enhancing the Role of Village CCs in relation RUU Desa!...!20! Enhancing the Role of CC Alliances!...!20! Need for Long Term Commitment!...!20! References!...!21! A Case Study Citizens Voice in Improving Service Delivery July

3 Introduction The second phase of the Indonesia Australia Community Development and Civil Society Strengthening Scheme (ACCESS Phase II 1 ) has been working with Civil Society Organisation (CSO) partners and government stakeholders across five thematic areas, one of which revolves around supporting local efforts to improve citizen s engagement in public service delivery. The support aims to build awareness of citizens, with a particular focus on marginalised groups, in rural areas, of their rights and entitlements to quality service delivery. It also has the objective of increasing their organisational and individual capacities to demand their rights, and to effectively engage with service providers and policy makers on issues relating to service delivery. District level CSOs and village based Complaints Centres (CC) 2 have been supported to pursue this aim. To date more than 232 complaints centres are in operation, run by over 3000 volunteers, the majority of them women. These CCs provide information to citizens, take up grievances on their behalf, and organise with the aim of building the agency of citizens, both individually and collectively, to take action on their own issues. In many villages, CCs were built on or linked into existing CBOs or service posts such as health clinics, or where this wasn t possible CSOs partners encouraged the establishment of new, stand alone CCs. The CCs have developed solid relations with different stakeholders through which they can strengthen engagement between citizens and service providers. Various kinds of complaints have been received covering a range of issues (health, education, domestic violence, allocation of subsidised rice etc.). Often issues are able to be addressed and resolved at the local level, but where this isn t possible, when service units fail to respond satisfactorily, they are taken to a higher level (government agency level). This higher level advocacy is often undertaken with the support of district level CSO support, and in some locations with recently formed district level CC alliances The CCs are relatively unique in that although a limited number of Complaints Centres have been established elsewhere in Indonesia, these have generally been at the district or provincial level, not located within villages, managed by villagers themselves. The achievements of the CCs are contributing directly to the implementation of Indonesian Government decentralisation objectives, and the reform objectives as expressed through Law No. 25/2009 on Public Service Reform i (UU No. 25, 2009). Law 25/2009, following substantial and ultimately quite successfully lobbying from national CSOs, has a rights based emphasis, and covers a wide range of issues such as requirements for community participation, establishing services standards, addressing issues of specific needs of vulnerable groups, mechanisms for oversight/monitoring of service delivery and complaints resolutions mechanisms, as well as sanctions for non-compliance. ACCESS Phase II data 3 estimates approximately 667,567 4 citizens from 16 districts, especially the poor and other marginalised, have greater voice and increased control over services provided as a consequence of the work of the CCs, and as a result have been able to receive better quality and more affordable services, as well as greater transparency and accountability in use of local government funds. In addition to these more tangible benefits, it is clear that in many of the villages visited the CCs have created new ways of thinking within the community, and are stimulating new forms of relationships and ways of working between government and citizens based on increased trust, and!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 1 Primary aims of ACCESS Phase II support include: 1) building CSO capacity to assist citizens, particularly women, the poor and other marginal groups, to become more aware and active in village development; 2) building the capacity of village governments so they are more empowered, equitable and accountable; 3) support sustainable economic development 2 The term Community Centre is used to describe a range of community based organisations that are operating across 4 provinces. Local term varies from place to place, including Pusat Informasi, Pengaduan dan Mediasi (PIPM Centre for Information, Complaints and Mediation), Lembaga Pengaduan Masyarakat (LPM - Community Complaints Organisation), as well as the English term Complaints Centre. For ease of reference the term Community Centre abbreviated as CC is used in this report. 3 ACCESS database 4 322,764 males, 344,802 females A Case Study Citizens Voice in Improving Service Delivery July

4 respect. Where they are working well, CCs are changing the way communities are thinking about government services; changing the way government, service providers, are thinking about service delivery; and influencing the way district level CSOs are thinking about (and engaging with) communities and local governments. Case Study Objectives The case study aims to document the approach and achievements in supporting the development of village based CCs as a strategy and approach for citizen empowerment and improved social accountability. It summarises the information provided by informants by firstly placing their work in a known theoretical context for promoting social accountability; provides an overview of CC composition and roles; clusters and summarises key findings (tangible and intangible) from the field; identifies key lessons learned by identifying factors which supported or enabled achievements; and concludes with a recommendation of possible issues for further consideration. Methodology and Approach Following a desk review of documentation, the case study field research was undertaken over a 9- day period in May Discussions were held with selected community beneficiaries, CC volunteers, CSO staff, village government, front line service providers, government officials, and local members of parliament. Multi-stakeholder focus group discussions and individual interviews took place with stakeholders from 8 districts 6 across the 3 provinces of NTB, South and Southeast Sulawesi. A total of 307 people provided input during the case study period 180 women and 127 males. Theoretical Context There is steadily increasing appreciation in Indonesia that citizens and their organisations and networks have an important role to play with regard to improving accountability of public servants, reducing corruption and leakage of funds and improving public service delivery. Ways in which enhanced social accountability can contribute to improved governance processes, service delivery outcomes, and resource allocation decisions are of increasing interest to the Indonesian government, civil society and donors. Social accountability affirms direct accountability relationships between citizens and the state and puts them into operation. In particular, social accountability refers to the broad range of actions and mechanisms (beyond voting) that citizens can use to hold the state to account, as well as the actions on the part of government, civil society, media, and other societal actors that promote or facilitate these efforts 7 The 2004 World Development Report (Making Services Work for the Poor) provides a very useful framework for analysing accountability relationships between policymakers, service providers and citizens. According to this framework (adapted version below), successful service delivery requires relationships in which citizens have a strong voice in influencing policymaking with politicians and bureaucrats (voice), citizens as clients can monitor and discipline providers (client power), and policymakers provide the incentives for providers to serve clients (compact).!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 5 Two case studies were undertaken during the assignment, 9 days allocated for each (which included travel time between districts/provinces) 6 West Lombok, Gowa, Takalar, Bantaeng, Jeneponto, Baubau, Buton, Muna 7 World!Development!Report!2004!!Making!Services!Work!for!the!Poor!People!(World!BankSeptember!2003! A Case Study Citizens Voice in Improving Service Delivery July

5 Diagram 1 Short and Long Routes Framework for Improved Accountability in ACCESS Phase II Diagram 1 above amends this original framework in an attempt to better reflect the approach of ACCESS Phase II. Taking advantage of regional autonomy and the decentralised governance arrangements in Indonesia, the amended box on left hand side emphasises and distinguishes the direct interaction between village based CCs and front line service providers (for examples schools, clinics), and the advocacy and influencing work with district level policy makers undertaken by district CSOs and/or alliances 8, building respective strengths to simultaneously progress the short and long routes to improved accountability and service delivery. The amended left hand side also gives more emphasis to the importance of supporting and promoting linkages between village based CCs, and the resulting alliances formed for collective action, as well as the importance of strengthening linkages between district CSOs and national networks. It highlights the importance of these elements coming together to form strong, capable and representative CSO alliances for effective short and long route advocacy with the State. The short route is predicated on empowered citizens and citizen organisations being able to directly interact with and influence service providers to affect positive changes in service delivery. ACCESS Phase II has supported a range of approaches to empower citizens and their organisations, which has required fairly fundamental shifts in the usual ways of thinking and working of both communities and service providers. This has occurred using a variety of methods and tools to increase understanding of individual rights, understanding of government systems (roles and responsibilities), build local skills in community organising, understanding issues of gender and social inclusion, managing complaints mechanisms, as well as general communication and facilitation skills, and facilitation of forums for dialogue (and lobbying) between citizens and service units (the front line, for example schools, sub-district clinics, administration units). At the same time ACCESS Phase II has also supported efforts to enhance long route accountability, primarily through improving collective capacity to effectively interact with district government policy makers to lobby and advocate for policy change. At the district level, the alliances are made up of coalitions of village based CCs, along with district level CSOs, who are in turn supported by national CSO alliances. Program support in relation to long route is aimed at!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 8 In some districts CCs had established district level CC alliances, in others not (yet).! A Case Study Citizens Voice in Improving Service Delivery July

6 strengthening district level CSOs and alliances of CCs by linking them to national level CSOs/alliances, and building their capacity in areas such as stakeholder mapping, data collection and analysis, Citizens Reports Cards, legal drafting, facilitating public hearings, networking and advocacy (including for example use of the media as an advocacy tool). Overview of Key Partners and Roles Following multi-stakeholder visioning workshops in each district, ACCESS Phase II entered into 16 partnership agreements with local CSOs across the districts to support local efforts to enhance social accountability and improve public service delivery. As depicted in diagram 2 below, district CSOs were the centre of Program interventions (using their outcome mapping terminology, they are ACCESS Phase II boundary partners ). These district CSO partners, all of which have good understandings of local contexts (social/political), were provided with both capacity building and operational funding to support them to play active roles at both the village and district levels. Part of the support for district CSOs aimed to build their capacity to facilitate the establishment and strengthening of village level CCs, and the CCs capacity to engage with and mobilise communities, and directly negotiate with service units on issues of community concern. That is by way of short route interventions. District CSOs are also provided with support to enhance their own analysis, lobbying and advocacy capacity, all types of skills needed for long route influencing district policy makers. This district level policy advocacy may be in collaboration with CC alliances (where established), and supported by national level CSOs. The Program also recognised the importance of improving linkages between district and national level CSOs, in support of the skills building, but also demonstrating political benefits, with their relationships enhancing the legitimacy of both the district and the national CSOs. National CSOs/alliances provide capacity building support for district CSOs, for example in relation to data analysis, CRC methodology and legal drafting. In relation to improving public services, linkages and collaboration has primarily been with members of the Forum of Citizens Concerned about Public Services (Masyarakat Peduli Pelayanan Publik MP3), an umbrella organisation comprised of national and regional CSOs working towards improved public service delivery. District CSOs also reported that through these links they were able to capitalise on the established name and reputations of well-known national CSOs (such as ICW 9, an MP3 member), which had benefited them in their advocacy work with district governments. The good working relationship between national partner MP3 and the Ministry of State Apparatus and Bureaucratic Reform, the national government body responsible for the implementation of UU 25/2009 on Public Service Reform, has meant that local CSO efforts to support the practical implementation of this legislation have been recognised and supported by national government.!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 9!Indonesian!Corruption!Watch! A Case Study Citizens Voice in Improving Service Delivery July

7 Diagram 2 Key Actors and Roles Overview of Village Complaints Centres (CCs) 232 CCs have reportedly now been established in 11 districts, all of them run by volunteers chosen by the community in a public meeting. The majority of the 3,537 CC volunteers are women (2,114). Numbers of volunteers in each CC ranged from around 3 to 8 people, with more in larger villages where there was an effort to have one CC volunteer in each hamlet. The approach adopted by CCs varied depending on local context, capacity and opportunity. The following provides a brief overview of the CCs (and their CSOs networks), their aims and ways of working. Awareness Raising. The CCs aim to ensure that communities are able to understand their rights (and responsibilities) in relation to the government systems and services. A variety of methods and tools are being used to promote increased understanding of rights, including village meetings, working with and through the meetings of other established Community Based Organisations (CBOs - for example prayer groups, women s groups, clinics), going door to door (targeting poorer households), and dissemination and discussion of the results of community surveys/crcs 10. Complaints Handling. The CCs aim to provide a safe place for all in the community, but particularly the traditionally marginalized, to ask questions and raise concerns or complaints regarding public services. The CC manages complaints from receipt to resolution. Different approaches and mechanisms are used for receiving and handling complaints. In some locations the process is well documented with each complaint received being recorded, along with the steps taken to follow up and final result. In other CCs, no records are kept on cases. The location for complaints handling depends on the village, in some villages there was a fixed place/office space (for example within the village heads office, or health clinic), and/or in the house of members in each hamlet. There were very few examples of CSO partners using the mass media for raising awareness of rights. Complaints are often raised on the street, in the market, as one of the volunteers explained, we are ready, anywhere or anytime. Complaints are also received during complaints month, an event which was held across 7 districts, with locations for lodging complaints in various public places such as markets and schools. 11 Last year a total of 3,022 complaints were received and the!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 10 Citizens!Report!Cards!tool!has!been!used!in!7!districts,!and!is!planned!for!3!more!districts!this!year! 11 In!2012,!3,022!complaints!received!across!7!districts,!with!issues!raised!compiled!and!discussed!with!local!government.!!! A Case Study Citizens Voice in Improving Service Delivery July

8 data on number and types of complaints were compiled by CSOs/CC volunteers in each district, and data analysed and discussed with local government and service providers. Advocating for Change Issues or cases that cannot be satisfactorily resolved within the community are taken to a higher level to advocate for government action and or policy reform. A variety of tools are used for advocacy including data collection (surveys etc.), public hearings and /or facilitated meetings between communities and frontline service providers, together or separately with district government. Where supportive local members of parliament are identified, informal alliances are formed. Use of local mass media varies between locations. In some locations media is considered a very powerful advocacy tool, in some cases less so. For example in Lombok, the ACCESS partner JMS (Jaringan Masyarakat Sipil - Civil Society Network) has used the media on a variety of occasions with impressive results, eliciting quick responses from the government. They report that now even the possibility of going to the media can stimulate action. This is quite different in other districts (for example Jeneponto), where the CSO partner PATTIRO Jeka reported that negative press has little impact on the attitude or ways of working of the government. Key Findings During the fieldwork local government, CSO and community informants provided numerous examples of change resulting from the work of CCs. Though the approaches and outcomes varied widely between partners and districts, informants overwhelmingly reported that the work of the CCs has had positive impacts across the areas of community/citizens empowerment, improved governance and improved service delivery. The most frequently sited tangible improvements in service provision fell under the headings of Easier access to personal documentation (especially for poorer in the village, for example identity cards, birth, marriage certificates) Greater transparency (demystification) of fee structures and charges Abolition of illegal fees for services Standardised hours of operation Attendance of service providers (during operational hours) Along with these practical/tangible benefits, many CC staff/volunteer respondents reported that their key achievements related to their efforts to empower their communities improving understanding of rights, increased willingness to come forward with issues and concerns. The following provides a brief overview of these views clustered under most commonly emerging themes. Increased awareness and understanding of rights One of the first areas of focus in the formation of CCs related to provision of information to increase understanding within the community of their rights in relation to government services, of local government policies and systems, and the roles and responsibilities of different areas of government. The majority of the informants reported that prior to the establishment of their CC, they had very little awareness of their rights in relation to public services, and there was widespread confusion about if and what fees were to be charged and for which services. It also meant that some in the community, particularly the poor, were not accessing basic services to which they were entitled. Lack of transparency in relation to service standards and payments, was often compounded by lack of information or recourse (where to go for help), which led to feelings of mistrust and frustration. This was reportedly often the case for complaints in relation to subsidised rice distribution (managed by village head), use of operational funds for schools/scholarships for poor A Case Study Citizens Voice in Improving Service Delivery July

9 students (head of the school), accessing subsidized or free services and/or medicines meant for the poor (health clinic head/staff). All CCs involved in discussions were able to clearly articulate changes that have taken place in their village as a result of improved understanding of rights. Most regularly mentioned was improved understanding of what services are available, fee structures and entitlements for poor and increased clarity regarding who is responsible for what (responsibilities). Improved awareness (and resulting action) reportedly came about through a combination of information provided directly by CC volunteers, and/or through CC facilitated discussions between citizens and staff from service units. The resulting increased awareness formed the basis for raising and addressing complaints, and collective action resulting in, for example, the development of Citizens Charters (described below). Improved Community Capacity and Confidence The women and men involved in the discussions were generally very knowledgeable and able to clearly explain the aims of their CC and their roles within it. As well as practical on the job support and mentoring from district CSOs, the majority of volunteers had attended some training to help them in organizing, facilitating community meetings, establishing and managing complaints handling mechanisms. All CC members reported substantial changes on individual level, improving their ability and confidence to communicate with power holders, and advocate for the rights of others in the community. We have learned a lot! If any of us goes along to a workshop, we always share what we learned with others in the CC on return. Most of us didn t finish junior high school, now we know about Law Number 25, 2009! We know that there should be a place where people can come if they have complaints, and we know what to do to help them. The community head (Ibu Lurah) came to talk to us last week, she is very supportive of us and the work we are doing CC Volunteer, Waliabuku Village, Bungi Sub- District, Baubau, Southeast Sulawesi! There was a very high level of understanding amongst volunteers, most of whom were able to confidently explain legislation and related/mandated rights in relation to participation, entitlements for poor, and rights to services. In the past, although we were unhappy, or felt something was unfair, we weren t brave enough to say anything. Now I am part of the CC, and have been to training, I better understand my rights, and even feel confident to help others. I often go and meet with the village head, and also the staff at the clinic, they know me now, we have a good relationship. It makes me very happy and proud, and other women can come to me for help CC Member, Sandik Village, West Lombok Many reported that because of their involvement in the CC, others are now seeing them as valuable community members, ask their opinions, and invite them to be involved in other community affairs, which makes them feel proud. Whilst other informants in the village reported being more confident to speak directly to service providers about their rights and entitlements, the clearest impact on capacity and confidence was amongst CC volunteers. Some in the community who reported still feeling uncomfortable or lacking in confidence to speak in meetings or with service units said for them the CCs provide a confidential and safe place to ask questions, and seek help. In explaining how the CCs helped them to access their entitlements, and /or explain why they were or weren t entitled to something, several said they felt that a load has been lifted off them, that A Case Study Citizens Voice in Improving Service Delivery July

10 they felt they had somewhere to go to express their frustrations, that somebody was listening, caring, and providing clear and practical advice and support. By documenting cases brought to them, some CCs have developed the capacity and confidence to use this data as a basis for collectively negotiating the creation of local agreements with service providers at the village and sub-district levels (see Citizens Charters below), as well as at the district level. In West Lombok, for example, through sharing information and experiences, the local CC alliance noticed that many issues raised by poor citizens related to problems with accessing marriage certificates (which are a pre-requisite for birth certificates, schooling and health care for children). The issue was then taken up by the alliance as an advocacy issue. Following a range of public hearings, the district government agreed to provide marriage certificates to all those in need, free of charge. As a result a total of 2040 couples were able to access marriage certificates through this process. This success reflected positively on the alliance and the local government, stimulating greater interest in the work of CCs. These and other collective successes publicised either in the local media and/or through word of mouth, have stimulated greater interest in the work of CCs, and increased demand for roll out to new locations. Several communities reported that their increased understanding of rights, combined with improved capacity and confidence to advocate for these rights, has resulted in a noticeable shifting or broadening of power previously accessible to only a few in the community (elites). This shift is being demonstrated not just in relation to interactions with service units, but also within villages themselves, with examples provided relating to increased community demand for more transparency or participation in selection of village office bearers. Increased Involvement of Women, Targeting of Poor Households The Program has a strong emphasis on gender and social inclusion and focuses time and resources on the training (mentoring and monitoring) of partner district CSOs, who in turn train and mentor CCs in developing practical approaches to social inclusion. Whilst approaches to engaging community members varied between CCs, they were all conscious of the need for tailored methods and spaces to try to reach as many people as possible. This included negotiating space/time at general community meetings, as well as other village based CBO events, to explain the objective and role of the CC. Often discussions and advice is reportedly provided on the street, we are often just asked when walking along, or when we are in the market. Although many CCs have a formal office space, provided in the village heads office or in the clinic, people also reported that many like to go the houses of CC volunteers for help, as they feel more comfortable there. CC volunteers all recounted how they make special efforts to reach more marginalized in the community. This was reported to be primarily through their door to door approach to reach and talk to people who may not access information through involvement in organized community meetings. The volunteers said this way they were able to reach some of the poorest people, as well as elderly people or disabled. Ibu X helped me a lot. I was soon due to give birth and I was told I should go to the midwife but I had no money so I was very worried. She told me I didn t have to pay for the midwife, and went to talk to the head of the health post. She didn t mention my name, but asked about midwife services, and any costs that people had to pay. He said none of us should have to pay for the midwife, as it should be free for those who are poor. Since then, there has been no charge, which has made us happy! Bonto Tanga Village, Bantaeng, South Sulawesi As noted above, the majority of volunteers are women. Though several reported the CC did include representatives from the poorer in the community, they are primarily from relatively better off families (that is, not the poorest of the poor). This assumedly relates not just to the time needed to A Case Study Citizens Voice in Improving Service Delivery July

11 progressively build relationships with and confidence of poorer, but also the greater opportunity cost of poor engaging as volunteers in organizations. Though in all villages visited, representatives from poorer households reported actively using and benefiting from the services provided by the CCs, it was clear that CC volunteers themselves felt most personally empowered through the work of the CCs. In discussions with many volunteers in all the villages visited, the majority of them women, most reported that prior to their involvement in the CC they didn t attend community meetings, and if they did, they were afraid to talk. They said that with the support and encouragement provided (by the CSO partner/mentor), they are now active not just in relation to CC work, but it has influenced them also in other aspects of their lives and engagement in other community activities. Several mentioned that they hope they can be examples/role models for other women in the community, and they try to encourage others to be more confident, to talk and ask questions in meetings. As noted above, the majority of the volunteers are women. There seem to be a range of reasons why more women volunteer than men. There is clearly a strong link/overlap between health clinic cadres and CC volunteers. Whilst the CCs cover all issues (not just health related), these cadres (vast majority female) are typically individuals trusted by the community, and have experience working with people from a range of socio-economic groups. Some also commented that they felt more women volunteered because they felt that quality of public service effects women more so than men, especially health and education for children. It may also of course be that more women are expected and prepared to work without payment compared to men, an area which warrants further study. Volunteer Change Agents There are reportedly over 3,000 unpaid volunteers across the 232 CCs formed to date. Whilst there were a variety of reasons for volunteering, a common reason for volunteering was because they wanted to help others, particularly poorer people (and other women), who they felt were unable to benefit from government services as they should. They were also motivated by the opportunity to learn, to have access to training, to better understand the system. All involved in discussions reported they were willing to support the CC without payment, but many also raised the issue of the need for support for operational costs needed to cover expenses such as transport costs (following up on complaints, taking complainants to service providers), and to purchase stationary to document cases. When asked why she wanted to volunteer to be involved in the CC one young woman, a volunteer in the village of Mambalan in West Lombok, said she wanted to be a role model for other young people (male and female). She said she felt that young people like herself who had access to schooling/higher education weren t helping others. She says she regularly talks to other young people about her experience, how proud it makes her feel when she is able to help others in the community who haven t had the same opportunities as she has. She wants to encourage other young people to volunteer, so that more relatively well-off young people will think more about helping others. Several also said this would be even more important in the medium/longer term, when they got tired and others were needed to take over from them. The issue of regeneration of volunteers seems not yet to have been widely discussed. Negotiated Agreements between Citizens/CSOs and Governments! There were many examples of CCs and alliances directly contributing to improved governance through improved engagement and dialogue between communities and service providers and district governments. Both CCs and service providers report that good relations have been established based on mutual respect, and that they now meet regularly to discuss issues emerging, A Case Study Citizens Voice in Improving Service Delivery July

12 including follow up of individual cases as well as discussions around development (and monitoring) of agreed service standards - piagram warga (Citizens Charters). Improving the quality of service delivery is a challenge in many developing countries. Citizens often find it difficult to hold government and other service providers accountable, precisely because they are not aware of the procedures and expectations that govern service providers conduct in the realm of service delivery. In addition to undermining the connection between citizens and the state, this lack of transparency hampers governmental effectiveness and creates myriad opportunities for corrupt practices.citizens Charters are public agreements between citizens and service delivery providers that clearly codify expectations and standards in the realm of service delivery. 12 The successful negotiation of Citizens Charters is highlighted as a significant achievement of the CCs, signifying the success of the empowerment process in achieving tangible practical outcomes of particular benefit to the poorer in the community, who are most dependent on government services. A total of 50 Citizens Charters have been developed and signed to date, at the village level, sub-district and district level. These have come about following a process of discussions and negotiations between communities (instigated and represented by their CC), service units/providers and local government, with many others currently in process. As negotiated agreements, they include issues of concern for all parties, and so for example address community concerns relating to opening hours, staffing availability, any charges for services, complaints handling mechanisms, as well issues such as documentation required of citizens by service unit so they can access services. In many places the charter has strengthened periodic joint meetings to monitor implementation, and to hold service providers to account for implementation of the contents of the agreement. In the absence of clear service standards (or sanctions) defined and overseen by district governments, these mechanisms demonstrate to the broader community that citizens are able to influence ways of working, and hold service providers to account. I think things have improved since we have been working with the CC. We now have an agreement with the community. Previously people used to come and we would help them but they didn t bring their identity card or family cards. We need these documents so that we can only claim costs for services. Now we have this agreement, community members know they must bring the cards to us. We give them 2 days to provide the cards, and they do! It has helped us also Head, Kampeonaho Clinic, Bungi Sub-District, Baubau! The Citizens Charters also considered useful from the perspective of service providers Many of the health services related agreements also involve the services of midwives. They include information that the services are free of charge for those with health insurance cards (in theory, accessible to all poor families) and working hours of the midwife. Several villages in Southeast Sulawesi enthusiastically reported much improved services from the midwives, who now (because of stipulations in the agreement) live in villages where they work. Some of the midwives also spoke of the!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 12 P3,!How!To!Notes.!Citizens!Charters:!Enhancing!Service!Delivery!Through!Accountability,!World!Bank! Social!Development!Department! Before there was a piagam warga, things were very different. We would go to the clinic but it wasn t open. We would have to wait or go home and return but not sure if staff would be there. That would cost us money every time we went. We also were charged for things that now we know should have been free. Now it s different, we know what time it will be open, and there should be no charges for going there Female household head, BontoTangonga village, Bantaeng, South Sulawesi A Case Study Citizens Voice in Improving Service Delivery July !

13 agreements, some reporting greatly improved health seeking behavior by expectant mothers. As well as these examples of short route achievements of the citizens directly negotiating with service units, resulting in improved services, there are a number of long route examples of successful negotiation in relation to district policy decisions. This has resulted in the creation of 3 district regulations (legislation) relating to improving the quality of service delivery, with another 6 RanPerda (planned/proposed legislation) currently under discussion. Another example of long route achievement was from the district of Jeneponto, where the local CSO alliance was successful in advocating for the establishment and resourcing of a district Public Service Commission, comprising representatives from both government and CSOs. Previously people didn t use the midwife; they preferred to go to local dukun/traditional healer. With working together with the CC 1, people understand the importance of having check-ups. If people don t come along, I tell the CC people, and they will go to their home and encourage them to come in to see me. There was very recently a case of where a woman s family didn t let her come to see me. As I was concerned about her, I asked for help from the CC, who went to the home of the woman and explained to her that it was important to come in for checking, that the check- up is free of charge. They then allowed her to come. This is an example of how the piagam warga helps us also Midwife, Tamalatea Village, Jeneponto, South Sulawesi Governments recognition of the Value of CCs/CSOs Regular Program supported forums for multi-stakeholder dialogue have reportedly resulted in increased trust and openness between CSOs and local government. There is increasing recognition and in some areas high levels of enthusiasm and praise within government at all levels of the value of CCs in supporting efforts to improve welfare through improved access to basic services. All village heads involved in discussions reported that CCs had greatly assisted them in doing their work, that CCs were able to explain or resolve many issues that previously caused some local low level conflict. A significant number of complaints received reportedly related to lack of basic information, because people are not aware of systems and processes, and were able to be relatively quickly resolved by the CCs. A variety of (generally) in-kind support has been provided by village heads/governments. This included convening of meetings to discuss CC related issues, offering of space within village offices for CC use, but there were also examples of villages allocating small amounts of money (through the currently limited ADD village allocated budgets) to support the operating costs of CCs. A female village head in Muna district 13, explained that she was very supportive of the work of the CC in her village, saying that because of the work of the CC, people in the village were more aware of their rights and responsibilities in relation to government services, and also that there were now better relations between the community and service units. She has reportedly been asked to chair the district level Village Heads Forum and said that if/when this occurs, she will explain to all the other village heads the benefits of the CC in her village, and will encourage all other villages to establish, and resource, a CC in their villages, saying her dream is that all villages in Muna will have a PIPM 14!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 13 This village head was previously trained as a community facilitator in the ACCESS Phase I, and attributes her election and push for transparency and accountability of government to her training supported by ACCESS. 14 PIPM Centre for Information, Complaints and Mediation, term used in Southeast Sulawesi for CC! A Case Study Citizens Voice in Improving Service Delivery July

14 Similarly, many district government informants were enthusiastic about the work of the CCs, saying the CCs were assisting them in their role of monitoring the quality of service delivery, and that they would like to see them continue and expand. The district government in West Lombok for example commissioned the JMS alliance to conduct customer satisfaction surveys in relation to health services in the district (with the results of the satisfaction survey demonstrated marked differences - higher levels of satisfaction - in villages where there was a CC which had developed complaints mechanisms and good communications with local clinics. There were also several examples of CC/CSO alliances being asked to be involved in preparation and/or review of a range of draft legislations (relating primarily to health and education sectors). The manner in which issues are raised ( being polite ) was often highlighted by government, who feel that this has been a key contribution to improved dialogue and successes in improved engagement and responsiveness. This soft advocacy approach has resulted in creation of relationships of (relative) trust, which, in turn, has created space for engagement and dialogue, and, through that, opportunity for change. At the Provincial level, positive links have been formed with the recently established Office of the Ombudsman (ORI), who in most districts had been involved in discussion forums, explaining their role, praising and offering assistance and support to the work of CCs, CC alliances, and district CSOs. CCs Supporting Change Agents within Government Previously CSOs only criticised us, now they are much more polite in our communications. That is a better approach, and we are able to work together to find solutions This sentiment expressed by the Head of the Department of Health, Jeneponto, South Sulawesi, was similar to that expressed in all locations visited, by district government staff and local members of Parliament. The soft advocacy approach, combined with facilitated multi-stakeholder meetings, have in some areas encouraged a feeling of joint concern and collaboration for improved accountability and service delivery. Interestingly, CCs have also provided a mechanism whereby concerned staff from service units can (safely and confidentially) voice their concerns regarding service provision, and thereby support their efforts to promote system change. Two of the CCs reported that they have responded to confidential complaints from frontline staff members (one from a sub-district health facility, the other a school teacher), relating to fees being extracted for services that should be free. They said these people felt they were unable to do anything, but they wanted these kinds of practices to be stopped. In both cases the staff approached CCs with the issue, explained the situation, and the matter was dealt with in a confidential way ensuring the name of the staff members wasn t raised. In both cases the allegations were followed up, and resolved to the satisfaction of the complainants. Interestingly also, there were examples of cases where allegations of misuse of funds were being addressed in village X, the service unit in neighbouring village Y, hearing of the cases and processes, changed their practice of charging illicit fees without intervention. Local members of parliament also sang praise for the work of CCs/alliances In discussions, local members of Parliament in NTB felt that the CC network supported by JMS was playing an important and very valuable role in promoting change in ways and working and thinking within government. They explained that they try to support where possible, but whilst there are some advantages of being elected representatives,, it is difficult to make changes. In response to a question as to whether many constituents come to them with concerns or complaints in relation to public service delivery one responded yes, often, but I tell them to contact JMS, they will help them better than I can. Others agreed this was the case, that it is difficult to make changes without external pressure. A Case Study Citizens Voice in Improving Service Delivery July

15 The approach has demonstrated that actively supporting the work of CSOs to empower communities, whilst at the same time encouraging multi-stakeholder engagement and dialogue, facilitates the emergence of champions from the supply and demand side to come together, and use their respective strengths and areas of influence to create positive changes. Lessons Learned Although varying quite widely between locations and partners, there are a number of factors which have clearly enabled and/or contributed to the numerous achievements described above. The following provides some important lessons learned through ACCESS Phase II experience. Linking Policy and Practice The existence of supportive national legislation to improve standards and accountability of local government in relation to service delivery has clearly contributed to CC/CSO achievements noted above. Most clearly this has been within the substance of National Law no. 25, 2009, but has also been supported by the existence of other legislation or regulations relating for example to freedom of information, the establishment of provincial Ombudsman s offices, and more generally that of regional autonomy. This progressive national policy environment has been beneficial in enabling and supporting the work of the CCs and can be said to have formed the basis, and in many instances provided the required legitimacy, by which CSOs/CCs have been able to engage with local government in relation to issues of transparency and accountability. However despite this supportive policy environment, it is generally acknowledged that there has been nationwide lack of progress in relation to the substance of UU25/2009. Despite the inclusion of sanctions for non-compliance, the deadline of April 2013 for implementation of Law 25/2009 has now passed, and there are few examples of district governments alone acting to implement components of the national legislation for example, established consultative mechanisms for the development of service standards, or the development of effective mechanisms for complaints receipt and handling 15. This demonstrates the futility of legislation/regulations in the absence of practical actions to promote widespread community understanding of rights and government systems and policies, and the importance of accessible (ideally village based), user friendly mechanisms whereby citizens can individually or collectively engage with government and hold government to account. It also highlights the important role CSOs can play in supporting the implementation of government policy, and the importance of ensuring that CSOs have the necessary skills, resources and space to effectively play this role. The National Government (MenPAN and RB - Ministry of State Apparatus and Bureaucratic Reform) has noted in a number of forums that it values the work of national and local CSO alliances in increasing awareness of the legislation, and for engaging and promoting dialogue with district governments to encourage the creation of required service standards and complaints mechanisms. Connecting Practical Gains with Strategic Change CC members report that early wins are a great way for people to be attracted to their work. There are examples of early successes from each community, of CCs helping individuals, often times poorer members of the community, to challenge unauthorized payment of costs relating to schooling or identity cards, or allocations of subsidized rice. Others in the community facing similar issues hear of the support provided, which prompts them to go to the CC. Demand for the!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 15 Though a number of frontline service providers have established suggestions/complaints boxes, government officials report that these are not being used, and no input has been received through this mechanism.! A Case Study Citizens Voice in Improving Service Delivery July