LOCAL GOVERNMENT COUNCILS PERFOMANCE AND THE QUALITY OF SERVICE DELIVERY IN UGANDA

LOCAL GOVERNMENT COUNCILS PERFOMANCE AND THE QUALITY OF SERVICE DELIVERY IN UGANDA Amuria District Council Score-car 2008/2009 Ssemakula Eugene Geral Lillian Muyoma-Tamale Benson Ekwee Ocen Joseph Aolu Charles Ariko ACODE Policy Research Paper Series, No. 35, 2010

Local Government Councils Perfomance an the Quality of Service Delivery in Ugana AMURIA DISTRICT COUNCIL SCORE-CARD 2008/2009 Ssemakula Eugene Geral Lillian Muyoma-Tamale Benson Ekwee Ocen Joseph Aolu Charles Ariko ACODE Policy Research Paper Series, No. 35, 2010

Pulishe y ACODE P.O Box 29836, Kampala Email: lirary@acoe-u.org, acoe@acoe-u.org Wesite: http://www.acoe-u.org Citation: Ssemakula, E., G., et.al. (2010). Local Government Councils Performance an the Quality of Service Delivery in Ugana: Amuria District Council Score Car 2008/09. ACODE Policy Research Series, No. 35, 2010. Kampala. ACODE 2010 All rights reserve. No part of this pulication may e reprouce, store in a retrieval system or transmitte in any form or y any means electronic, mechanical, photocopying, recoring or otherwise without the prior written permission of the pulisher. ACODE policy work is supporte y generous onations an grants from ilateral onors an charitale founations. The reprouction or use of this pulication for acaemic or charitale purpose or for purposes of informing pulic policy is exclue from this general exemption. ISBN 9970287079 i

TABLE OF CONTENTS Acknowlegements... iv 1 Introuction... 1 2 Methoology An Score-car... 2 3 Backgroun... 4 4 Selecte Socio-economic Inicators For Amuria District Local Government... 6 4.1 Primary Eucation... 6 4.2 Health... 7 4.3 Roas... 8 5 Buget An Revenue Architecture Of Amuria Local Government... 9 6 Score-car Finings An Interpretation... 10 6.1 Score-car Performance Of Amuria District Council... 10 6.2 District Chairperson... 10 6.3 District Speaker An Deputy Speaker... 11 6.4 District Councillors... 12 7 Amuria District Score-car Performance An The Quality Of Pulic Services... 19 7.1 Structural Factors For Poor Performance An Poor Service Delivery... 19 7.2 Operational Factors Affecting Performance Of Amuria District Council... 21 8 Recommenations An General Conclusion... 23 8.1 Avocacy For A Change Buget Architecture... 23 8.2 Aopt Minimum Eucation Qualifications For Council Memers... 23 8.3 Formulate A Comprehensive An Integrate Long-term Development Plan... 23 8.4 Continuous Orientation An Training For Councillors... 24 Conclusion... 25 References... 23 Annexes... 27 Annex 1: Amuria Councillors... 27 Annex 2: Amuria Local Council Scorecar... 28 Annex 3: District Chairperson... 29 Annex 4: Speaker... 30 Annex 5 District Councillors... 32 ii

Areviations ACODE AG CAO CBO CSO DDP DEC DEO FAL FGD FY HC KCC LC LG LGCSC LGCSCI LGDP LLG MoLG MOU NAADS NGO NPPA PAC PHC PLE PMA PRDP PWD SACCOs TB TC TPC UBOS ULGA UNEB UPC UPE Avocates Coalition for Development an Environment Auitor General Chief Aministrative Officer Community Base Organization Civil Society Organization District Development Plan District Executive Committee District Eucation Officer Functional Ault Literacy Focus Group Discussions Financial Year Health Centre Kampala City Council Local Council Local Government Local Government Councils Score-Car Local Government Councils Score-Car Initiative Local Government Development Programme Lower Local Government Ministry of Local Government Memoranum of Unerstaning National Agricultural Avisory Services Non Governmental Organization National Priority Programme Areas Pulic Accounts Committee Primary Health Care Primary Leaving Examinations Plan for Moernization of Agriculture Peace Recovery an Development Plan for Northern Ugana People With Disaility Savings an Creit Co-operatives Tuerculosis Town Council Technical Planning Committee Ugana Bureau of Stanars Ugana Local Government Association. Ugana National Examinations Boar Ugana Peoples Congress Universal Primary Eucation iii

Acknowlegements LOCAL GOVERNMENT COUNCILS PERFOMANCE AND THE QUALITY OF SERVICE DELIVERY IN UGANDA The Local Government Councils Score-car Initiative is a 10-year initiative (2009-2019) of ACODE whose goal is to improve the quality of pulic service elivery y uiling the eman-sie of governance an accountaility. The Initiative achieves this goal y unertaking an pulishing a local government councils score-car an a roust outreach programme targeting citizens an uiling capacity of local government political leaers. The Initiative was launche in 2009 y conucting an initial assessment of the performance of 10 local government councils, incluing Amuria, for the FY2008/09. ACODE is inete to the Deepening Democracy Programme (DDP) an its contriuting evelopment partners for proviing the initial funing that mae the first assessment possile. During the assessment process, the stuy team employe a wie range of participatory methos that involve structure an unstructure interviews, focus group iscussions (FGDs) an regular interactions with key local government officials such as Clerk to Council an the Pulic Relations Office. The research team, in a special way, acknowleges the support an cooperation receive from the councillors who participate in the assessment an citizens who participate in the focus group iscussions that were organize as part of the assessment exercise. The various officials who participate in the assessment y proviing information an clarifications on a wie range of issues are also acknowlege. The team acknowleges Rev. Aaron Mwesigye s contriution in the review of the raft report. The preparation of this report also enefite from wie-ranging iscussions with the stuy teams of all the other istricts. We enefite from workshops an electronic mail iscussions among the stuy team memers over the course of the assessment. We exten our special appreciation to all of them iniviually an collectively. Finally, we are conscious that this Score-car for Amuria District Council is the first of its kin an the methoology use has not een teste elsewhere. In the process of conucting the assessment, we have encountere a numer of challenges particularly relate to recor keeping an information retrieval. However, we have taken ue care to ensure that the facts presente in this report are reasonaly accurate an are a fairly ojective representation og the performance of Amuria District Council an its constituent organs. We are confient that the finings an recommenations will go a long way to improve the workings of Council an hence lea to improve service elivery an etter governance. iv

1 Introuction In 1992, Ugana aopte the ecentralization policy that sought to estalish a system of governance unerpinne y strong local governments. Susequent constitutional an legal reforms estalishe istricts an the su-counties as key pillars of local governments through which effective service elivery an local governance is to e attaine. Although ecentralization has een pursue over the last two ecaes, there is wiesprea consensus that the performance of local governments is less than esirale. The revenue ase of local governments has iminishe an they are now heavily epenent on central government isursements mainly through conitional grants. The quality of services is less than esirale as key services such as health care, water an sanitation, eucation an agricultural avisory services remain ismal. Yet, there is no evience that the citizens who are the intene eneficiaries of the ecentralization system are ale to eman for accountaility an etter performance from their electe leaers. Over the years, Government sought to improve the functioning of the local governments through regular monitoring an inspection processes. However, these monitoring an inspection processes have not aequately focuse on the local government councils as manate executive an legislative organs of the local governments. This report is a prouct of an ongoing assessment of the performance of local government councils in Ugana that commence in 2009 focusing on the financial year 2008/09. The assessment was esigne as part of an initiative to regularly monitor the performance of local government councils in Ugana an, to pulish an isseminate a local councils performance Score-car as a means of increasing citizens eman for improve service elivery an accountaility on the part of electe leaers. For the FY2008/09, similar assessments were unertaken in nine other istricts incluing Amuru, Hoima, Kampala, Kamuli, Luwero, Male, Moroto, Nei an Ntugamo. The assessment focuse on the local government councils an their respective organs as outline in the Local Government Act an other legal instruments. Council eing a corporate oy, the Chairperson, Speaker an Councillors forme the units of analysis for the assessment.

2 Methoology an Score-car This assessment was conucte using a methoology an Score-car evelope for the Local Government Councils Score-Car Initiative.1 As shown in Figure 1 elow, this methoology an Score-car measures the performance of local government councils an councillors on five key themes that comprise the responsiilities of local government councils, their organs an iniviual councillors.2 These are: financial management an oversight; political functions an representation; legislation an relate legislative functions; evelopment planning an; constituency servicing an monitoring service elivery. Consequently, scores were evelope to measure the performance of councils with regar to their core statutory functions: political leaership an representation; legislation an relate legislative functions evelopment planning; financial management an oversight; constituency servicing; an participation in lower local government councils. See Tumushae, Goer, et al (2010). Monitoring an Assessing the Performance of Local Government Councils in Ugana: Backgroun, Methoology an Inicators. ACODE Policy Research Series No. 31 ACODE. Kampala. 2 Ii 3 Ii

Monitoring inicators or the Score-cars were erive from each of the themes with specific focus on oth governance an service elivery. The Score-cars provie a asis for analyzing the factors that impinge on the performance of the council, while the service elivery inicators seek to assess iniviual leaers contriutions to central government priority sectors such as health, eucation, water an sanitation, an agriculture. While the methoology assesses the entire local government council as a oy corporate, the respective organs of the local government council for oth uran an rural local governments as shown in Figure 2 are treate as inepenent units of analysis. Figure 2: The Structure of the Local Government System in Ugana The local government councils Score-Car is premise on a theory of change which hols that y proviing ata an information on the performance of local political leaers, citizens will eman for accountaility an effective service elivery an hence trigger a vertical spiral of eman up to the national level. An empowere citizenry will trigger the reforms that are essential for creating a conucive environment in which the elivery of services is responsive to the majority of citizens. Consequently, eyon the scores of each organ of council, the assessment seeks to estalish the causal-effect relationship etween the performance recor of local council political leaers on the one han, an the quality of service elivery an accountaility on the other.

3 Backgroun LOCAL GOVERNMENT COUNCILS PERFOMANCE AND THE QUALITY OF SERVICE DELIVERY IN UGANDA Amuria District is one of the new istricts in Ugana, having come into existence in July 2005. 4 The istrict is situate in north-eastern Ugana an is orere y Katakwi, Soroti, Kaeramaio, Moroto an Lira istricts in the east, south, west an north respectively. Amuria comprises two counties of Kapeleyong an Amuria with a total area of 2,695.6 square kilometres. The location of the istrict place it at the epicentre of two conflicts, namely: the insurgency arising from the incursion of the Lor s Resistance Army an the cattle rustling from the Karimajong warriors. As a result of these conflicts, the istrict is characterise y high incience of poverty, isplacement an isruption of the socio-economic faric. However, currently, there is relative peace an the evience of recovery initiatives olstere y oth government through the Peace Recovery an Development Plan for Northern Ugana (PRDP) an efforts of Non Governmental Organizations 5 operating in the area. During the year uner review, the 2008 population projection for the istrict was at 315,500. 6 The annual population growth rate of the istrict stans at 8.2%, a rate far higher than the national average of 3.2%. Chilren elow 18 years comprise 57% of the population, while female to male sex ratio is 100:96. Tale 1 elow inicates other key emographic characteristics of the istrict. Tale 1: Demographic Inicators an Functional Age groups Inicator Description Percentage Population 180,022 (2002 census) Average annual growth rate 8.2% Uner 1 5 0-5 29 Age istriution 6_12 22 15 24 18 18 30 21 60 an aove 5 Sex ratio Males: females 96:100 Source: Amuria District Development Plan 2010-2012 Amuria was curve out of Katakwi District in 2005 through a resolution of Parliament. 5 The major NGOs operating in the area inclue: UNICEF, Water Ai, Malaria Consortium, FAO, Concern-Amuria, UBOS 2009, Statistical Astract

There is a high incience of poverty in the istrict with over 63% 7 of the population living elow the poverty line, a situation attriute to insecurity, changing weather patterns an lack of access to markets. Poverty is preominant among the rural farmer population which forms a ig proportion of the istrict population (over 90%) who epen on cultivation an livestock keeping as the major source of livelihoo. Politically, the istrict is mae up of 10 su-counties of Amuria Town Council, Aarilela, Asamuk, Kuju, Orungo, Morungatuny an Wera in Amuria County an Oalanga, Acowa an Kapeleyong in Kapeleyong County. All the LLGs have functioning local councils mae up of electe councillors with chairpersons. The istrict heaquarters are locate within Amuria Town Council. The istrict is heae y an electe council comprising the LCV Chairperson as the political hea with an Executive Committee of 5 memers rawn from the electe councillors of the 10 su-counties. The council conucts usiness through five policy /sectoral committees that elierate policy matters an make recommenations to the full council. The sectoral committees inclue: Finance, Planning, Aministration an Investment; Works, Water an Roas Committee; Prouction, Agriculture, Livestock, Fisheries, Forestry, Environment, an Marketing Committee; Community Development, Gener, Laour, Youth, Chilren, Elerly an Disale; an Eucation, Sports, Health an Sanitation Amuria District Development Plan 2010-2012

4 Selecte Socio-economic Inicators For Amuria District Local Government This analysis of selecte socio-economic inicators is intene to provie a asis for making a causal-effect analysis etween the performance scores of the istrict council an the quality of service elivery, voice an accountaility. In an ieal situation, the quality of political leaership shoul e translate into the quality of pulic services elivere in the istrict. 4.1 Primary Eucation The status of eucation in Amuria District is characterise y stark variations in the inicators especially with regar to the gener ivie. Inicators of literacy, enrolment, school ropout, an retention ten to isavantage the females in contrast to their male counterparts. Tale 2 elow presents the eucation-relate inicators in the istrict Tale 2: Eucation Inicators Eucational attainment Male Female Enrolment in primary schools 34,685 32,851 Teachers employe in primary schools 870 240 Population that has never attene school 29.1% 70.9% Population that has attene school 53.8% 46.2% Incomplete primary (P1-P6) 46.8% 53.2% Complete primary (P7) 66.1% 33.9% Complete seconary 81.1% 18.9% Source: Amuria District Development Plan 2010-2012 Primary eucation performance is poor compare to the national average as inicate in Tale 3 with eclining trens in performance over the past year (only 0.2% passing in first grae in year 2008). Tale 3: Trens in PLE perfomance Grae 2006 2007 2008 Amuria Ugana Amuria Ugana Amuria Ugana Div 1 1 5.91 1.2 5.49 0.2 2.48 Div 2 51.2 47 49.3 45.5 26.4 30.6 Div 3 30 22.3 28.4 22.9 44.6 31.5 Div 4 13.3 12.5 13 11.9 16 14.7 U 4.5 11.5 8.1 13.3 12.8 20.1 Source: Ugana National Examination Boar

The key challenges for the sector as cite in the District Development Plan 8 inclue: insecurity; inaequate infrastructure; limite numer of post-primary schools; lack of a epartment ataase; inaequate staff oth at the istrict heaquarters an schools; epenence on Central Government an onor funing; inaequate facilities an facilitation for co-curricular activities in schools an community sports; an inaequate facilitation for support supervision. 4.2 Health The health situation in the istrict is characterize y a high isease uren with malaria (54%) an acute respiratory infection (15%) as the major causes. Furthermore, common illnesses such as iarrhoea (8%), intestinal worms (6%), trauma (5%), an skin infections (3%) contriute to this uren. The high incience of malaria is attriute to lack of mosquito nets - especially for people living in Internally Displace (IDPs) camps - an the reeing places for mosquitoes, especially in the rainy season. The other hygiene-relate iseases like iarrhoeal infections are most prevalent within the IDP camps where sanitation conitions are so poor. In terms of health infrastructure, the istrict has two Health Centre IVs, 11 Health Centre IIIs, an five Health Centre IIs. 9 The structures in the government health facilities, especially those constructe after inepenence are poor. Classical examples are the two HC IVs of Kapeleyong an Amuria that have ilapiate structures an are in ire nee of renovation. There is also a prolem of unerstaffing with the istrict currently having a staffing level of only 104 health personnel. 10 This situation is mainly attriute to insecurity an inaequate funing. Figure 3: A patient on rip in a community Health Centre in Aten village, Amuria District Source: ACODE Digital Lirary May 2010 Access to safe water an sanitation facilities is equally low, with latrine coverage at only 24% while pipe water is only accesse y the population in Amuria Town Council. The rest of the population epens on protecte springs, eep oreholes, an shallow wells (installe with han pumps). The major challenges for water provision mainly emanate from the inaequate funing accore to the sector an the istrict. Amuria District Development Plan 2010-2012 9 The istrict oes not have a single hospital. 10 Amuria District Development Plan 2010-2012.

4.3 Roas Amuria District has a roa network covering a istance of 580 km.. This inclues trunk roas, feeer roas an community roas. The maintenance of the roas has een a ig challenge to the istrict, especially after the occurrence of the floos in the thir quarter of 2007. The floos washe away roa surfaces, riges an access to a numer of places was affecte, making 54% of the feeer roas an 79% of the community roas inaccessile 11 as inicate in Tale 4. The poor state of the roas has wier implications for accessiility to other services y the communities an inaility to tap economic opportunities availale in outsie markets. Tale 4: Feeer roa length y su-county an conition of accessiility County/Su county Accessile (Km) Inaccessile (Km) Total (Km) Acowa 19 12 31 Kapeleyong 30 18 48 Oalanga 18 35 53 Aarilela 7 10 17 Asamuk 23 33 Kuju 24 12 36 Morungatuny 0 20 20 Orungo 12 30 42 Wera 08 0 08 GRAND TOTAL 141 167 308 Source: Amuria District Development Plan, 2010-2012 Figure 4: Impassale roa in in Morungatuny Sucounty, Amuria District Source: ACODE Digital Lirary May 2010 11 Amuria District Development Plan 2010-2012

5 Buget an Revenue Architecture of Amuria Local Government Amuria District has three sources of revenue namely; central government transfers, locally generate sources an onor funs. Figure 5 elow inicates the trens in the structure of Amuria District uget for financial years 2007/08, 2008/09 an 2009/10. Figure 5: District Buget performance FY 2007/8- FY 2009/10 Source: Amuria District Buget Framework Paper, 2010/2011 The structure of the istrict uget inicates a high epenency on central government transfers an low locally generate resources. As inicate in Figure 5, the total revenues generate in the istrict over the three years accounte for only 1% (81 m) of the total revenue neee to run the istrict for the whole financial year with 84% contriute y the central government an the 15% y onors.

6 Score-Car Finings an Interpretation 6.1 Score-Car Performance of Amuria District Council The District Local Council an the Su-county Council are estalishe as corporate legal entities uner the Local Government Act. At their respective levels, the councils are veste with powers an responsiilities to (i) enact local laws necessary for the effective governance of the areas within their jurisiction, (ii) ensure accountaility an transparency in the conuct of council usiness an utilization of council funs, (iii) ensure effective planning an ugeting to spur evelopment an the elivery of pulic services to the local population, an (iv) to monitor the elivery of pulic service on priority national programmes. The Score-car, assesse the perfomance of Amuria District Council asing on these parameters. The council score 78 points as the overall percentage with goo performance registere in the council planning an ugeting role (12 out of 12) an legislative role 12 (16 out of 20). Council performe poorly with regar to monitoring service elivery (36 out of 48) an accountaility role (14 out 20). The goo perfomance uner planning an ugeting was attriute to the existence of the istrict plan an vision; existence of Local Government Buget Framework Paper; having approve the uget within the specifie time in accorance with the law; an an active Technical Planning Committee. The major constraining factor to the council is the asence of requisite legislative facilities. Amuria Local Council has no council chamers ut rather uses the general meeting room for council sessions. Similarly, there is no pulic relations office for council an neither o they have a councillors lounge. However, the Clerk to Council s office an the Planning an Development Office are operational with mini liraries that contain policy ocuments, istrict plans an ugets. 6.2 District Chairperson The Chairperson of Amuria District uring the financial year uner review was Mr. Julius Ochen. He was first electe in 2006. At the time of the assessment, he was serving his first term of office. Accoring to the Score-car inicators, the Chairperson was assesse on the following five parameters: (i) political leaership, (ii) legislative role, (iii) contact with electorate (iv) participation in communal an evelopment activities, an (v) service elivery on national priority programme areas 12 Council hel all the six manatory meetings an on time. In the financial year 2008/2009, six council meetings were hel y Amuria istrict council. The first was hel in 1 st August 2008 then in Decemer 19 th 2008, 26 th march 2009, 14 th may 2009, 12 th June2009 an the last one was hel on the 30 th June 2009. Council passe the District Orinance on environment of 2008/2009 that requires each househol to have two garens of cassava to ensure that people o not cut trees in orer to uy cassava 10

The overall score of the chairperson was 76%, with the est performance exhiite in participation in communal an evelopment projects (15 out of 15) 13 an monitoring of service elivery on national priority areas (26 out of 30). The scores in other parameters are equally impressive with 16 out of 20 for political leaership, 12 out of 15 for contact with electorate, while the least score is legislative role where the chairman score 11 out of 20. 6.3 District Speaker an Deputy Speaker The Speaker of Amuria District council uring the year uner review was Mr. Aiama Roert Ekaju. The Deputy Speaker was Mr. Francis Ecou. For the FY 2008/09, the Speaker only serve for 11 months, having assume office in August 2008 following the censure of the former speaker Mr. Patrick Elou Angonu on 1 August 2008. 14 The assessment focuse on five key parameters, namely: i) presiing an preservation of orer in the council, ii) contact with electorate, iii) participation in communual an evelopment activities, iv) participation in lower local government an, v) monitoring of service elivery on national priority programme areas The Speaker score 67 out of 100 possile points. The est performance was exhiite in his contact with the electorate (20 out of 20), while the worst performe parameter was participation in lower local governments (1 out of 10). The Speaker s perfomance on contact Figure 6: Wera Technical initiate y the Speaker Source: ACODE Digital Lirary May 2010 with electorate was olstere y the existence of an office in his constituency an a written programme for visiting his electorate. In aition, the Speaker ha initiate a numer of projects that the communities atteste to. 15 The Deputy Speaker, on the other han, score 54 out of 100 possile points. His est performe parameter was monitoring of service elivery on national priority progaramme areas (23 out of 30) while his worst performe parameter was participation in lower local governments (2 out 10 points). 13 The chairman was instrumental in kick-starting the peace initiatives etween Teso an Karamoja. He also initiate a project to comat phylariasis which was pilote in Oalanga su county an sprea to the whole istrict 14 During the Emergency Council Meeting Hel at the District Heaquarters on 1st August 2008, the speaker, Mr. Patrick Elou Angonu was remove on the asis of not eing impartial, eing isrespectful to councillors an harassing civil servants 15 The Speaker initiate tree planting in Oimai village, a technical school in Wera su-county, construction project at Amuria Primary School an linke the community to ifferent evelopment partners 11

6.4 District Councillors LOCAL GOVERNMENT COUNCILS PERFOMANCE AND THE QUALITY OF SERVICE DELIVERY IN UGANDA During the year uner review, Amuria District Council ha a total of 20 16 councillors in aition to the chairperson. With an estimate population of 291,200 in 2008, on average a councillor represente 14,560 people. Accoring to the Score-car inicators, each of the councillors was assesse on their performance in the following areas: i) legislative role, ii) contact with electorate, ii) participation in communal evelopment activities, iv) participation in lower local government councils an, v) monitoring of service elivery on national priority programme areas. In terms of gener representation, Amuria District Council comprises 10 male councillors an 8 female councillors. The performance of the councillors also inicates that male councillors on average performe etter than their female counterparts, with 55.3% as compare to 43.7% for female councillors. The average score for councillors was 50% with the est councillor, Mr. Eceru Moses Aga from Morungatuny having 81%, while the worst performing councillor Mr. Eteku George William from Kapeleyong ha 27%. Tale 4 inicates the performance of councillors isaggregate y gener. 16 Inclues the Speaker an Deputy Speaker 12

Tale 5: Perfomance of Amuria District councillors isaggregate y Gener Name Constituency Legislative Role 25 Contact with Electorate 20 Participation in communal activities 15 Participation in LLGs 10 Service elivery on NPPAs 30 Moses Eceru Aga Morungatuny 19 17 13 10 22 81 Moses Otim Omuron Asamuk 16 15 15 2 19 67 John Teenyang Youth 17 15 8 2 25 67 Charles Engoru Echeme PWDs 16 16 9 5 20 66 Eiru Paul Orungo 16 11 8 10 18 63 Samuel Ocheng Aroca Acowa 13 10 10 1 25 59 Michael Opio Kuju 14 5 8 0 20 47 Patrick Elou Angolu Amuria T/C 18 0 7 2 14 41 Moses Engemu Oalanga 6 5 13 0 11 35 George William Eteku Kapeleyong 5 2 9 3 8 27 Average Score for Men 55.3 Irene Ilalu Asamuk 15 10 10 0 16 51 Florence Isamukere PWDs 12 7 8 0 21 48 Beatrice Acan Hellen Kuju 14 0 8 2 23 47 Jane Anango Morungatuny 9 15 8 3 11 46 Rose Apolot Wera/Aarilela 11 5 3 0 22 41 Rosemary Acen Acowa 17 0 8 0 15 40 Jane Acuro Kapeleyong /oalanga 8 10 2 5 14 39 Jane Asimo Orungo 8 10 6 2 11 37 Average score for Women 43.6 6.4.1 Legislative Role The assessment of the legislative role constitute an examination of how the councillors conuct the function of eing legislators through eating an passing laws in council. The performance of the councillors was gauge asing on six specific activities, namely: participation in plenary session; participation in committees; moving motion for approval as a resolution of council; regular attenance of plenary an committees; an provision of special skills /knowlege to the council. Participation in plenary an committees: With regar to councillors participation in committees an plenary, the assessment inicates that there is a higher level of participation in the committees as contraste to participation in the plenary sessions 17. Figure 7 shows the participation of the councillors uring plenary sessions an committees. Total 17 Estalishe from the minutes of oth council an committees 13

Figure 7: Councillor Participation in Plenary an Committee As inicate in Figure 7, 65% of the councillors mae contriutions more than four times uring committee sessions as compare to 58% uring the plenary sessions. This variation was attriute to two major factors. The variation in committee an plenary participation was attriute to the fact that most of the contentious issues are iscusse uring the committee sessions, leaving little room for iscussion uring the plenary once the committee chairperson has mae a presentation. Inee, a critical look at the minutes inicates that many issues are tale y the committee chairpersons an then passe with little iscussion. However, there are particular councillors whose participation in oth committee an plenary ranks high, an this is attriute to iniviual skills. 18 Experience in council was also cite since three 19 out of the five councillors that score maximum points ha een councillors of Katakwi District efore the creation of Amuria District. Moving motions: The assessment of the nature an content of motions move y councillors reveale that 66% of them move motions without notice while none move a motion on notice. The motions without notice were spontaneous reactions that epene on the issue eing iscusse. A scrutiny of the minutes inicate that the motions 20 move focuse on key issues affecting the communities. Examples of motions move inclue: foo security, environment, funing of sectors an NGO work. On the other han, councillors seeme to lack knowlege of the ifference etween motions without notice an motions on notice which can partly explain the failure to move motions on notice. 18 The councillors who ha eate most were Mr. Moses Aga, Mr. Otim Moses Omuron, Ms.. Hellen Beatrice Acan an Mr. Samuel Ochen 19 Mr. Moses Aga, Mr. Moses Otim, an Ms. Rosemary Achen were councilors of Katkwi etween 2001-2005 efore the creation of Amuria in 2006 20 Ms. Rosemary Acen, Ms. Isamukere an Mr. Michael Opio move motions on Foo security, Mr. John Teyang move motion on NGOs that ha sign posts yet ha no work on the groun, move motion on hunger; Mr. Paul Eiru an Ms Jane Anago on environment policy, Mr. Eceru Moses Aga on Eucation Policy, an Ms. Irene Ilalu on increasing funing for community evelopment 14

Provision of special skills: The assessment inicates that very few councillors ha provie special knowlege to council. For those few who i, the nature of their office compelle them to o so. Cases in point are Ms. Florence Isamukere the PWD representative who is always aske y the speaker to make presentations on issues pertaining isaility. Similarly, committee secretaries like finance ten to provie guiance to plenary an committees as a special skill. Mr. Samuel Ochieng, for example, provie explanation on financial issues in almost all the plenary sessions. 6.4.2 Contact with Electorate The extent to which councillors stay in contact with their electorate was assesse asing on the written programmes for visiting the electorate, existence of an functionality of coorinating office; taking ecisions of council to the electorate an taking issues of the electorate to council. Written programme: All the councillors inicate that they were in constant interaction with their electorate although few coul auce the evience of a written programme. Many inicate surprise at the request of proviing a written programme claiming that they i not have to write own the frequency of times they visit the electorate. Some even reasone that they stay with their electorate an meet on a aily asis an hence there was no nee to have a programme. However, a few written programmes of councillors were availe with six councillors having two written programmes while one ha one programme. Co-orination Office: Coorination offices were seen as key contact points etween the councillors an their electorate. The assessment inicate that majority councillors use their homes as coorinating offices for the electorate. This was attriute to the lack of funs to acquire office premises in aition to the electorate eing locate within the precincts of their homes. The functionality of these homes as offices was however iscounte since the majority ha neither visitor s ooks nor files. A few councilors, however, ha functional offices within the traing centres that were well furnishe with office relate equipment such as files, noteooks an calenars. Communication etween council an electorate: Given the manate of the councillors to rige the gap etween the electorate an council, councillors were assesse to gauge the extent to which they took issues raise y electorate to council an the response from council to the electorate. The assessment inicates that the councillors who i not take issues raise y electorate to council Figure 8: Councillor Morungatuny in a village meeting Source: ACODE Digital Lirary May 2010 15

neither reporte ack to the electorate the ecisions of council. The assessment shows that 38.9% of the councillors neither communicate to council nor the electorate. On the other han, the tren inicates that councillors tene to communicate more to the electorate aout council ecisions (55.6%) than communicating electorate issues to the council (44.4%). This is supporte y the evience of istrict reports foun in possession of the councillors while the communication to council tene to e veral an coul not e easily verifie. 6.4.3 Participation in Communal an Development Activities in Electoral Area Councillors were assesse with regar to the projects initiate, their contriutions to projects an whether they linke communities to evelopment partners. Tale 5 inicates the performance of the councillors uner each of the parameters. Tale 6 Contriutions of councillors to communal activities Projects initiate Linking community to evelopment partners Contriutions to communal projects (Avice) Contriutions to communal projects (Material) None One project Two or more projects 5.6% 11.1% 83.3% None Signe one memoranum 61.1% 16.7% 22.2% None Yes 77.8% 22.2% None Signe more than one memoranum Yes 16.7% 83.3% The analysis shows that 94.4% of the councillors ha at least initiate a project in their electoral area, an 83.3% of these ha initiate two or more projects. These projects were mainly the councilors rain chilren with little support from other agencies or actors. The magnitue of the projects initiate varie from simple self-help groups 21 ringing together women an youth to high capital investment projects for health facilities 22 an schools. 23 On the other han, 61.1 % of the councillors ha not linke communities to evelopment Figure 9: Morungatuny Health Centre III linke to international Volunteers y Area councillor Source: ACODE Digital Lirary May 2010 21 Owounoi women farmers, Ikeunai women farmers Okoromit parish initiate y councillor Isamukere 22 Exmples inclue: Ongutoi Health centre IV in Aarilela S/C y ARUDA a CBO initiate y the speaker Amuria istrict an also the Amulance onate y the same CBO to the istrict, Ayola HC II community help, 23 Asamuke SS y councilor Otim Moses 16

partners, although 38.9% ha signe memorana for support to the communities. It was, however, reveale that espite the asence of signe memorana to the effect, councillors playe a key role in linking eneficiaries to the NGOs proviing services in the areas. Many of the councillors that claime to have linke their communities to evelopment partners pointe to the referrals they mae for the neey communities since partners, especially NGOs like Worl Vision an Concern, tene to involve local leaers in the ientification of the eneficiaries. The nature of contriution to evelopment activities also tene to e skewe towars material contriution in contrast to written avice. As inicate in Tale 6, 83.3% of the councillors that ha mae contriutions provie material support while a paltry 22.2% provie written avice. 6.4.4 Participation in Lower Local Government Councillors were assesse to gauge their level of involvement in lower local councils. The finings reveal that councillors atten meetings of lower local councils although with varying frequency as inicate in Figure 10. Figure 10 Attenance in Lower Local Councils As inicate in Figure 10, 61.1% of the councillors ha attene su-county council meetings. The 38.9% who i not atten inicate that they epene on the su county authorities to invite them for the meetings, something that is not always one. On the contrary, the verification visits showe that the leaership at LC III level always invite the councillors 24 although they o not turn up. 6.4.5 Service Delivery on National Priority Programme Areas Councillors are facilitate to unertake joint monitoring of government programmes y the respective epartments. The assessment showe active engagement of councillors in monitoring priority programme areas. The most monitore priority programme area was agriculture with all councillors having 24 17

inspecte NAADS/PMA programmes at least once. The attenance of FAL otaine the least scores with 61.1% of the councillors that ha not attene a single FAL session. Details of the performance on each national priority programme area are given in Tale 7. Tale 7: Councillors performance on NPPAs Parameter None One report Two or more reports Monitoring an giving feeack to council 11.1% 38.9% 50.0% Attene NAADS/PMA or other programs.0% 55.6% 44.4% Attene FAL session 61.1% 11.1% 27.8% Visite health units in the constituency 11.1% 44.4% 44.4% Visite schools in su county 33.3%.0% 66.7% 6.4.6 Participation in Meia It is vital for councilors to participate in meia events so as to reach a wier auience an communicate to the electorate key issues. Figure 11 shows the participation of councillors in meia events. Figure 11: Participation of councilors in meia events As inicate in Figure 11, councillor participation in meia events is very low, limite to 44.4% of councillors participating in raio talk shows, 38.9% writing in newspapers an only 11.1% 25 appearing on television. The issues iscusse in the meia were mainly relate to the floos that evastate the istrict in 2007 an the resultant famine thereafter. 25 Councillor Moses Otim wrote an article in Etop an partcicipate in raio talk show on Veritas on Agriculture 18

7 Amuria District Score-car Performance an The Quality Of Pulic Services The performance of the political arm of Amuria District (Council - 78 points, Chairperson - 84 points; Speaker - 65 points, Councillors - 55 average points for men an 43 average points for women) oes not match the quality of pulic services in the istrict. Inee, the scores for iniviual councillors, most of which are generally poor, explain the poor quality of services in the istrict. A numer of factors, oth structural an operational, explain this situation in Amuria District. 7.1 Structural Factors for Poor Performance an Poor Service Delivery 7.1.1 High Depenence on the Central Government Like all the local governments assesse uring the year uner review, Amuria is highly epenent on the central government an onors for its uget support. As iscusse in Section 5 of this report, over 84% of the uget revenue is raise though central government grants while 15% is from onors. The istrict s locally generate revenue amounts to a meagre 1%. This level of epenency unermines the rationale of ecentralization, affects service elivery an overall performance of the istrict. Most grants from the central government are conitional an therefore earmarke for specific services. Only a slight egree of flexiility is permissile, ut even so with restrictions. The unconitional grant, which is the only grant that LGs may use as part of their revenues, is mainly use to pay staff salaries. In many instances these funs are not aequate, an hence create a funing gap. 7.1.2 Political Power without Authority over Planning an Buget Legally an politically, Local Government Councils are responsile for all Local Government functions as stipulate in the Local Government Act incluing: planning, financial accountaility an the elivery of pulic goos an services. However, Amuria s political leaership hols no controlling or other appropriate authority to etermine or irect how the funs allocate to the istrict are utilize. The Chief Aministrative Officer who is the accounting officer of the istrict is appointe y the Central Government. Seconly, the various ministries incluing those responsile for Local Government an Finance have evelope a set of guielines an proceures that limit the involvement of the Local Government Council in the management of the istrict s financial resources incluing the procurement process. The guielines an proceures enjoin the council to oversee the use of funs y the technical agencies of the Local Government ut to ensure that they o not get involve in the governance of these resources. This is popularly referre to as the eyes 19

on, hans off approach to the governance of Local Government Council financial resources. 7.1.3 Asence of Strategic Development Planning an Implementation Targets Amuria District operates on the asis of the three-year rolling evelopment plan. The ugeting an implementation of the plan takes the form of an annual work plan with very short-term targets set for every financial year. There is no strategic long-term investment plan that can provie a framework for setting long-term evelopment targets an uget allocations. For example, the Council has no clearly efine targets for key sectors such as eucation, health, roas or even local revenue collection. Inee, the asence of long-term strategic evelopment targets enies the council the opportunity to operate in a more strategic manner an to measure their own performance on the asis of clearly efine evelopment an service elivery enchmarks. 7.1.4 Quality of District Councillors an other Capacity Issues The quality of councillors is mainly affecte y the level eucation. At the moment, there is no minimum eucation requirement for anyone to hol the office of a istrict councillor in Amuria istrict, as is the case in all other istricts. In fact, councillors are not require to sumit any acaemic papers as part of the eligiility requirements to context for the office of councillor. There is wiesprea consensus that councillors with very low level of eucation faile to express themselves uring plenary while some coul not make written contriutions to any committee. The low levels of eucation unermine effective eate an interaction among councillors an the highly eucate technical staff whom they are presumaly suppose to supervise. Inee, various councillors pointe out this as one of the major challenges some of their colleagues face in ischarging their statutory an political functions as envisage uner the Local Government Act. Evience from the assessment showe that councillors with higher levels of eucation (Degree, Certificates or their equivalent) eate an contriute more significantly an ojectively uring plenary an committee meetings. On the other han, some of the councillors lack asic skills an tools that are essential in ischarging the roles an responsiilities of councillors. For example, the recore istrict council proceeings i not inclue appropriate attriution that coul enale a qualitative analysis of the contriutions of iniviual councillors. Besies, the councillors themselves i not keep a coherent recor of their activities an contriutions. Most councillors i not have iaries or noteooks while others use loose recor options an cell phones that coul not e tenere as evience of performance at the time of the assessment. 20

7.1.5 Awaring Contracts from the Centre Such practices o not only create a isjointure etween the implementation an the supervisory role that local governments are suppose to provie ut also unermine the very essence of the policy of ecentralization. Accountaility for actions taken uring implementation of programmes an projects y the contractors is to the centre rather than the istrict. Furthermore, it affects supervision as well as the much neee role of holing contractors accountale y the Local Government. For example, at the inauguration of the Water AID fune Shs. 400 million project in 2008, the Amuria District chairman, Julius Ochen, highlighte the issue as a ottleneck to quality service elivery since the local leaers ha no say on what was eing provie. 7.2 Operational Factors Affecting Performance of Amuria District Council 7.2.1 Incomprehension of the Actual Roles an Duties on Part of Political Leaers Basing on their own confession uring the assessment, most councillors o not know their roles an responsiilities in entirety. It was estalishe that the orientation one at the commencement of council y the Ministry of Local Government was not comprehensive enough to enale them comprehen their uties. This ignorance of the asic roles an responsiilities on part of the electe politicians greatly hiners their supervisory role of service elivery in the istrict. 7.2.2 Poor Recor Keeping Councillors in Amuria istrict exhiite poor recor keeping in relation to their activities as electe leaers. For example although many councillors mae contriutions uring council meetings an met with their electorate, there was no recor to help euce evience to this effect. Some councillors i not have iaries or noteooks while others use loose recor options an cell phones. At the council level, it was evient that while councillors claime to have mae contriutions uring plenary sessions, many of these were not recore y the Clerk to Council ue to errors of omission or commission. 7.2.3 Political Intrigue There was apparent friction etween central government functionaries an the istrict leaership, especially the District chairman. Issues raise y the chairman who elongs to the opposition party UPC have on a numer of occasions een ignore y the central government. For instance, the issue of foo insecurity in the area is attriute to the unwillingness of the central government to help the people. Ochen insists that he has, on numerous occasions, sufficiently communicate to the government the situation in Amuria ut has een ignore 21

an even persecute. In April 2009 I wrote to government through the Office of the Prime Minister. I never got a response. In May, I wrote another letter in which I threatene to lea a emonstration to stop WFP trucks taking foo to Karamoja if our prolems were not aresse. The only response I got was a copy of a letter from the Prime Minister to the Minister for Disaster Prepareness. Before I coul lea the emonstration, I was arreste on accusations that I was leaing a group of thugs that where mounting roalocks an roing civilians. If the quality of pulic service elivery is to improve in Amuria District, oth the structural an operational factors nee to e aresse. At the national level, ULGA shoul work towars engaging in avocacy to help local governments like Amuria function etter. At the istrict level, councillors shoul take personal initiative to appreciate an manage their programmes of work LOCAL GOVERNMENT COUNCILS PERFOMANCE AND THE QUALITY OF SERVICE DELIVERY IN UGANDA Amuria LC5 Boss Hel Over Demo (Aapte from the New Vison May 3 2009) The Police on Thursay arreste the Amuria istrict LC5 chairman, Julius Ochen, over an unlawful emonstration. He was intercepte y the istrict Police commaner, Patrick Karamura an riven to Amuria Central Police Station where he was interrogate for aout two hours. Ochen sai he ha moilise area resients to walk from Amuria to Kampala to han over a petition to the Speaker of Parliament over famine in the istrict. He sai six people ha so far ie of starvation. I wrote to the Office of the Prime Minister calling for intervention ut no action has een taken. That is why I organise the people to walk to Kampala, Ochen explaine. Karamura, however, sai the emonstration was unlawful. He accuse Ochen of refusing to follow the right proceures for holing a peaceful emonstration. Karamura sai Ochen wrote to him a letter on April 20, informing the Police of the planne emonstration an he avise him to seek for permission from the Inspector General of Police, since the emonstrators woul walk through ifferent istricts. I avise the chairman that walking woul worsen the conition of those purporte to e starving ut he went ahea to launch the emonstration using a government vehicle, Karamura explaine. The mi-eastern Police spokesman, Hassan Nyene, sai Ochen was not arreste ut hel riefly for iscussions to issuae him from continuing with the protest. etter through improve recor keeping, regular contact with their electorate an effective as well as proper management of local government funs through regular monitoring. 22

8 Recommenations an General Conclusion The finings from the istrict Score-car partly explain the quality of service elivery. A numer of structural, policy an operational factors that impinge on the quality of services have een ientifie from the assessment. While most councillors may e aware of their uties, roles an oligations as highlighte in the Local Government Act, commitment to their implementation an realization was not forthcoming. In aition, there was poor ocumentation an recor keeping on the part of the political leaers an a iscernale etachment from the electorate. The following are specific recommenations that the istrict council can unertake to improve its performance an that of its councilors as a means of improving service elivery at the istrict level. 8.1 Avocacy for a Change Buget Architecture The high epenency on central government transfers makes the istrict a mere agent of the central government rather than fully flege local government as envisage uner Article 178 of the Constitution. Amuria District shoul work with other local governments through the Ugana Local Government Association (ULGA) to avocate for a change in the current uget architecture. It is important that the national uget resources shoul e equally share etween the central government an the local governments so that local governments o not have to epen on sectoral conitional grants. 8.2 Aopt Minimum Eucation Qualifications for Council Memers Although the current legal framework oes not stipulate minimum acaemic qualifications for Council memers, Amuria District Council shoul provie leaership y requiring that persons seeking to e memers of the council possess the minimum qualification of Avance Level eucation or its equivalent. Appropriate acaemic qualifications are essential in ensuring quality an roust eate in council an the supervision of council senior technical staff who are often eucate up to egree level. 8.3 Formulate a Comprehensive an Integrate Long-term Development Plan The istrict shoul e manage with more long-term evelopment plans. The current three- year rolling plan which is presente in form of work plans oes not aress strategic long- term evelopment interests of the istrict. For Amuria District to evelop, a long-term strategic plan that transcen eyon regimes an personalities ought to e in place. Such a plan woul also enale the council set long-term evelopment targets an perioic performance enchmarks on the asis of which it can evaluate its performance an progress. 23