Journal of Citizenship and Morality Vol.1, No.1, November, 2017, 106-129 Assessment of challenges and prospects of Good Governance in Eastern zone of Tigray: the case of Adigrat city administration. Yohannes Hailu Asgedom 1 Lecturer, Department of Civic and Ethical Studies, Mekelle University, P.O. Box 451, Mekelle, Ethiopia. Abstract Governance has been one of the most popular buzzwords recently. It refers to a new process of governing or a changed condition of ordered rule or the new method by which society is governed. This paper discusses the challenges and prospects of good governance in the chosen public institutions of Adigrat city. Assessing the challenges and prospects of good governance were the main objectives of this research. The researcher employed both qualitative and quantitative approach. The major findings of the researcher are grumbles and grievances concerning good governance are existed. Specifically, the key elements of good governance like accountability, transparency, equality, and participation of different public institutions were real and pragmatic. In order to decipher the challenges of good governance at the grass root level of the governing process engaging societies in their governance process, organizing trainings, workshops and seminars in collaboration with governmental and nongovernmental institutions is needed. Keywords: Governance, good governance, Adigrat, Accountability, Transparency 1. Introduction Recently the terms "governance" and "good governance" are being increasingly used in 1 Email: joonaa12@yahoo.com Department of Civics and Ethical Studies http://mu.edu.et/jcm/
107 Yohannes Hailu development literature. Bad governance is being increasingly regarded as one of the root causes of all evil within our societies. Major donors and international financial institutions are increasingly basing their aid and loans on the condition that reforms that ensure "good governance" is undertaken. The concept of "governance" is not new. It is as old as human civilization. Simply put "governance" means: the process of decision-making and the process by which decisions are implemented or not implemented. Governance can be used in several contexts such as corporate governance, international governance, national governance and local governance (Yap Kioe, 2010). Since governance is the process of decision making and the process by which decisions are implemented, an analysis of governance focuses on the formal and informal actors involved in decision-making and implementing the decisions made and the formal and informal structures that have been set in place to arrive at and implement the decision. Government is one of the actors in governance. Other actors involved in governance vary depending on the level of government that is under discussion (Ibid). FAO (2007) has defined governance as the way in which society is administered and how the competing priorities and interests of different groups are reconciled. The organization affirms that it includes not only the formal institution but also the informal ones. It has also added that governance deals with the methods by which citizens participate in decision making, how government is accountable to its citizens and how the society obliges its members to be governed by its rules and laws. Governance is ruling system-consists of delegation of authority, power decentralization, people's participation, and group/stakeholder dynamism in level of participation, idea sharing and decision-making. Good Governance is a key element in development and in ensuring that globalization of all benefits in society. The state, in partnership with civil society and private sector, has a major role to play in the quest for
Journal of Citizenship and Morality 108 peace, greater freedom, social equity and sustainable development. It also includes awareness at operational level, inclusiveness, transparency and accountability. These elements are mutually reinforcing and cannot stand- alone (Shrestha, 2000). A first step in unraveling the paradox is to specify what characteristics of governance can be viewed as both affirming and challenging democracy. In itself, governance is a very broad concept that can mean any action or manner of governing. However, with the adjective good added to it, it becomes normative. Discourses on good governance include norms of participation, efficiency, and accountability, amongst others (Woods, 2000). These norms are translated into principles of action or ideals that should be pursued, for example when the EC White Paper on Governance (European Commission 2001) promotes participation, accountability, and effectiveness. It is this focus on action that creates the paradox. On the one hand, good governance presents key elements of governance as affirming democratic norms, such as the greater inclusion of non-state actors, decentralized decision making, and new, horizontal forms of accountability. On the other hand, these same elements are criticized for diminishing the political potential of non-state actors, for introducing disciplinary power, and for leading to decisionmaking practices that are unaccountable to the general public (Burnham, 2001). A second step in unraveling the paradox of democratic governance is to understand as inherently normative the affirmations or challenges that governance presents for democracy. Both normative and critical accounts of governance concern themselves either with the affirmation of specific democratic norms or with offering a critique of governance practices based on such norms. In the context of the EU; which has evolved to a system of governance over the last decades, contestations over what are
109 Yohannes Hailu valid norms for democracy, what they mean, and how they are reflected in governance processes are believed to be the rule rather than the exception (Wiener, 2007). Good governance comprises the existence of effective mechanisms, processes and institutions through which citizens and groups articulate their interests, exercise their legal rights, meet their obligations and mediate their differences. It s essential characteristics are: (a) Participation: All men and women should have a voice in decision-making, either directly or through legitimate institutions that represent their interests. Such broad participation is built on freedom of association and speech, as well as on the capacity to participate constructively. (b) Rule of law: Legal frameworks should be fair and enforced impartially, particularly the laws on human rights. (c)transparency: This concept is built on the free flow of information. Processes, institutions and information should be directly accessible to those concerned, and enough information should be provided to render them understandable and monitor able. (d) Responsiveness: Institutions and processes should serve all stakeholders. (e) Consensus orientation: Good governance should mediate differing interests in order to reach broad consensus on the best interests of the group and, where possible, on policies and procedures. (f) Equity: All men and women should have equal opportunity to maintain or improve their well-being. (g) Effectiveness and efficiency: Processes and institutions should produce results that meet needs while making the best use of resources.
Journal of Citizenship and Morality 110 (h) Accountability: Decision-makers in government, the private sector and civilsociety organizations should be accountable to the public as well as to institutional stakeholders. This accountability differs depending on the organization and whether the decision is internal or external to an organization (UNDP, 1997). 1.2. Statement of the problem As it is indicated in five years plan of growth and transformation (2010/11-2010/15) Plan for Accelerated Progress and Sustainable Development to End poverty (PASDEP), challenges of good governance in different levels encounters during the implementation where capacity constraints among leaders and public servants at different administrative levels. Therefore, in order to curb challenges government launched a number of process reengineering and training programs to improve skills and ensure appropriate policy implementation and implication capacity fanatical mobilization inflation problem, rain dependency, under performance of industrial sector and good practices. Several studies have been conducted on good governance among which significance of good governance and its challenges in Ethiopia and the findings show that lack of knowledge and skill of the officers on right implementation of good governance has impact on societal outlook, which constrains playing part in governance. To curb challenges, Ethiopian government has taken number of measures that could be considered as opportunities. This includes adaption of FDRE constitution, amendment of domestic laws, development plan that enhances the development of country in many accesses that helps society participate on government and related commitments of government (Gizaw, 2014). challenges and opportunities of good governance in Ghana and the findings shown that until recently governance is characterized by poor institutional performance, weak
111 Yohannes Hailu parliament, and lack of independence of the judiciary, corrupt police force, political instability, abuse and misuse of political offices, insufficient budgetary accountability, and lack of respect for the rule of law and human rights. However, since around 1990s there observed significant improvement in respect to good governance in Ghana pertinent to performance of the institutions (Abrham, 2014). The existence of poor responsiveness, lack of awareness about the management, lack of democracy, corruption, poor sense of ownership, double responsibility and lack of members awareness were found to be the reasons for weak performance. The binary logistic regression model results show that, four predictor variables such as participation, accountability, transparency and rule of law are found to be significant on the impact of cooperative performance which needs due attention of the concerned stake holders to maintain good governance practice(dayanandan, 2013). Besides, corruption and rent seeking behavior and activities, negligence by officials and employees of the municipality, lagging of response, lack of mechanism to ask municipality about its deeds and officials run for getting political loyalty from their bosses to either sustain their power or to upgrade their position rather work to solve residents problem, lack of financial, material and human resources, lack of institutional capacity are the major challenges (Dinka, 2016). According to Sebudubudu (2010) on his study entitled the impact of good governance on development and poverty argues that good governance in Botswana facilitated development and impacted positively on poverty reduction and political stability, to this extent, this has been a responsive democracy. It is the researcher observation that the echelon of attentiveness about leadership of how and when the society involving on good governance is low down and those who exercise political power are considered as deviants in the city administration that the
Journal of Citizenship and Morality 112 policies and ideologies were assumed to be only the leading powers to the administrative zone was observed as an overwhelming problem. Among the many, the public official are not accountable for the decision they made, slight contribution of society in the decision making process that the communities are decision taker rather than decision maker, the contentment level of services user is too stumpy and not considered as influential to bring an effective governance related facts and outlook of leadership roles which is initiated to undertake a research in the study area. Thus, the study tries to explore the challenges and prospects of good governance in Adigrat city Administrative office. 1.3. Research Questions In addressing the issue mentioned in the statement of the problem, the research attempted to investigate answers to the basic questions stated below. 1. What are the states of claim of good governance in Adigrat city Administrative office? 2. What are the core challenges that constrained society to get and participate in good governance? 3. What are opportunities that help to create consciousness on the challenges and prospects of good governance in the study area? 1.4 Objective of the Study 1.4.1 General Objective The main objective of the study was to assess the challenges and prospects of good governance in Eastern zone of Tigray, Ethiopia.
113 Yohannes Hailu 1.4.2 Specific Objectives 1. To scrutinize the status of good governance application in Adigrat city administration 2. To examine focal challenges that constrained society to get and participate in good governance 3. To identify opportunities that help to create wakefulness on the challenges and prospects of good governance in the study area. 1.5 Conceptual framework Accountability Transparency Equality Participation Openness Clarity and accessibility of information Equal treatment and Good Source: Own survey, 2017 1.5.1Description of the Diagram The above diagram indicates the correlation among the principles of good governance i.e. accountability, transparency, equality and participation as an approach to assess the challenges and prospects of good governance. The dependent variable in this study is good governance and the independent variables accountability, transparency, equality and participation. The main prominence of the paper is assessment of the challenges and prospects of good governance in the eastern zone of Adigrat city administration. Therefore, the
Journal of Citizenship and Morality 114 main points to be assessed are the engagement of the society, whether the public officers are responsive, open, and answerable and treatment the community regardless of any discrimination to maintain good governance. If these variables are in situated there will be effective good governance in that when the public officials are answerable for the decision they made and create an enabling environment for the public to play their role and to have free access of information of the decision making, then there would be a huge room for the assurance of good governance. 1.6. RESEARCH METHODOLOGY AND METHODS 1.6.1.Description of the study area Adigrat is the second largest city in Misrakawi zone, Tigray region of Ethiopia. It is located in the northern part of Ethiopia. By road it is 864 km northeast of Addis Ababa and 118 km north of Mekelle. It is the largest city closed to the border between Ethiopia and Eritrea, approximately 35km to Eritrean boarder. It is has an estimated population of about 76, 631 people. It is located at longitude and latitude 14o16 N 39o27 E/14.267oN39.45oE, respectively, with an elevation of 2457 meter above sea level, below a high ride to west. It is the last important Ethiopian city south of the border with Eritrea, and is considered to be a strategically important gateway to Eritrea and Red sea. It is also the administrative center of Ganta Afeshum woreda. Adigrat was part of Ganta Afeshum woreda before a separate woreda was created for the city. 1.6.2 Research Design As it is clearly stated in the above, the main purpose of this study is to identify the challenges and prospects of good governance. To accomplish the objective of the study a descriptive research method was employed. In order to perform this research it was
115 Yohannes Hailu important to get in touch with civil services office, justice bureau, women and youth affairs bureau and municipality. The questionnaires were of two types: closed and openended which were prepared for sample respondents of the study area. Structured questionnaires were used to collect information by interviewing the key informants. The questionnaire was prepared for the research participants that was set in English and translated to Tigrigna language. 1.6.3 Data Type and Sources The research was conducted by using descriptive survey type in which all data are relevant to the case was gathered and analyzed. This type of method was used because the research tried to assess the challenges and prospects of good governance on the basis of different good governance indicators. The researcher used both primary and secondary data as a source of information. Combinations of qualitative and quantitative data were gathered through semi structured questionnaires and interviews as a primary source of information for the study. A document analysis was also used as sources of secondary data which relied on published and unpublished materials, such as internet, books, magazines, reports and journals. 1.7 Sampling Techniques and Sample Size In order to acquire a representative sample of respondents for this study, non probability purposive sampling methods were used. The researcher has used convenience sampling to select authorized persons (service providers) and town dwellers (ordinary individuals) respectively. The main reason for using of convenience sampling was because of the sampling procedure of obtaining the people or units were most conveniently available. The offices of civil service office, justice bureau, municipality and women
Journal of Citizenship and Morality 116 and youth affairs office were selected purposefully. The reason why the researcher selects these public institutions was because these public institutions provide public services to the large number of the community. According to Choen and Moniona (1994) argue for statistical analysis, a minimum sample size of 30 is usually thought to be desirable. A number of factors also determined options for sample survey. These required less time and produced quick answer, more economical, and detailed information and high degree of accuracy because it deals with relatively small number of respondents. Furthermore; one could face financial, administration and time constraint to deal with the whole population (Walace, 2006). The total population is 164; from which the research participants were 130 sample respondents were selected purposively. The reason following was because of the knowledge and administrative experience they have in the public office. From whom, 18 were from the office of civil service office, 10 from youth and women affairs, 8 from justice bureau and 24 municipality. The remaining 70 respondents were dwellers that were selected purposively because of their knowledge and experience used as a source of information for this study. 1.8 Data Collection Techniques 1.8.1 Questionnaire A questionnaire amid both open-ended and close-ended question items have been originally prepared in English and then translated into Tigrigna to collect information from, Civil service office, justice bureau, dwellers and women and youth affairs office. 1.8.2 Interview Both structured and un-structured manner of face to face (personal) interview was conducted to obtain accurate information from civil service, municipality and dwellers that were selected purposefully in order to get the needed data.
117 Yohannes Hailu 1.8.3 Method of Data Analysis Data collected through the above-mentioned techniques were organized by using descriptive statistical tools such as percentages, tables, graphs and figures. Hence both quantitative and qualitative approaches were employed in the research to come up with the study report. 1.8.4 Results and discussions This part presents the analysis and interpretation of data collected from the research participants. The major themes are developed in line with the guiding objectives and issues discussed in the literature section. The major findings of the study are presented with the main category of good governance; challenges and prospects. Efforts were exerted to make careful documents analysis strengthened by the primary data obtained. Table1.Background of Respondents Variables Characteristics frequency Percentage Sex Male 68 54.3% Female 62 45.7% Total 130 100% Religion Orthodox 60 45.7% Muslim 26 20.9% Catholic 28 21.4% Protestant 16 12.01% Others - - Educational status Total 130 100% Primary 12 9% Secondary 27 20.7% Diploma 32 24.65 Degree and above 60 45.7%
Journal of Citizenship and Morality 118 Total 130 100% Experience administrative function in 0-5 22 17.8% 6-10 40 30.85 11 and above 68 51.4% Total 130 100% Marital status Single 43 39.1& Married 87 60.9% Divorced - - Widowed - - Total 130 100% Source: Own survey, 2017 The above table indicates that majority of the respondents have adequate experience to carry out their duties and to provide relevant information for the study. Regarding to marital status 87(60.9 percent) of the respondents were married and 43(39.1) percent of them were single. From the above information s it was concluded the research participants have understandings about the challenges and prospect of good governance.
119 Yohannes Hailu Figure 1: Responses related with Accountability and transparency of the public officer to the public of the city administration Source: own survey, 2017 As it is clearly indicated above (figure 1), shows that about 80(62%) of respondents confirmed that there is no transparency and accountability and the other 50(38%) of respondents agreed on the transparency and accountability. From this it can understood the city administrative office were not transparent on the city administrative issues. Besides, it can imply that in the study area there have problems of transparency and accountability in a way that they are not open to the public. The data which was collected from informants shows that when the public officials make decisions it is not based on the need and curiosity of public and they don t want to invite (even when the people are invited and multiplicity of thoughts are suggested, it is not taken in to consideration for the betterment of the decisions) the community at the initials stage and when the decision come in to implementation phase a number of grievances encountered in the governing process. Moreover, the clarity and accessibility of newly enacted policies and decisions are near to the ground.
Journal of Citizenship and Morality 120 Table: 2.Equal participation of male and female on decision making No Gender Response Female Male Total % 1 Strongly Disagree 8 5 13 10 2 Disagree 10 13 23 17.7 3 Agree 24 26 50 38.5 4 Strongly Agree 20 24 44 33.8 Total 62 68 130 100 Source: field survey, 2017 As one can be observed from the above (table 2) that the participation of the society in terms of gender aspect on good governance 72.3% of the respondents replayed agreed as the participation of society on the aspect of good governance and the remaining 27.7% were disagreed on level of participation between male and female in decision making is not equivalent. The informants added that as female are more vulnerable part of the society they are not playing their role in governance process of the city affairs, the reason they added is because female are underestimated and they are considered as incapable to hold public office and lead different public institutions because of this reason public institutions are not serving all stake holders. Hence, it can be concluded that there have challenges of good governance and with the intention of the level participation of male and female in decision making is not one and the same in the study area of Adigrat city administration.
121 Yohannes Hailu Figure.2. Response to participatory decision making Source: own survey, 2017 The above (figure 2) indicates that about60.8% 0f the respondents were agreed on and 38.2% of the respondents were disagreed on the implementation of the pillar of good governance in the study area. Data gathered from the informant shows that as participation is one of the basic indicators of good governance is that decisions are expected to be made in a collective manner and asked how and to what extent is your engagement is powerful in decision making process, they responded the involvement they made in different dialogue and meeting is not a such influential and they are in a position to take than make decisions and there is a strong word but little action as the public officers don t want to be criticized for the misleading of the public institutions the reason further is because there is a tendency of those who seize public office suppose as they are the complete ownership of better policies and decisions. Accordingly, there have performance gap on partaking decision making in the study area.
Journal of Citizenship and Morality 122 Table 3. Participation of female and youth in leadership city administration offices. Level Sex Male % Female % Total % Woreda Council 76 76 24 24 100 100 Woreda Cabinet 25 95.5 3 4.5 28 100 Keble Council 1025 89.4 121 10.6 1146 100 Source: own survey, 2017 As it can be observed from the above (table 3) that the participation of youth in kebele counsel, Woreda Council and woreda Cabinets, Male to Female Ratio show that 76% to 24% in Woreda Council and 25% to 3% of woreda Cabinets where as 89.4% to 10.6% is the kebele council members which shows that female participation in leadership is at its infant stage and not plenty. Besides, the data which was gathered from informants indicates that in most circumstances the participation of female and youth is less than the other segment of society and asked why is because of the attitudinal backwardness that is inherited from the previous ancestors and lack of capacity to hold public offices in terms of knowledge and skill and most public officials come to leadership position not because of the capacity to make participatory decisions rather than political loyalty. Besides, informants added that as participation is the key cornerstone of good governance, participation to hold public leadership position is not made in inclusive manner. Hence, it can be concluded that participation of female and youth in leadership of the city administration is pathetic. The constitution of the Federal Democratic Republic of Ethiopia (FDRE) provides the legal basis for assuring Citizens voice and participation in socio-economic and political processes. Legal and institutional planning s aimed at ensuring interface between the governments and Ethiopians are stipulated in the Constitution. Article 43 (sub-article 2) clarify that citizens have the right to participate in nationwide development and,
123 Yohannes Hailu to be consulted with respect to policies and projects affecting their society. Parallel with the above it also argued that participation by all citizens is pivotal to the existence of good governance. Figure 3: Importance of good governance follow up Source: own survey, 2017 As one can understand from the above (figure 3) that about 69 percent of respondent agreed on follow up of the good governance application and 31 percent of the respondents Disagree follow up of good governance in the study area. Besides, informants added that if society is keeping on participation in different public dealings then surely they can get the expected result and it can increases the communities confidence level and helps to know their environment in a better way. The service users can come across many difficulties through which the community comes to distinguish the positives and negatives of decisions. In addition to this, the consistency of decisions made in line with the rule of law and the legal competence of decision making government bodies and individual task is an imperative factor for the legitimacy of the decisions and therefore for the assurance of good governance. However, it failed to realize that participation provides a platform to test the public ideas and thoughts. From this it can be concluded that there have follow up but still there is a gap concerning the application of good governance in the study.
Journal of Citizenship and Morality 124 Table 4:- Importance of adequate knowledge on polices, principles, and procedures of governance Respondents Frequency Percent Strongly agree 52 40% Agree 18 13.9% Disagree 38 29.25 Strongly Disagree 22 16.9% Total 130 100% Source: own survey, 2017 As it is clearly identified in the above table concerning the knowledge on policies and decisions as indicated in table above, about 54% of the respondents were agreed on the importance and about 46% were disagreed. This result shows there was awareness slit on policies and procedures of the government. From this it can concluded there were a need of capacity building for all civil servants, officers and the concerned bodies on the polices, principles and procedures of governments. In addition to this, data collected from informants implies that adequate knowledge on the policies and procedures plays a leading role in enhancing the implementation level of the existed policies and to the extent possible to reframe policies which are not compatible to the current need and interest of the community. Hence, it can be concluded that adequate knowledge can diminish the implementation gap of good governance.
125 Yohannes Hailu Figure 4:- Responses on: is good governance problem the problem of growth and development? Source: own survey, 2017 As it is depicted in the table above (figure 4) that concerning the problem of good governance were the problems of growth and development about 78.5% of the respondents agreed on and the remaining 21.5% were disagreed. This shows that there was knowledge gap on the impact of good governance on growth and development. Accordingly, it can be concluded that in study area people need awareness creation on the principles of good governance and its proper application in Adigrat city administration. In addition to the data gathered from the respondents, informants added that among the many critical problem of good governance corruption and rent seeking that public officer uses their office not to serve the people but boost their own private benefit and this creates a favorable environment for the community to be mistreated/ to have
Journal of Citizenship and Morality 126 imbalanced treatment of service users in different public institutions. Hence, it can be concluded that the problem of good governance has its own consequence on growth and development. 1.9. Conclusion and recommendation This paper has sought to assess the challenges and prospects of good governance in the eastern zone of Tigray, Adigrat city of administration. The research finding shows that the city administrative officials were less accountable and transparent i.e. the decision was not open to the public. There was no enabling environment for the public to have their voice in their governance system. Decisions were made in spite of active sharing of the community and they were not decision maker rather than decision taker. Besides, there was a limitation of getting public service that the public officials were not delivering public service in an equal comportment. The existence of apparatus that shows to whom the city administrative officers are accountable and transparent for their decision and action they made so that people grumble with regards to good governance could be addressed. The administration system has to allow the service users to actively engage in decision making process of their governance aspects and it would be helpful to have public service delivery system without any discrimination. Based on the research finding, the author suggest further research on how the public awareness and capacity building of the public service users can contribute to the prevalence of good governance in the study area. Furthermore, the issue of gender and good governance can be ensured should be researched.
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