The Politics of Decentralization: Some Lessons from Africa

1. The Politics of Decentralization: Some Lessons from Africa Stephen N. Ndegwa PRMPS March 29, 2004 Decentralization Course March 2004

2. Purpose • Try to understand different pathways to decentralization, especially the political dynamics of the process • Address imbalance between technical and political analysis • Narrow pre-occupation with ‘big bang’ vs. incremental reform • universe of cases too broad & varied, ‘catch-all’ • closer attention and differentiation based on the state-society context that reform confronts Decentralization Course March 2004

3. Background • Significant decentralization reform since ‘80s • 2002 World Bank study, 13 of 30 African countries showed high/moderate decentralization • 13 showed at least some decentralization, with several in the process of change • Yet, reform process and results varied & underlying processes not fully understood Decentralization Course March 2004

4. Framework Framework for Assessing the Politics of Decentralization Decentralization Course March 2004

5. Findings from Uganda, Senegal, and Malawi • Uganda as advanced case (1986) • Senegal as least advanced (1960/66/72/96) • Malawi as middle (‘at threshold’) case (1993/4) Decentralization Course March 2004

6. Decentralization Course March 2004

7. Three Themes & Five Concluding Propositions • The enabling environment for decentralization reform • The design of decentralization for efficiency and stability • The dynamics of decentralization and empowerment for accountability Decentralization Course March 2004

8. Proposition I • The enabling environment for decentralization • 3 enabling political conditions are necessary: • sufficient fluidity in the macro-political discourse for agenda of state restructuring • powerful political coalition with incentive and authority to push through policies • community/stakeholders engaged, supportive, responsive to devolution First conclusion: in most settings, most of the time, movement towards decentralization will, at most, be incremental Decentralization Course March 2004

9. Proposition II • The design of decentralization • Uganda and most of Latin America: political momentum led, with technocratic fine-tuning catching up = more effective outcome • Malawi, Senegal and possibly Philippines: technical dimensions, modest political dynamics => ineffective reform Second conclusion: efforts to support movement towards decentralization should focus at least as much on the process of building coalitions of support, as on the details of technical design; technical designs cannot overcome political dynamics that over-ride institutions Decentralization Course March 2004

10. Proposition III • Decentralization is the result of the give-and-take among political elites • this give-and-take engages diverse interests, visions, and strategies for taking advantage of ‘windows of opportunity’ • Third conclusion: the process invariably will be a messy one, with uneven movement across different dimensions of decentralization, and an uneven, stop-start rhythm; once installed decentralization becomes part of political landscape…like other institutions Decentralization Course March 2004

11. Proposition IV • Dynamics of decentralization and empowerment • Broader perspective: decentralization/systematic reforms of intergovernmental systems is one way • Countries embarking on a process of deepening democracy vary in relative feasibility and efficacy of these alternatives • Fourth conclusion: reformers should not presume decentralization always the preferred alternative in the short- and medium-term Decentralization Course March 2004

12. Proposition V • Short/medium-term accountability options vary in institutional sustainability • Institutional coherence and ‘lock-in’ potential make decentralization advantageous/possibly more sustainable • Fifth conclusion: reformers should ensure vision of a democratically decentralized polity comprises the long-run backdrop – guiding ‘north star’– on which pragmatic short- and medium-term strategies/accommodations should converge over the longer-term Decentralization Course March 2004

13. Two Implications: Political Accountability Re-Aligning the Center Decentralization Course March 2004

14. Political Accountability • Contested elections • Open budget process with formalized citizen participation (all levels) • Citizens committees or boards monitor service providers • Formal participation in development planning • National support • Capacity building to empower these processes • Monitoring shows deviations from norms Decentralization Course March 2004

15. Re-Aligning the Center • Transform from administrator to support • Disengage from direct service delivery • Set Standards, Oversight • Equalization and equal development • Coordination (e.g. HIV AIDS, crises) • True National Public Goods • Macro-political environment must be conducive Overall: Reforming Role of the State Decentralization Course March 2004

16. Thank You! Decentralization Course March 2004