5TH URBAN AND CITY MANAGEMENT COURSE FOR AFRICA
20-24 OCTOBER 2003
City/Municipal Management
Strategy
J.M. Lusugga Kironde
UNIVERSITY COLLEGE OF LANDS AND
ARCHITECTURAL STUDIES, DAR ES SALAAM,
TANZANIA
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Purpose of Module 1
To examine:
• Corporate Visioning
• Governance
• Development Management of Information
systems
With specific focus on ….
2
Purpose of Module 1
• Principles of governance and management and
how these contribute to sustainability
• Strategic visioning and planning
• Innovative ways of involving stakeholders in
strategic visioning and planning processes
• Tools of measuring performance and
accountability of local governance
• Indicators of pro-poor planning and governance
• Role of information systems in governance
3
Principles of Governance and
Management
• Many urban centres characterised by increasing
urban poverty, unsustainable environmental
practices and social exclusion of the poor
• Inhabitants have lost faith in city governments
to provide them with a clean safe and affordable
environment
• Corruption contributes to citizen disenchantment and marginalisation of many,
especially the poor
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• Sustainable urban development depends on
management capacity of cities and active
participation of citizens
• Concept of governance refers to complex
sets of values, norms, processes and
institutions by which cities are managed
• Good governance aims at making cities
more efficient, equitable, inclusive, safer
and sustainable
• Sound, transparent and accountable
processes make cities more inclusive
5
• Good governance involves participatory
decision-making
• It involves:
- The State
- Local Governments
- The civil society (i.e. economic and social
actors, community based organisations, the
media, religious groups, etc), and,
- The private sector
• Views of these are reflected in city priorities
and the way the city is run
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Defining Governance (1)
• Not equivalent to “management” i.e. the
operation and maintenance of infrastructure
and services. Not equivalent to Government
• Third World Conference on Metropolitan
Governance (Tokyo 1993) identified 5
dimensions of urban governance:
political,contextual, constitutional, legal and
administrative/managerial
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Defining Governance (2)
• Encompasses intergovernmental relations
such as negotiations, agreements and cooperative ventures among public and private
parties
• Implies bottom-up decision-making,
decentralisation and broad-based participation
• Means civic engagement in decision-making
structures
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Defining Governance (3)
• Participation and human rights critical in
governing cities well
• Attention needs to be concentrated on those
who are currently excluded and denied access
to the social, economic and political resources
of the city
9
Advantages of Good Governance
in City Management
• Is an enabling tool ensuring that cities carry
out their functions effectively
• Ensures all social groups participate in city
life and activities
• Fights poverty
• Avoids exclusion as a result of physical,
social or economic deprivation or
discrimination, or mistrust of govt./politics
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Good urban governance results
into ……..
•
•
•
•
•
Economic efficiency
Increased social equity
Gender-aware policies
Sustainability
Improved living conditions of the urban
citizens including the urban poor.
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Practical Approaches to Urban
Governance (1)
• Enabling city-wide decision-making
Frameworks, drawing on multiple strengths and
capacities of all urban actors: e.g. City
Consultations that can foster a shared vision
and rationalise resources
• Mobilising around priority flagship
programmes i.e building strategic coalitions
between specific urban actors around priorities
that emerge from the visioning process
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Practical Approaches to Urban
Governance (2)… cotd
• Institutional Reform: moving away from single
agency top-down approaches, changing the role
of elected representatives esp. their interface
with citizenry and municipal administration,
and shifting to more demand-based orientation
on the administrative side linking policy intent
to performance and actual outcomes
• Monitoring, periodic impact assessment and
learning to maintain momentum
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Case Study: The Sustainable
Cities Programme
•
•
•
•
•
•
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Was implemented in Dar es Salaam from 1992
City Profile Prepared
City Consultation done and priorities identified
Working Groups formed for each priority
Strategies worked out for dealing with each
Resources from all stakeholders identified
Strategic Urban Development Plan formulated:
CIP Implemented
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Involving Stakeholders in
Visioning and Planning
Processes (1)
• Participatory decision-making processes
crucial to good urban governance
• Ensures: Transparency, accountability, equity,
efficiency, and sustainability
• Transparency: all information, priorities,
strategies actions open to all stakeholders
• Accountability: partners accountable to
public and to each other
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Involving Stakeholders in
Visioning and Planning
Processes (2)
• Equity: Each group has opportunity to
present and defend own interests
• Efficiency: Information shared, decisions
taken in common, overlap and duplication of
efforts avoided
• One innovative way of ensuring stakeholder
involvement is through City Consultation
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Involving Stakeholders in
Visioning and Planning
Processes (3)
• City Consultation held to build consensus
among stakeholders
• Could be organised around broad urban
management themes or specific issues
• Participants are the stakeholders: those
affected by priority issues, those with relevant
information, expertise and implementation
instruments. Key goal: “inclusiveness”
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Involving Stakeholders in Visioning
and Planning Processes (4)
• Stakeholders can be mobilised through
persuasion
• Mechanisms used include: sensitisation,
briefing sessions, inter-sectoral group
activities around priority issues,
demonstration projects
• Stakeholders participate in preparation of city
consultation and city profile
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Involving Stakeholders in Visioning
and Planning Processes (5)
• Consultations conducted using state of the art
facilitation and visualisation techniques
• Focused groups discussions to maximise
individual contributions
• Plenary sessions which allow for
reconciliation of differences and consensus
• Common vision built. Consensus agreed
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Involving Stakeholders in Visioning
and Planning Processes (6)
• City consultation should be used frequently
• Should be succeeded by real responses and
follow-up actions
• Aim to ensure materialisation of potential cooperation and willingness to work together
• Aim at sustaining momentum gained at City
Consultation
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Measuring performance and
accountability of local governance (1)
• Local governance can be said to include two
important areas:
• Representative Democracy (elections,
political parties, and elected officials)
• Participatory Democracy (civic
engagement, NGOs, CBOs and consensusoriented policy making)
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Measuring performance and
accountability of local governance (2)
• A local democracy mapping exercise can be
used as a tool to evaluate the extent and
quality of local democracy in urban areas
• A mapping exercise is made up of a set of
questionnaires, answers to which are
evaluated and inform remedial action
• Both representative and participatory
institutions and processes are evaluated
22
Measuring performance and
accountability of local governance (3)
• The city must be evaluated in national and
own context: historic, social, geographic,
and economic settings. These includes:
- Location and Layout
- Demography, social structure and relations
- Socio-economic base (including sources of
local revenue)
- Development indicators
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Measuring performance and
accountability of local governance (4)
• Representative democracy assesses the
institutional infrastructure of local democracy
• Examines: political party and other
representative institutions, their functioning and
effectiveness
• Assesses number of political parties and their
functional structure at local level, their
representativeness, openness and the extent to
which electoral process is free and fair
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Measuring performance and
accountability of local governance (5)
• Measuring participatory democracy within local
governments looks at:
- Openness towards citizens
- Fairness in treating citizens
- Transparency of structures and procedures
- Responsiveness to the needs of the citizens
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Measuring performance and
accountability of local governance (6)
• A number of possible governance indicators
have been suggested. These include:
- % councilors from opposition parties (political
competition)
- New corruption, theft, embezzlement cases
filed against council employees
- Per capita value of contracts awarded through
competitive bidding of tenders
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Measuring performance and
accountability of local governance (7)
- Amount of unvouched expenditure in last
audited report as % of total expenditure
- Year-end outstanding imprests as a % of total
expenditure
- Outstanding debt as a % of annual income
(measures fiscal planning, revenue raising,
financial controls etc)
- Number of legal cases opened against the
council
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Measuring performance and
accountability of local governance (8)
- Local Tax compliance (willingness to pay)
- % of total expenditure going to pure
administration
- % of expenditure on civil servants and
councilors’ allowances (priorities, weak
expenditure control)
- % of vehicles or major equipment grounded
(priorities, weak expenditure control)
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Measuring performance and
accountability of local governance (9)
- % of population (disaggregated) getting access
to services e.g. clean water, health, education,
housing
- % infrastructure laid, repaired, upgraded
- Measures to show extent of essential services
provided: e.g. waste disposed of, street lighting
- Etc etc. Should show improvement over time
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Indicators of pro-poor planning
and governance (1)
• Poverty increasing in many urban areas
• Most of the poor are excluded from
enjoying the benefits of urban life
• Some (e.g. squatters) are not legally
recognised as residents of the city
• Exclusion and marginalisation create and
reinforces poverty in urban society
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Indicators of pro-poor planning
and governance (2)
• Therefore a major indicator of pro-poor
planning and governance is the degree of
inclusion, or participation of the poor and
the marginalised groups in shaping city
decisions and enjoying benefits
• Planning must be timely, relevant, aim at
efficient utilisation of resources, and be
transparent.
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Role of Information Systems in
Governance (1)
• Information very important for effective
management and good governance
• Many local authorities in African countries
characterised by lack of basic information
• Where information is collected, quickly gets
outdated
• A lot of information not co-ordinated
• Lack of information means “flying blind”
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Role of Information Systems in
Governance (2)
• Information must cover important aspects
necessary for local governance
• Transparency, inclusiveness, and reliability are
important aspects of information for good
governance
• Decision has to be made over how and from
whom to collect the information. Cost of
collection and maintenance and access should
be low
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Role of Information Systems in
Governance (3)
• Amount of information to be covered could be
enormous, thus decision has to be made on
priority and necessary information such as:
- Location, layout, geographical characteristics
- Demography and social structure
- Natural resources, Environmental and other
Hazards
- Economic base: employment, industry,
services, formal informal sectors, income,
poverty
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Role of Information Systems in
Governance (4)
- Land use patterns, status of land development
- Sources of city revenue, compliance and
expenditure patterns
- Housing: Quantity, quality, access to services,
tenure patterns
- Services: need, supply and access, quality
- Infrastructure: roads, drains, water, electricity,
open spaces, transport patterns
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Role of Information Systems in
Governance (5)
- Economic outputs: agriculture, industry
- School enrolment, dropout, literacy
- Representation structures: institutional set up,
physical set up; representatives, committees,
meetings
- Incidences of diseases
- Disasters
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Role of Information Systems in
Governance (6)
Information should be:
• Cheap to collect and maintain
• Timely and relevant and easy to understand
• Updated regularly
• Easy to access and analyse
• Disaggregated e.g. on gender basis
• Highlight poverty and areas which need action
• Strive to show trends and project future
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Role of Information Systems in
Governance (7)
Availability of Information:
• Assists in making informed decisions
• Good planning to deal with current and future
problems
• Highlights poverty incidence and indicates
areas of intervention
• Completes citizen and stakeholder
participation
• Leads to accountability
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Conclusion
• Good governance involves co-operation
between the local authorities, the private sector
and the civil society
• Visioning and planning is carried out through
consultation with all stakeholders to build a
consensus
• City Consultation is one way of involving the
stakeholders
• Information is power, and a key tool in good
governance
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Conclusion…cotd
• The Local Government Reform Programme in
Tanzania aims at achieving good governance
• Laws have been changed to enhance
transparency and accountability on the part of
officials, and a code of conduct on the part of
representatives
• Capacity-building is being carried out through
training
• Public awareness for citizens is being
emphasised e.g. through the mass media
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Some References
• Taylor, P. (1999), “Democratising Cities:
Habitat’s Global Campaign on Urban
Governance”, Habitat Debate, Vol. 5, No. 4
• Tanzania (2001), National Framework on
Participatory Planning and Budgeting at
District Level, President’s Office
• Pieterse, E. and Juslén, J. (1999), “Practical
Approaches to Urban Governance”, Habitat
Debate, Vol. 5, No. 4
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Some References..cotd
• Halfani, M. McCarney, P. and Rodriguez, A.
(1998), “Towards an understanding of
governance: the emergence of an idea and its
implications for urban research in developing
countries”, in, Stren, R. (ed.),Urban Research
in the developing world, University of Toronto
Press
• Satterthwaite, D. (1999), The Earthscan
Reader in Sustainable Cities, Earthscan
Publications, London
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Some References..cotd
• IDEA (2001), Democracy at the Local Level,
Sweden
• UNCHS-HABITAT (2001), Cities in a
Globalising World, Earthscan Publications
• Tanzania (1998), Policy Paper on Local
Government Reform, Ministry of Regional
Administration and Local Government
• Tanzania (1999), The Natonal Framework on
Good Governance, President’s Office
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Some References..cotd
• .Peter Hall and Urlich Pfeiffer (2000), Urban
Future 21: A Global Agenda for 21st Cebtury
Cities, London, E&F Spon.
THE END (for the moment)
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