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5TH URBAN AND CITY MANAGEMENT COURSE FOR AFRICA20-24 OCTOBER 2003

City/Municipal Management Strategy

J.M. Lusugga KirondeUNIVERSITY 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 ….

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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

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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 dis-enchantment 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

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• 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 co-operative 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

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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

• 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 co-operation 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 consensus-oriented 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

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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)