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Decentralisation and Establishment of Local Government in Lesotho

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Decentralisation and Establishment of Local Government in Lesotho Diplomarbeit Zur Prüfung im Studiengang Diplom Verwaltungswissenschaft An der Wirtschafts- und Sozialwissenschaftlichen Fakultät der Universität Potsdam Im Sommersemester 2006 Decentralisation and the Establishment of Local Government in Lesotho Vorgelegt am 09. Juli 2006 von _______________________________________________________________________ Robert Sperfeld Matrikel-Nr. 707036 Turnstraße 39, D-14482 Potsdam, 0331-88 74 37 8 [email protected] Betreut durch Dr. habil. Jochen Franzke Universität Potsdam Robert Sperfeld Decentralisation and Local Government in Lesotho ii Erklärung Hiermit versichere ich, dass ich die vorliegende Arbeit selbständig und ohne unerlaubte fremde Hilfe verfasst habe, und dass alle wörtlich oder sinngemäß aus Veröffentlichungen entnommenen Stellen dieser Arbeit unter Quellenangabe einzeln kenntlich gemacht sind. Potsdam, den 09. Juli 2006 Robert Sperfeld Robert Sperfeld Decentralisation and Local Government in Lesotho iii Table of Contents Erklärung..................................................................................................................ii Table of Contents....................................................................................................iii Text Boxes and Tables............................................................................................ v List of Appendixes ................................................................................................... v List of Abbreviations ................................................................................................vi Summary in German Language/ Zusammenfassung in deutscher Sprache ..........vii 1 Introduction ...................................................................................................... 1 1.1 Object of Analysis and Guiding Hypotheses ............................................. 1 1.2 Methodology and Structure of the Paper................................................... 2 2 The Concepts of Good Governance and Decentralisation ............................... 4 2.1 Governance and Good Governance ......................................................... 4 2.1.1 Governance in the Development Debate........................................... 4 2.1.2 Elements of Governance ................................................................... 6 2.2 Decentralisation ........................................................................................ 7 2.2.1 Definition and Types .......................................................................... 7 2.2.2 Rationale for Decentralisation.......................................................... 10 2.2.3 Framework for the Assignment of Functions.................................... 11 2.2.4 The Case for Decentralisation in Practice........................................ 14 2.2.5 Risks of Decentralisation ................................................................. 15 2.2.6 Decentralisation in Developing Countries ........................................ 16 2.3 Participation and Efficiency – a Dual Approach of Both Concepts .......... 18 3 Analytical Framework for the Lesotho Decentralisation Process.................... 19 3.1 Methodology ........................................................................................... 20 3.2 Efficiency Indicators................................................................................ 21 3.2.1 Management of the Decentralisation Process at the Centre............ 21 3.2.2 Policy Planning and Implementation Capacity of Local Governments .......................................................................... 22 3.2.3 Fiscal Decentralisation and Administrative Efficiency ...................... 24 3.3 Participation Indicators............................................................................ 25 3.3.1 Preparedness for Participatory Local Democracy............................ 25 3.3.2 Accountability and Responsiveness of Institutions........................... 26 3.3.3 Competences of Local Governments............................................... 27 4 The Kingdom of Lesotho: The Starting Points of Decentralisation ................. 28 4.1 Country Brief........................................................................................... 28 4.1.1 Population and Economy................................................................. 29 Robert Sperfeld Decentralisation and Local Government in Lesotho iv 4.1.2 Political System................................................................................ 31 4.1.3 Overall Development Strategy and Objectives ................................ 33 4.2 Local Governance in Lesotho’s History................................................... 38 4.2.1 Local Government Legacies and Traditions..................................... 38 4.2.2 Public Service Delivery on the Local Level before the Recent Restructuring........................................................................ 39 4.3 Cornerstones of the Decentralisation Program ....................................... 41 4.3.1 Decentralisation and the Development Strategy.............................. 41 4.3.2 The Introduction of Local Government – an Overview..................... 42 5 Lesotho Decentralisation Program: Strategy and Implementation ................. 44 5.1 Efficiency Indicators................................................................................ 44 5.1.1 Management of the Decentralisation Process at the Centre............ 44 5.1.2 Policy Planning and Implementation Capacity of Local Governments .......................................................................... 49 5.1.3 Fiscal decentralisation and administrative efficiency........................ 56 5.2 Participation Indicators............................................................................ 60 5.2.1 Preparedness for Participatory Local Democracy............................ 60 5.2.2 Accountability and Responsiveness of Institutions........................... 64 5.2.3 Competences of Local Governments............................................... 69 6 Conclusion ..................................................................................................... 75 6.1 Indicator Assessment I: Efficiency .......................................................... 75 6.1.1 Summary of Findings....................................................................... 75 6.1.2 Interpretation of Findings ................................................................. 78 6.2 Indicator Assessment II: Participation ..................................................... 78 6.2.1 Summary of Findings....................................................................... 78 6.2.2 Interpretation of Findings ................................................................. 81 6.3 The Relation of Efficiency and Participation............................................ 82 6.4 Decentralisation as a Tool to Achieve Good Governance....................... 83 7 References..................................................................................................... 85 Robert Sperfeld Decentralisation and Local Government in Lesotho v Text Boxes and Tables Table 1: Overview of the Operationalisation of the Decentralisation Process ...... 20 Box 1: Lesotho at a Glance .................................................................................. 28 Box 2: Number of Registered Voters per Local Government Employee .............. 52 Box 3: DC & CC Staff – Share of Salary Grades ................................................. 52 Box 4: Districts by Numbers of Registered Voters ............................................... 57 Box 5: Average CC Size Versus Recurrent Budget Allocation ............................. 57 Box 6: Registered Voters per Community Councillor .......................................... 68 Table 2: Efficiency Indicators – Summary of Findings.......................................... 75 Table 3: Participation Indicators – Summary of Findings ..................................... 79 List of Appendixes Appendix 1: Local Governance Institutions ………………………………………….A1 Appendix 2: Local Government Staff …………………………………………………A2 Appendix 3: Local Government Efficiency …………………………………………A3 Appendix 4: Lesotho Map ……………………………………………………………..A4 Appendix 5: Study Visit Lesotho ……………………………………………………...A5 Robert Sperfeld Decentralisation and Local Government in Lesotho vi List of Abbreviations BNP Basotho National Party CC Community Council CCS Community Council Secretary DA District Administrator DC District Council DCS District Council Secretary DDCC District Development Coordinating Committee DPU District Planning Unit GNI Gross National Income GoL Government of Lesotho HDI Human Development Index IEC Independent Electoral Commission LCD Lesotho Congress for Democracy LGA Local Government Act LGSC Local Government Service Commission LSL Maloti (currency; international code; rate as of 24/06/06: LSL 1 = ZAR 1 = EUR 0,11) MLG Ministry of Local Government MCC Maseru City Council MFDP Ministry of Finance and Development Planning n/a Not available PRS Poverty Reduction Strategy PSIRP Public Sector Improvement and Reform Program QSP Quick and SMART Planning Approach RC Rural Council SADC Southern African Development Community TRC Transformation Resource Centre (NGO) UC Urban Council WDI World Development Indicators Robert Sperfeld Decentralisation and Local Government in Lesotho vii Summary in German Language/ Zusammenfassung in deutscher Sprache Robert Sperfeld Dezentralisierung
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