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Democracy at the Local Level in East and Southern Africa: Profiles in Governance

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Democracy at the Local Level in East and Southern Africa: Profiles in Governance Democracy at the Local Level in East and Southern Africa: Profiles in Governance © International Institute for Democracy and Electoral Assistance (International IDEA) 2004 All rights reserved. This is an International IDEA publication. International IDEA’s publications are independent of specific national or political interests. Views expressed in this publication do not necessarily represent the views of International IDEA, its Board or its Council members. Applications for permission to reproduce all or any part of this publication should be made to: publications Office International IDEA 103 34 Stockholm Sweden International IDEA encourages dissemination of its work and will respond promptly to requests for permission for reproduction or translation. This Report was developed as part of a project on Democracy at the Local Level in East and Southern Africa, implemented by the IULA AS International Union of International Institute for Democracy and Electoral Assistance (IDEA) in Local Authorities (Africa partnership with the African Union of Local Authorities (AULA). Section) ISBN 91-85391-23-9 Democracy at the Local Level in East and Southern Africa: Profiles in Governance Contents Introduction Executive Summary City-Level Democracy in 21st Century Africa Essay Timothy D. Sisk, University of Denver and Senior Policy Advisor, IDEA Profiles in Governance: City-Level Democracy Assessments Reports Local Democracy in Gaborone City, Botswana A Report by the Botswana Association of Local Authorities Zibani Maundeni, University of Botswana Local Democracy in Lusaka, Zambia Maurice Mbolela, Peter K. Lolojih, Francis Muwowo, Alexander Chileshe, Stanford Musichili Local Democracy in Mwanza, Tanzania A Report by the Association of Local Authorities of Tanzania Local Democracy in Nairobi, Kenya Winnie V. Mitullah, Hamisi Omari Mboga, Rahab Mundara, Edward Cherono, Augustine Odipo, Elijah Agevi, J.P. Mbugua Resource Local Democracy Assessement Guide Report Governing Southern Africa’s Cities Report of the 2002 AULA–IDEA Project on Mayors and Local Democracy Introduction The International Institute for Democracy and tion devoted to the promotion of democracy Electoral Assistance (IDEA) is pleased to release worldwide-published a wide-ranging re p o r t this detailed Report containing some of the entitled Democracy at the Local Level: The findings and recommendations that emerged In t e rna tional IDEA Handbook on Re p re s e n- from comprehensive evaluations of democracy tation, Participation, Conflict Management, and at the local level in four cities in East and Governance. In August 2002, IDEA teamed up Southern Africa. IDEA, in partnership with the with the AULA to host a meeting of some 22 African Union of Local Authorities (AULA), mayors from Southern Africa as part of its strat- supported the evaluations in order to pilot a egy to disseminate the findings of the local democracy assessment instrument, which Handbook. is the product of a two-year collaborative proj- ect on ways to strengthen governance in the The participants made it clear that a compre- region. The approach is one of self-evaluation; hensive tool to evaluate the quality of local the objective being to determine the strengths democracy would help them and others to think and weaknesses of democracy in a given setting. systematically about the relationship between critical governance challenges and the making Democracy at the local level-the tier of gover- and implementation of policy. They pointed nance to which citizens turn to meet their out that a close examination of local elections, immediate needs-is a critical but underappreci- city council operations, mechanisms to ensure ated factor in the world’s new democracies. inclusion and accountability, and efforts to Since the mid-1970s, the number of democra- stimulate direct citizen participation would cies worldwide has doubled, yet insufficient reveal gaps and highlight ways to consolidate attention has been paid to the particular chal- local democracy at the city level. This realization lenges of facilitating meaningful local elections, is similar to that which led IDEA to produce a appraising the performance of local authorities, national-level assessment guide, which has been such as city councils and mayoral offices, and the basis of studies of a number of countries, understanding the ways in which direct citizen such as Burkina Faso, Indonesia, Nigeria and participation is essential to the creation and Romania. maintenance of a high-quality, sustainable dem- ocratic political system. Local democracy is In 2002 and 2003, IDEA and the AULA sought often an afterthought. to identify cities in East and Southern Africa that best represented some of the major local- The incomplete nature of many democratic level governance challenges in the region. For transitions in recent years, combined with the various reasons, four cities emerged as the most concern that democratic systems are not deliv- suitable locations to pilot the local democracy ering socio-economic development efficiently assessment instrument: Ga b o rone City, and quickly, has led to a renewed sense of Botswana; Lusaka, Zambia; Mwanza, Tanzania; urgency to comprehend better how democracy and Nairobi, Kenya. IDEA and the AULA at the local level contributes to improvements in looked for some variation in the size of the city governance. and the national context, as well as for gover- nance challenges of different types. In 2001, IDEA-an intergovernmental organiza- 5 DEMOCRACY AT THE LOCAL LEVEL IN EAST AND SOUTHERN AFRICA: PROF ILES IN GOVERNANCE Teams in the four cities were selected by nation- opment, to identify institutional changes and al associations of local municipalities. Each process options to make democracy more mean- team consisted of a representative of the nation- ingful and effective, and to share lessons learned al association, a member of the local authority among themselves on how to improve citizens’ (a council official or mayor), an academic with lives through effective decision-making and effi- expertise in public administration, and an indi- cient service delivery. vidual from civil society. The teams and other specialists were brought together for two work- We hope that the findings and recommenda- shops-in Pretoria, South Africa, in 2002, and in tions presented here will emphasize the value of Cape Town, South Africa, in 2003-to develop a comprehensive approach to the evaluation of the approach to be used in conducting the governance and the quality of democracy-from research and preparing the assessments. analysis can come solutions. At the same time, the findings and recommendations point to In late 2003 and early 2004, the teams pored steps that can be taken in future to improve the through relevant documents, convened meet- institutional design of local-level democracy ings and workshops, conducted interviews, dis- and to promote those participation processes cussed issues among themselves, and developed that forge closer ties between those elected to collaboratively comprehensive reports contain- govern and the people for whom governance is ing numerous recommendations to improve supposed to result in a better quality of life. local democracy. IDEA and the AULA are very pleased with the quality of the assessments. This Policy Summary details just some of the most important findings and suggestions that emerged from the self-eval- uation exercise; full versions of the reports, together with the IDEA local democracy assess- ment guide and other background materials, are available in their entirety on the accompanying ABDALLA HAMDOK CD-ROM. HEAD OF AFRICA PROGRAMME INTERNATIONAL IDEA The assessments, as well as the introductory essay and the summary of integrative findings, show that these fast-growing, influential cities face serious development challenges at the beginning of the 21st century. Remarkably, however, all of them have a good track record of electing representatives, have functioning and generally effective city councils, and have adopt- ed innovative approaches to enhance the level of citizen participation in their communities. Already in some countries, such as Botswana, those responsible for improving governance have seen fit to conduct assessments in other cities in a bid to encourage dialogue on ways to improve governance in order to promote devel- 6 DEMOCRACY AT THE LOCAL LEVEL IN EAST AND SOUTHERN AFRICA: PROF ILES IN GOVERNANCE Executive Summary This detailed report presents some of the find- This Report offers a review of the ings and recommendations of four comprehen- cross-cutting themes reflected in the findings sive assessments of local democracy in four cities and recommendations of the four assessments. in East and Southern Africa-Gaborone City, Botswana; Lusaka, Zambia; Mwanza, Tanzania; Governance challenges and Nairobi, Kenya-conducted in late 2003 and early 2004. The evaluations were carried out by • Africa’s cities are growing rapidly and will teams of specialists from each of the four cities; continue to attract a greater share of the pop- the teams consisted of a representative of the ulation in coming years. The rate of urban- national association of local municipalities, a ization in Africa is higher than that in any member of the local authority, an academic with major region of the world. Some of the cities expertise in public administration, and an indi- in this survey have grown at a rate of 11-15 vidual from civil society. per annum in recent years, resulting in seri- ous shortages of land, water, sanitation, and The teams utilized a local democracy assessment essential services. By 2025, it is likely that i n s t rument developed by the In t e r n a t i o n a l more than one-half of Africa’s population will Institute for Democracy and Election Assistance reside in sprawling city settings. Today, more (IDEA) and the African Union of Local than 71 per cent of Africa’s urban dwellers live Authorities (AULA). The purpose of the exer- in slum-like conditions. cise was to catalogue systematically the quality • The swift growth of cities in Africa presents of representative (elections, political parties and opportunities as well as challenges.
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