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Explaining Imihigo Performance in Gicumbi District, Rwanda: the Role of Citizen Participation and Accountability (2009-2014)

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Explaining Imihigo Performance in Gicumbi District, Rwanda: the Role of Citizen Participation and Accountability (2009-2014) Explaining Imihigo Performance in Gicumbi District, Rwanda: The role of Citizen Participation and Accountability (2009-2014) A Research Paper presented by: Innocent NDAHIRO (RWANDA) in partial fulfilment of the requirements for obtaining the degree of MASTER OF ARTS IN DEVELOPMENT STUDIES Major: Governance, Policy and Political Economy GPPE Specialization: Public Policy and Management Members of the Examining Committee: Supervisor : Dr Helen Hintjens Second reader : Dr Joop de Wit The Hague, The Netherland, December, 2015 Disclaimer: This document represents part of the author’s study programme while at the Institute of Social Studies. The views stated therein are those of the author and not necessarily those of the Insti- tute. Inquiries: Postal Address: Institute of Social Studies P.O. Box 29776 2502 LT The Hague The Netherlands Location: Kortenaerkade 12 2518 AX The Hague The Netherlands Telephone: + 31704260460 Fax: + 31704260799 i Acknowledgements My sincere and deepest gratefulness go to my supervisor Dr. Helen Hintjens and my second reader Dr. Joop de Wit, for their intellectual advice, guidance, encouragement and regular dis- cussions which were very valuable and inspiring in the process of research writing, research un- dertaking and field working. I thank the Government of Rwanda, Ministry of Local Government for supporting me during the period of my master’s programme in the Netherlands. I acknowl- edge NUFFIC for funding this study and for the scholarship for my studies at ISS. My sincere thanks go to the staff of International Institute of Social Studies of the Erasmus University of Rotterdam, GPPE students for all the support during my study period at the ISS. I am indebted to thank administrative staff and citizens of Gicumbi District (Shangasha and Byumba Sectors) for their support during field study. Without their acceptance and eagerness to share their time, primary data collection would not have been possible. I honestly thank them whole for provid- ing the information and truthfully answering my questions. I would like to express my gratitude to my loving wife Claudine Umuteteri and two children Shema Ndahiro Bertin l’Ainé and Ikundwe Ndahiro Bertine for their patience away from home during my studies in the Nether- lands. Finally, I would like to express my thanks to my family and all my friends involved in my research. May God Bless You All. ii Table of Contents List of Tables ................................................................................................................................................... v List of Figures .................................................................................................................................................. v List of Maps .................................................................................................................................................... v List of Acronyms ............................................................................................................................................. vi Abstract ......................................................................................................................................................... vii Chapter 1 Introduction ......................................................................................................... 1 1.1 Background of Imihigo contracts in Rwanda ...................................................................... 1 1.2 The Research Problem ..................................................................................................... 2 1.3 Presentation of Gicumbi District ...................................................................................... 3 1.4 Research Objectives and Questions .................................................................................. 4 1.5 Research Methodology ..................................................................................................... 5 1.5.1 Selection of the Case Study ............................................................................................... 5 1.5.2 Selection of the Respondents ............................................................................................. 6 1.5.3 Primary Data ............................................................................................................... 6 1.5.4 Secondary Data ............................................................................................................. 6 1.6 Risks & Ethical challenges ................................................................................................ 7 1.7 Structure of the Paper ....................................................................................................... 7 Chapter 2 Conceptual and Theoretical Frameworks .......................................................... 8 2.1 The Performance Management Approach ........................................................................ 8 2.2 Performance Contracts as measure of capacity ................................................................. 9 2.3 Citizen Participation ....................................................................................................... 10 2.4 Constraints to Participation ............................................................................................ 12 2.5 The Concept of Accountability ....................................................................................... 12 2.6 Frameworks linking Citizen Participation and Official Accountability ............................ 14 Conclusion ........................................................................................................................... 15 Chapter 3 Contextualizing Imihigo Process in Gicumbi District ..................................... 16 3.1 Imihigo Process in Rwanda ............................................................................................ 16 3.1.1 Imihigo Preparation...................................................................................................... 16 3.1.2 Imihigo Performance Indicators ....................................................................................... 18 3.1.3 Implementation of Imihigo ............................................................................................. 19 3.1.4 Imihigo Monitoring and Evaluation ................................................................................ 19 3.1.5 Imihigo Scoring and Grading System ............................................................................... 20 3.2 Main features of official evaluation and ranking of the process of .................................. 23 Imihigo implementation in Gicumbi District .......................................................................... 23 3.2.1 Imihigo Implementation in Gicumbi District ..................................................................... 23 3.2.2 District Evaluation Process of the Implementation of Imihigo ................................................ 26 3.2.3 National Ranking of Imihigo Achievement ....................................................................... 26 Conclusion ........................................................................................................................... 26 Chapter 4 Explanation of the dramatic variations in Imihigo Performance in Gicumbi District during the period 2009-2014 ................................................................................. 27 4.1 Factors explaining the differences in Imihigo Performance in Gicumbi District ............... 27 4.1.1 Factors behind Imihigo participatory planning .................................................................... 27 4.1.2 Factors behind confusing citizen participation ..................................................................... 28 4.1.3 Factors behind poor monitoring exercise ............................................................................ 29 4.1.4 Factors behind non-accountable authorities ........................................................................ 30 4.1.5 Other factors behind the dramatic variations in Imihigo performance ....................................... 31 iii 4.2 Role of Citizen Participation and Accountability in the performance differences ............ 31 4.2.1 Role of Citizen Participation .......................................................................................... 31 4.2.2 Role of Accountability of officials..................................................................................... 33 Conclusion ........................................................................................................................... 34 Chapter 5 Citizen Participation and Official Accountability in relation to Imihigo Performance inconsistencies in Gicumbi District ............................................................ 35 5.1 Levels and effects of Citizen Participation in Gicumbi Imihigo process ............................ 35 5.2 Forms and influences of Official Accountability in Gicumbi Imihigo process ................... 36 5.3 Analysis of Performance Management Approach with the empirical findings ................. 37 Chapter 6 Conclusions and Policy Recommendations ..................................................... 38 References.......................................................................................................................... 40 Appendices .......................................................................................................................
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