Decentralisation and Development: the Contradictions of Local Governance in Uganda with Specific Reference to Masindi and Sembabule Districts
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DECENTRALISATION AND DEVELOPMENT: THE CONTRADICTIONS OF LOCAL GOVERNANCE IN UGANDA WITH SPECIFIC REFERENCE TO MASINDI AND SEMBABULE DISTRICTS By WASSWA HASSAN GALIWANGO Submitted in fulfillment of the requirements for the degree of DOCTOR PHILOSOPHIAE in the Faculty of Arts at the Nelson Mandela Metropolitan University January 2008 Promoter: Professor H J Nel © All rights reserved. No part of this thesis may be reproduced or transmitted, in any form or by any electronic or mechanical means, including photocopying and recording, or by any information storage and retrieval system, without written permission from the author. To my late father Hajji Muhammad Galiwango and the Public Administration profession in Uganda i ACKNOWLEDGEMENTS I am greatly indebted to Professor Heather Nel for her professional guidance, motivation and dedication in pursuing this qualification and during the writing of this thesis. Without her encouragement and assistance this work would not have been easily accomplished. I would also like in a special way to thank Dr Salie Simba Kayunga of the Department of political science, Makerere University for accepting to be my co-promoter. Dr. Simba’s continuous support and advice gave me immeasurable impetus to complete this thesis. A gesture of appreciation also goes to the Masters’ students and lecturers in the Department of Public Administration of the Islamic University in Uganda for accepting to exchange ideas with me on local governance issues. Their contribution enriched the study findings immensely. I also wish to posthumously thank my dear father Hajji Muhammad Galiwango who encouraged me to pursue the Ph.D studies although he did not live to see its fruition. I would finally like to thank my wife, children and colleagues generally whom I often denied sufficient company, love and affection during the time when I had to concentrate on the research. I am equally grateful to Madam Gloria who had to type several revisions of this thesis. Her patience and dedication are rare qualities that were central in making this work a success. Most importantly, the success of this thesis resides with the almighty God without whose intervention, guidance and grace, I would not have fulfilled this academic ambition. ii Table of Contents Acknowledgements ................................................................................................. i Table of Contents ................................................................................................ ii List of Tables ............................................................................................. viii Table of Figures ............................................................................................... ix List of Annexes .............................................................................................. xii ACRONYMS ............................................................................................. xiii SUMMARY………. ............................................................................................. xvi CHAPTER ONE: INTRODUCTION ...................................................................... 1 1.0 Background to the study ............................................................................. 1 1.1 Case study in Uganda ................................................................................. 1 1.2 Historical context of decentralisation in Uganda ........................................ 3 1.2.1 Pre-colonial era of governance in Uganda ........................................... 3 1.2.2 Colonial period of governance in Uganda ........................................... 5 1.2.3 Independence period up to 1966 .......................................................... 8 1.2.4 The era of political centralisation ...................................................... 10 1.2.5 The evolution of Education and Health services in Uganda .............. 20 1.3 Statement of the problem .......................................................................... 24 1.4 Objectives of the study ............................................................................. 25 1.5 Study hypothesis ...................................................................................... 26 1.6 Significance of the study .......................................................................... 26 1.7 Scope of the study .................................................................................... 28 1.8 Study plan ................................................................................................. 29 iii CHAPTER TWO: THEORETICAL FRAMEWORK OF DECENTRALISATION AND DEVELOPMENT ........... 31 2.0 Introduction ............................................................................................. 31 2.1 Conceptualising development and decentralisation .................................. 32 2.1.1. Development conceptualised ................................................................. 32 2.1.2. Development and growth ...................................................................... 32 2.1.3. People–centered rural development ...................................................... 36 2.1.4. Sustainable development ....................................................................... 41 2.2. Forms of decentralisation ......................................................................... 44 2.3. The relationship between decentralised governance and development .... 51 2.4 The linkage between Education, Health and development ....................... 55 2.5. Rationale for decentralisation ................................................................... 57 2.5.1. Decentralisation promotes democracy ............................................... 58 2.5.2. Decentralisation enhances efficiency and effectiveness .................... 60 2.5.3 Decentralisation enhances responsiveness ......................................... 61 2.5.4. Decentralisation and national unity ................................................... 62 2.6. Critique of the assumption that decentralisation results in development .. 64 2.6.1 Decentralisation and democracy ........................................................ 64 2.6.2 Responsiveness and resource allocation ............................................ 67 2.6.3 Disunity under decentralisation ......................................................... 67 2.6.4 Conflicts between elected and administrative officials ...................... 68 2.6.5 Decentralisation and redistributive measures .................................... 69 2.6.6 Fiscal constraints under decentralisation ........................................... 71 2.6.7 Decentralisation is not absolute ......................................................... 73 2.6.8 Decentralisation and corruption ......................................................... 77 2.6.9 Capacity of Local Government management ..................................... 79 2.6.10 Production inefficiency ...................................................................... 80 iv 2.6.11 Sensitivity to geographical differences .............................................. 80 2.7 Conclusion ................................................................................................ 81 CHAPTER THREE: INSTITUTIONAL AND LEGAL ARRANGEMENTS OF THE CURRENT DECENTRALISED LOCAL GOVERNMENT SYSTEM IN UGANDA ........................ 83 3.0 Introduction ............................................................................................. 83 3.1. Pillars of decentralisation ............................................................................ 84 3.1.1. The legal framework for decentralisation in Uganda .......................... 85 3.1.2 Political decentralisation .................................................................... 88 3.1.3 Fiscal decentralisation ....................................................................... 92 3.1.4 Administrative decentralisation and institutional arrangements ...... 102 3.2 Overview of decentralised Education and Health services delivery in Uganda ............................................................................................................. 112 3.2.1 Education sector .............................................................................. 112 3.2.2 Health sector .................................................................................... 117 3.3. Conclusion .............................................................................................. 120 CHAPTER FOUR: RESEARCH METHODOLOGY .................................... 121 4.0 Introduction ............................................................................................ 121 4.1 Research design ...................................................................................... 121 4.2 Study population .................................................................................... 124 4.3. Sample size ............................................................................................. 129 4.4 Sample selection ..................................................................................... 132 4.5 Data collection ........................................................................................ 134 4.6 Research instruments and procedures ..................................................... 135 4.6.1 Interviews ........................................................................................ 135 4.6.2. Questionnaires .................................................................................