Unblocking Results: A case study of Norwegian Church Aid (NCA)
Accountability in Tanzania Programme
Unblocking Results: A case study of Norwegian Church Aid (NCA)
Francis Omondi | May 2014
i Unblocking Results: A case study of Norwegian Church Aid (NCA)
ii Unblocking Results: A case study of Norwegian Church Aid (NCA) Acknowledgements
A number of people contributed to the success of this research. The valuable technical support from the AcT team (Kate Dyer, Rehema Tukai and Amani Manyelezi) at the initial and subsequent stages of the process contributed towards shaping the outcome of this report. Despite their busy schedule NCA staff members under the leadership of Trine Hveem are acknowledged for participating in the preliminary discussions that helped focus the study. More specifically we thank Augustina Mosha, Francis Uhadi and Sarah Shija.
Sincere appreciation goes towards CCT General Secretary Rev Dr L Mtaita for his warm reception and leadership. The services offered by Glory Baltazary in facilitating the field exercise and Simon Meigaro for providing relevant literature from CCT are well noted. We would also like to thank the PETS and VICOBA members that participated in the study from Kilosa and Bahi Districts. Their valuable insights in the form of their responses to the study issues are well appreciated. Government officials including Ward Executive Officers, Village Executive Officers as well as Councillors and Village Chairpersons in the wards and villages also deserve mention. Julia Tobias edited the draft report.
The financial support from UK Department for International Development that facilitated this study is well appreciated.
The author takes responsibility for any errors and omissions that may occur in this report.
i Unblocking Results: A case study of Norwegian Church Aid (NCA)
Contents Acknowledgements...... i Abbreviations...... iii Executive Summary...... 2 1. Introduction...... 4 1.1 Background on NCA...... 4 1.2 Background on AcT...... 5 2. The Political Context...... 6 2.1 The Political landscape and role of FBOs in governance...... 6 2.2 Governance Constraints...... 7 2.2.1 Policy and institutional incoherence...... 8 2.2.2 Poor top down and bottom up accountability mechanism...... 8 2.2.3 Potential for local problem solving through collective action...... 9 3 Intervention Design...... 10 3.1 Theory of change and Activities...... 10 3.2 How the engagement worked...... 11 3.2.1 Building and sustaining case for revenue loss and capital flight...... 11 3.2.2 Policy dialogues to strengthen top-down and bottom up accountability mechanisms...... 13 3.2.3 Creating platforms for local collective problem solving...... 13 3.3 The implementation approach and enabling factors...... 14 4. Challenges...... 17 5. Lessons learned and Conclusions...... 18 Works Cited...... 19 Annex 1: Features of AcT’s model...... 20 Annex 2: Unblocking results methodology...... 21
Table 1: Identified blockages in NCA intervention framework...... 7 Table 2: Enabling factors that supported NCA’s interventions...... 15
Box 1: Overview of CCT...... 11 Box 2: President’s Commitment to realising Child Rights...... 12 Picture 1: New village office, Zombo village Kilosa...... 16
ii Unblocking Results: A case study of Norwegian Church Aid (NCA)
Abbreviations
AcT : Accountability in Tanzania Programme BAKWATA : Baraza Kuu la Waislamu Tanzania CAG : Controller and Auditor General CCM : Chama Cha Mapinduzi (Ruling Party) CCT : Christian Council of Tanzania CRC : Constitution Review Commission CSOs : Civil Society Organisations DFID : Department for International Development ELCT : Evangelical Lutheran Church in Tanzania FBOs : Faith Based Organisation GNRC : Global Network for Religion and Children IRCPT : Inter Religious Council for Peace Tanzania MSTCDC : Danish Training Centre for Development Cooperation NCA : Norwegian Church Aid ODI : Overseas Development Institute PCCA : Prevention and Combating of Corruption Act PCCB : Prevention and Combating of Corruption Bureau PETS : Public Expenditure Tracking System TEC : Tanzania Episcopal Conference TRA : Tanzania Revenue Authority UK : United Kingdom URT : United Republic of Tanzania VEO : Village Executive Officer VICOBA : Village Community Bank WEO : Ward Executive Officer
1 Unblocking Results: A case study of Norwegian Church Aid (NCA)
Executive Summary
This study is part of the AcT Learning Strategy engagement in demanding accountability has papers aimed at sharing experiences on how been the nexus of NCA’s work. This forms the the Norwegian Church Aid (NCA), a partner centre of the organization’s theory of change organisation with Accountability Programme which seeks to build the capacity of FBOs, in Tanzania (AcT) has navigated through the religious leaders and citizens to demand for governance constraints advanced by the Overseas accountability. AcT seeks to contribute to the Development Institute (ODI) Unblocking achievement of the Millennium Development Results series. The first paper in this series Goals (MDGs) by ensuring that Tanzanians are involved a case study with Hakikazi Catalyst, increasingly able to claim and exercise their rights another AcT partner organisation. The study as citizens. AcT operates through the provision also contributes to a shared learning objective of funding to Civil Society Organisations between ODI and AcT under which the two (CSOs) that have the capacity and potential organisations seek to show case how aid can to innovate, scale-up and implement activities be programmed to improve service delivery by which increase the accountability of government addressing governance constraints. Through the around key national development priorities. In Unblocking results series ODI and AcT have addition to funding AcT also provides a window also jointly conducted two sister case studies with for capacity building, mentoring, technical Tandabui Health Access Tanzania (THAT) and advisory support to CSOs and learning as well HelpAge International in Tanzania. as research.
The research project seeks to gather evidence on Findings indicate that NCA and its FBO partners whether, and how well, aid can help to resolve or embarked on a national level advocacy efforts to mitigate governance problems that often hinder curb revenue loss and capital flight as a result the delivery of broad-based public services in of tax evasion and tax incentives. Through the developing countries. This case study is based Interfaith Standing Committee on Economic on a desk review of relevant literature combined Justice and the Integrity of Creation, which is with a five-day (10-15 March 2014) period of comprised of religious leaders from Tanzania fieldwork involving interviews in Kilosa and Episcopal Conference (TEC), National Bahi districts. Persons involved in the study Muslim Council of Tanzania (BAKWATA) included government officials (Ward Executive and Christian Council of Tanzania (CCT) two Officers, Village Executive Officers), village major studies were commissioned by December chairpersons, area councillors and members of 2012. The first study titled ‘The One Billion Public Expenditure Tracking System (PETS) Dollar Question: How can Tanzania stop losing committees. An interview with Christian so much tax revenue?’ was launched just in time Council of Tanzania (CCT) General Secretary for budget session with 1000 copies produced. was also conducted. The report analyses Tanzania’s tax policies and how much revenue the country was losing The NCA is a Norwegian non-governmental through tax evasions, capital flight and tax and development organization that works to incentives. The other study commissioned by promote Social justice, Human Rights and the religious leaders was a scoping research on Economic justice for poor communities in more Uranium Mining Operations in Tanzania. This than seventy Countries worldwide including report interrogated the magnitude of Uranium Tanzania. The organisation’s mission is to see operations in Tanzania and its potential impact Faith Based Organisations (FBOs) and religious on communities living around the Uranium leaders mobilized and jointly bringing positive mining areas. Both studies acted as a platform change to lives of ordinary citizens and local through which NCA and its partners launched communities in Tanzania. Strengthening citizen’s advocacy initiatives with relevant government
2 Unblocking Results: A case study of Norwegian Church Aid (NCA)
departments. The government has so far reacted Christians and Muslims in Mwandiga following positively by instituting relevant measures to one Christian man who had burned Islamic address issues raised by the two studies. training book (juz’u) which contains Qur’ān verses. Through their various platforms religious leaders have engaged with the national government on In demonstrating these achievements NCA and governance and accountability issues from time to her partners have been enabled by the unblocking time in a non confrontational way. The Tanzania results factors. These factors include ability to Ecumenical Dialogue organized a meeting of build on existing policies and legal frameworks 66 Bishops to discuss FBO’s participation into as was the case with commissioning research to the current constitutional review process. The assess tax evasions, capital flight and the benefits nomination and eventual appointment of Ms of tax incentives. The Constitutional Review Jesca Mkuchu to be a commissioner of the CRC process was a window of opportunity utilised by was a key outcome of this meeting. In addition NCA and its partners to influence governance religious leaders have played a significant in Tanzania. NCA and its partners have role in defusing tensions between the central demonstrated their ability to facilitate meetings government and its citizens. These efforts have between the government and community. This been personally acknowledged by the President was exemplified by the creation of effective and Prime Minister in separate forums. platforms for dialogues. Lastly another enabling factor has been the learning and adaptive At the local level NCA and its religious partners approach to programming facilitated by NCA have facilitated the formation of PETS and and AcT as partners. The flexibility in funding inter-religious committees. These committees and reporting has particularly been instrumental are instrumental structures in following up in cultivating this culture. accountability in the use of public resources, peace building and conflict resolution. Despite Despite the relatively impressive performance, hiccups here and there in the activities of PETS a number of challenges bemoan NCA and its committees a number of significant changes partners’ pace of progress. The uncooperative have occurred whereby action has been taken nature of some local leaders to support good to address misuse of public funds by certain governance and accountability has hampered local leaders. Inter-religious committees have local efforts by PETS committees. Inadequate also demonstrated some tangible results as resources to reach wider coverage have also been exemplified by women in Kigoma who managed impediments to accountability. to intervene and settle the conflict between
3 Unblocking Results: A case study of Norwegian Church Aid (NCA)
Introduction
This study builds on the AcT Learning Strategy governance problems. Existing studies tend papers aimed at sharing experiences on how to focus on the impact of specific types of the Norwegian Church Aid (NCA) a partner accountability structures on service delivery, organisation with AcT has navigated through rather than the design and delivery features the governance constraints as advanced by of aid programmes necessary to address such the Overseas Development Institute (ODI) constraints. This research project begins to Unblocking Results series. The first paper in address this gap in literature by studying this series involved a case study with Haki Kazi the interaction between constraints and aid Catalyst another AcT partner organisation. packages in Tanzania. Like the other case The study also contributes to a shared learning studies this research is exploratory and the objective between ODI and AcT of which the findings should be treated as preliminary. The two organisations seek to show case how aid can study does not aim to evaluate the programmes be programmed to improve service delivery by against their stated objectives, nor measure addressing governance constraints. Through the their impact. Rather, it examines the types of Unblocking results series ODI and AcT jointly aid-funded activities that seem most relevant conducted two sister case studies with Tandabui to addressing governance constraints, making Health Access Tanzania (THAT) and HelpAge some speculative conclusions about their ability International in Tanzania. to do so as well as about the elements of the design and implementation approach that have Similar to the previous case study, the facilitated the execution of these activities. Unblocking Results methodology was employed by the study (Tilley 2014). This approach The Norwegian Church Aid (NCA), a partner has been extensively utilised by ODI research organization of AcT, was selected for the project on aid and governance constraints. The AcT Learning study initiative due to their research project seeks to gather evidence on innovative approaches and successes creating whether, and how well, aid can help to resolve or platforms for non confrontational dialogue mitigate governance problems that often hinder with relevant government departments and the the delivery of broad-based public services in local interface between FBOs, religious leaders developing countries. Some studies1 have shown and the community in addressing common that weak governance and incentive problems governance constraints. A separate but linked continue to hinder the delivery of broad case study focuses on another of AcT’s partner based public services especially in developing organizations, Haki Kazi Catalyst. countries. More recently research has been conducted to understand the nature of these The section that follows provides some brief governance problems. For example ODI research background information on both NCA and the categorizes typical constraints and incentive AcT programme. problems to service delivery, and shows that a number of common constraints underlie much 1.1 Background on NCA of the variation in service delivery performance in developing countries (Tavakoli, et al. 2013). The NCA is a Norwegian non-governmental This study aims to build on this evidence base. and development organization that works to promote Social justice, Human Rights and Through its research ODI argues that little Economic justice for poor communities in evidence exists to show case whether, and how more than seventy communities worldwide. In well, aid can help to resolve or mitigate these Tanzania, NCA works with poor Communities in partnership with Faith Based Organisations 1 Keefer and Khemani, 2003; World Bank 2004; and Collier 2007 (as referenced by Tobias and Omondi 2014) 4 Unblocking Results: A case study of Norwegian Church Aid (NCA)
(FBOs) and religious leaders in 41 districts (including health, agriculture, natural resources of mainland Tanzania, including Zanzibar. and more recently climate change) but is united The organisation’s mission is to see FBOs and by a shared focus on strengthening accountability religious leaders mobilized and jointly bringing in Tanzania. AcT’s approach recognizes that it positive change to lives of ordinary citizens and would not make sense to advocate a single theory local communities in Tanzania (Norwegian or model for strengthening civil society, given Church Aid 2012). the diversity inherent in the goals of its partners. Thus, one of the defining characteristics of the Working with large FBOs like Christian Council model is the provision of funding to support the of Tanzania (CCT), the Evangelical Lutheran strategic goals of its partners (budget support) Church of Tanzania (ELCT), the Tanzania rather than specific project-based funding. The Episcopal Conference (TEC) and the National model also recognizes the capacity limitations Muslim Council of Tanzania (BAKWATA), of some of its partner organizations and NCA carries out varied activities to achieve particularly the constraints they face within the its mission. This study focuses on two streams governance environment that they operate. A of work that include national advocacy efforts flexible, tailored approach to working with its to streamline Tanzania’s revenue collection in grantees (referred to as ‘partner organizations’) the extractive sector and local level initiatives is a central component of AcT’s strategy for to support communities to solve governance confronting these realities. Another notable problems. In its current Strategic Plan that feature of AcT’s model, which is critically runs 2011/15 NCA forecasts a total budget of examined in this report, is the use of outcome Tsh.23,000,000,000 of which AcT contributes mapping tools to evaluate the achievements of 26.5 percent over a period of 4.years. its partner organizations, rather than standard logical frameworks. More details on AcT are 1.2 Background on AcT provided in Annex 1. The Accountability in Tanzania Programme Applying the Unblocking Results methodology, (AcT) seeks to contribute to the achievement of the Millennium Development Goals by which is summarized in Annex 2, this case study ensuring that Tanzanians are increasingly able to is based on a desk review of relevant literature claim and exercise their rights as citizens. AcT combined with a five-day (10-15 March 2014) acknowledges that a strengthened civil society period of fieldwork involving interviews in can act as a vehicle to achieve this goal. In this Kilosa and Bahi districts. In Kilosa interviews regard AcT operates through the provision of and focus groups discussions were conducted funding to Civil Society Organisations (CSOs) with government officials (Ward Executive that have the capacity and potential to innovate, Officers, Village Executive Officers), village scale-up and implement activities which increase chairpersons, and area councillors, members the accountability of government around key national development priorities. In addition of PETS committee in Zombo and Magole to funding, AcT also provides a window for villages. In Bahi the team conducted focus group capacity building, mentoring, technical advisory discussions with PETS committee members and support to CSOs and learning as well as research interviews with WEOs, VEOs and councillors (Accountability in Tanzania Programme 2013). for Gairo, Mtitaa, and Mazizi and Mpamantwa areas. An interview was also conducted with the With a portfolio of GBP 31 million over the CCT General Secretary. period 2009-2015, AcT has funded 27 CSOs, whose work cuts across a diverse range of sectors
5 Unblocking Results: A case study of Norwegian Church Aid (NCA)
2. The Political Context
This section covers broader issues affecting the Review Process3. The Review is to be finalized political environment in Tanzania with special in 2014 ahead of the general elections scheduled focus on governance constraints in which NCA for 2015 (Christian Council of Tanzania 2014). and its FBO partners operate. The Christian Council of Tanzania acknowledges 2.1 The Political landscape and role that the current Constitution upholds the rule of FBOs in governance of law, justice and protection of human rights, electoral democracy, and devolution of power to Tanzania has high levels of religious and ethnic local authorities and assurance of accountability, diversity, as well as generally high levels of transparency, and integrity in the management political stability and national unity. Tanzania’s of public affairs. In light of that, the constitution political landscape is dominated by CCM allows for debates in the public sphere through (Chama cha Mapinduzi) party, which has various platforms. However, the ability to do ruled the country since independence from so is often hindered by absence of legal literacy British colonial rule in 1961. While multi- among the rural populace (Christian Council of party elections were introduced in 19922 and Tanzania 2014). opposition parties have captured some seats in Parliament, CCM has maintained control A number of studies have been carried out to as the ruling party throughout this period. measure citizens’ perceptions of corruption in Historically, CCM has maintained its power Tanzania. For example in 2010 Transparency and legitimacy largely based on its ability to International conducted an East African provide public goods with mass appeal and to Bribery index that revealed worrying results for give its representatives access to resources that Tanzania. 85 percent of respondents claimed that can be channelled to citizens through the local Tanzania was between corrupt and extremely government (Tobias and Omondi 2014). corrupt. When asked if the corruption levels had changed since the previous year 72 percent In the recent past the ruling party and opposition of the respondents stated that corruption levels parties have been protracted in locally motivated had either increased or remained unchanged. conflicts and tensions. This has prompted the 60 percent of the respondents painted a gloomy use of police force to suppress opposition parties’ picture on the projected level of corruption in activities resulting into riots and a number of the next one year by stating that corruption deaths. Increasing religious intolerance in the levels in the country will either raise or remain last five years is another staggering problem that unchanged. According to 40 percent of the has resulted into burning of churches, killing respondents the government was not committed of religious leaders and social insecurity in the to fight corruption (Norwegian Church Aid country. As noted by CCT, rampant corruption, 2012) especially around public contracts and mismanagement of public resources has arguably 3 However while commenting on the ongoing Con- led to poor social service delivery. Incidences of stitution Review process CCT observes that “... the special parliament for Constitution review has human rights violation such as kidnapping and been interrupted by the ruling party CCM which torture are also on the rise. These issues have has begun challenging citizens’ ideas on the con- been raised in the public debates that are further stitution ( which were collected by the special commission chaired by Retired Judge Warioba). facilitated by the on-going Constitutional This has resulted to misunderstanding hence for- mation of two opposing parties within the special parliament for Constitution, one side for CCM This stemmed from recommendations by Judge 2 and the other side for UKAWA (Umoja wa Katiba Francis Nyalali led commission for a multi party ya Wananchi) means “The Unity Constitution for system. This was followed by the enactment of the the Citizens”. Political Parties Act 1992.
6 Unblocking Results: A case study of Norwegian Church Aid (NCA)
It has been argued that in the recent past engage in governance and accountability issues participation in governance and accountability since they command trust at local, national and issues has been a preserve of mainstream civil even international levels. As advanced in this societies and political leaders. Faith Based paper NCA and its partners have adopted a non Organisations (FBOs) including NCA have confrontational approach of engaging with the been somewhat marginalised in this role. central government when pressing for policy Authors such as Nordstokke have argued that change. , probably this could have been due to FBOs being perceived as propagating a certain The Unblocking Results research methodology religious faith that marks their value system and has identified a set of potential constraints to practices (Nordstokke Undated). To justify FBO effective governance that are common to many participation in development work and moreso country and project contexts (Tilley 2014). governance and accountability the author states The constraints are: the degree of policy and the following about FBOs: “...Their advantage institutional coherence, the extent of top- is therefore both the ability to motivate and down performance disciplines or bottom-up mobilize people for action at the grassroots level, accountability mechanisms, and the enabling and to be engaged in advocacy at national and environment for locally anchored problem- international levels. They often enjoy confidence solving and collective action. Previous work on and moral authority both among the poorest, the Unblocking Results initiatives has found that but also with political leaders”. Rick James in his these governance constraints are a common and paper titled ‘What is distinctive about FBOs?’ important factor in explaining service delivery acknowledges that “FBOs may be distinctive in performance in developing countries. The section their ability to bridge legitimacy at grassroots below reviews these governance constraints and level with global reach and influence” ( James their cross-cutting nature, and illustrates how 2009). The arguments propagated by these two they shape the broad governance environment researchers justify the need for FBOs to actively in which NCA and AcT’s programmes operate.
2.2 Governance Constraints
Table 1 summarises the governance constraints identified in the NCA intervention framework. Table 1: Identified blockages in NCA intervention framework Area of blockage Example of constraint Policy and institutional • Inadequate capacity of state officers and institutions to fight incoherence corruption • Poor quality of public governance leading to poor delivery of social services Top down and bottom up • Weak top-down supervisory role due to entrenched impunity accountability mechanisms • Inability of FBOs, religious leaders and community to exercise bottom-up pressure due to lack of awareness on legal and policy framework on anti-corruption • Common practice and inheritance from colonial system on the common rule of top-Down Potential for local problem • Inadequate structures and institutions for FBOs, religious solving through collective action leaders and communities to demand for good governance and delivery of social services • Inadequate capacity of FBOs and religious leaders to demand for action • Lack of clear linkage between FBOs, Religious leaders and the community on Advocacy issues
7 Unblocking Results: A case study of Norwegian Church Aid (NCA) managed by Agenda Participation 2000, a 2.2.1 Policy and institutional incoherence Tanzanian Non Governmental organisation working to promote a culture of good governance The United Republic of Tanzania (URT) had and democracy, only 21 percent of the reported endeavoured to create a country free of corruption cases were investigated. Armed with statistics in its various forms (e.g. bribery, embezzlement) from PCCB headquarters the organisation through the National Leadership Code of Ethics claims that in 2008 only 938 cases out of 6,137 of the Arusha Declaration. Adherence to this reported cases of corruption were investigated. code of ethics began proving a challenge way Of the investigated cases only 147 were taken to back in 1980, 20 years after the country gained court (Norwegian Church Aid 2012). independence as captured in the NCA project application “...way back in 2001 it was reported The extent and depth of corruption in Tanzania that the start of the worst phase of corruption has affected the quality and level of public in Tanzania was traced back by the World service delivery. For example, available Public Bank to about 1980” (Norwegian Church Aid Expenditure Reports indicate that substantive 2012). Successive governments begining with resources allocated for key social service delivery that of President Benjamin W. Mkapa (1995- were being lost to corruption and misuse 2005) and now President Jakaya M Kikwete (Norwegian Church Aid 2012). In addition, (2005-present) have tried unsuccessively to fight as reported in the corruption tracker system this menace. For example during the leadership the Controller and Auditor General’s (CAG) of President Mkapa, the government adopted reports indicate that over 33 percent of the a National Anti-Corruption Strategy and national budget was lost to corruption with an Action Plan 1999 whose effectiveness remained estimated Tsh 1.7 trillion having been misused questionable. An independent assessment by a or not properly accounted for in 2008/09 alone. World Bank team in the country pointed out It is further argued that the funds lost could have that “corrupt elements exploited and maintained been used to cover the 2008/09 Education and poverty at the national level”. When his turn Infrastructure budget of Tsh 1.03Bn and Tsh came President Kikwete renewed the country’s 777Bn respectively in order to further improve commitment to fight corruption. Diplomats the delivery of these services. have continued to complain that the levels of corruption have continued to rise unabbatted 2.2.2 Poor top down and bottom up (Norwegian Church Aid 2012). accountability mechanism
Efforts by bodies charged with fighting Poor top down accountability has been corruption such as the Prevention and hampered by the central government’s inability Combating of Corruption Bureau (PCCB) to stamp out corruption. While significant have not been satisfactory as stated by NCA attempts have been made by the government in its project application “...government’s to fight corruption, a gap still exists that NCA efforts have been too mechanical and and its partners can complement these efforts. focusing on fighting (combating) corruption Having joined the call for good governance rather than addressing the root causes of and accountability rather recently, NCA and corruption”. According to the PCCB website its partners need to strengthen the capacities out of 49,853 allegations received since 2005, of their actors who in this case are religious administrative action had been taken against leaders, FBOs and communities to effectively 816 public servants only. The number of cases call the national and local governments to filed in courts since the PCCA Act 2007 account. Capacity building in this sense means was only 1557 with 378 convictions against creating structures and platforms through which offenders. The bureau continues to state that to engage in governance and accountability Tsh 47,686,737,345 had been recovered to date. issues as well as educate them on policies and On the other hand according to the Tanzania legal frameworks that affect good governance Corruption Tracker System that is hosted and and accountability. In addition NCA ought
8 Unblocking Results: A case study of Norwegian Church Aid (NCA) to provide this constituency (religious leaders, citizen participation in local planning declined FBOs and communities) with governance tools slightly probably due to council’s failure to for effective engagement. implement plans. The report further states that only 47 percent of respondents had attended 2.2.3 Potential for local problem solving a village assembly three months prior to the through collective action study (Research and Analysis Working Group, United Republic of Tanzania 2011). In addition In its grant application NCA portends that an independent assessment by one of the AcT “Citizens are continuously getting disappointed partners Haki Kazi Catalyst that works in by the quality of social services which has been Arusha and Manyara regions it was revealed deteriorating over the years and the quality of that village assembly meetings were not held governance and public service delivery which as frequently as required by law (quarterly), in has not improved the quality of social service some instances the agenda was not made public delivery”. In this case there is a call for citizens by the local leaders and that attendance by to wake up and participate in planning, make community members was quite low prompting follow up on the use of public resources and the postponement of some meetings (Francis demand for good governance and accountability 2008). This could mean that such meetings from their leaders both at the national and local though legally formulated could not be easily levels. To do this effectively community based accessible to citizens. As such NCA and its structures that allow citizens to regularly meet partners need to devise alternative platforms and dialogue with their leaders are of essence. through which citizens can freely and regularly This platform gives them an opportunity to raise express their opinions on governance issues and question governance issues at the local level. affecting their daily lives including corruption issues. Through these platforms communities One such structure is the village assemblies can be educated on existing policy and legal that are meant to hold meetings after every frameworks on governance and accountability three months according to local government as well as being enlightened on how they can regulations. However as reported by the PHDR effectively participate in demanding for their 2011, in a survey conducted in 6 local councils leaders’ accountability.
9 Unblocking Results: A case study of Norwegian Church Aid (NCA)
3 Intervention Design
In this section we begin with a descriptive NCA has managed to apply these strategies in overview of NCA’s intervention model and bringing change at the national as well as the theory of change in Section 3.1, followed by local level. At the national level the strategies an analysis in Section 3.2 that explores how have been geared towards promoting policy and the organization has navigated the governance institutional coherence while at the local level constraints described in the previous section. efforts have sought to facilitate top-bottom and This is done in the context of the broader bottom accountability mechanisms as well as features of the Tanzanian political economy identifying local solutions through collective and the specific governance constraints that action. Worth noting though, is that these affect delivery of services for citizens. Section strategies have been mutually reinforcing each 3.3 analyses the implementation approach other. used while applying the Unblocking Results framework to draw out some of the enabling In the first area through PETS, Civic Education, factors supporting the strategy. VICOBA, Interfaith Committees and Peace clubs NCA and its faith based partners have been 3.1 Theory of change and Activities mobilizing groups and communities for social The NCA is a Norwegian non-governmental change, especially women, to claim their rights and development organization that promotes to economic literacy and development. Other Social justice, Human Rights and Economic areas that NCA and its faith based partners have justice for poor communities in more than brough change include peace building, access to seventy Countries worldwide. NCA has its health care, gender justice, climate justice and to foundations based in a congregation of churches secure sustainable livelihood in rural and urban in Norway, whose efforts are dedicated towards environments. eradicating poverty, its causes and social deprivation. In Tanzania, NCA works with poor In the second area NCA encouraged and Communities in partnership with Faith Based supported horizontal community level linkages. Organisations (FBOs) and religious leaders in This was carried out through establishing 41 districts of mainland Tanzania, including a network of VICOBA groups to facilitate Zanzibar (Norwegian Church Aid 2012). In trainings, exchange of experience and trading. Tanzania, NCA’s mission is to see FBOs and With Interfaith Committee structures, NCA religious leaders mobilised and jointly bringing formed an entwined mesh of religious actors positive changes to lives of ordinary citizens and addressing conflicts from the grass root level local communities. NCA’s mission is guided to the national level as well as supporting a by its core values that encompass Compassion, downward and upward expansion of interfaith Justice, Participation, Integrity Creation and dialogues/peace building and collaboration. At Peace. the national level, platforms were supported, and where lacking, created for the purposes of To realise its mission of bringing positive joint advocacy and lobbying. These included changes to lives of ordinary citizens and local FBO platforms (e.g. Christian Council of communities NCA utilises the following two Tanzania, Inter-Religious Council for Peace key activity areas: Tanzania - IRCPT, BAKWATA, and Tanzania Ecumenical Dialogue group (TEC) among • Mobilising communities for social change others), Youth Networks (GNRC, YouthCAN, TYIN), Women networks (WIN, TWIN) and • Building horizontal and vertical alliances the Tanzania ACT Forum among others. NCA and networks continued to support and nurture the Standing Interfaith Committee on Economic Justice and
10 Unblocking Results: A case study of Norwegian Church Aid (NCA) the Integrity of Creation.
Strengthening citizen’s engagement in demanding accountability has been the nexus of NCA’s work. This forms the centre of the organization’s theory of change which seeks to build the capacity of FBOs, religious leaders and citizens to demand for accountability.
Apart from describing NCA’s activities, one of NCA’s partners, CCT, was visited for this case study and in box 1 below we provide a brief overview of CCT’s activities.
The Christian Council of Tanzania (CCT) was established in January 1934 by missionaries of the Anglican, Moravian and Lutheran churches as a fellowship of Church and non- Church Christian organizations to promote the spiritual and prophetic unity of the Church, its development and advocacy. It is currently constituted of 12 National Churches and 12 Church–related organizations. CCT’s mission is to foster unity and enhance capacities of members to witness for Christ and build holistic development. Programmes supported by NCA and implemented by CCT through their membership have included national level advocacy, interfaith relations, public expenditure tracking and legal services, climate change, youth empowerment, HIV and AIDS, women development and media advocacy. CCT’s approach to working especially with the government is that of non-confrontational.
An interview with the General Secretary Rev Leonard Mtaita revealed that all CCT programmes had an advocacy component. He further stated the seriousness with which CCT members held good governance values that after being introduced to PETS concept one of the bishop’s stated “before going to check others why don’t we start with ourselves...we need a self expenditure tracking system for the church”. He confirmed that the bishop had since rolled out the system in his church. When asked to enumerate some of the key achievements the General Secretary mentioned acknowledgement by the Prime minister in parliament that CCT was a government’s partner. This was demonstrated at one time when the government gave CCT funds to carry out a PETS exercise in one of the districts. The government has also invited CCT to join the African Peer Review Mechanism (APRM).
Box 1: Overview of CCT
3.2.1 Building and sustaining case for 3.2 How the engagement worked revenue loss and capital flight
In this section we show case how interventions NCA and its FBO partners embarked on implemented by NCA and its FBO partners national level advocacy efforts to curb revenue have managed to address the three governance loss and capital flight as a result of tax evasion constraints: policy and institutional incoherence, and tax incentives. Through the Interfaith inadequate top-down and bottom up Standing Committee on Economic Justice and mechanisms and weak environment for locally the Integrity of Creation, which is comprised anchored collective problem solving. In this of religious leaders from Tanzania Episcopal instance we demonstrate how NCA and its Conference (TEC), National Muslim Council partners have managed to institute national of Tanzania (BAKWATA) and Christian and local level strategies to address these three Council of Tanzania (CCT) two major studies governance constraints. We provide vivid were commissioned by December 2012. The examples to illustrate specific results realised for first study titled ‘The One Billion Dollar each intervention. Question: How can Tanzania stop losing so much tax revenue?’ was launched just in time
11 Unblocking Results: A case study of Norwegian Church Aid (NCA) for budget session with 1000 copies produced. The report analyses Tanzania’s tax policies and “I want to assure you that, my Government and I are satisfied how much revenue the country is losing through with the invaluable contributions of the GNRC in pitching for the advancement of our children. I pledge our readiness tax evasions, capital flight and tax incentives to strengthen the cooperation with your Organization and (Tanzania Episcopal Conference, National work with you towards the realization of our shared goal Muslim Council of Tanzania and Christian of ensuring that Tanzanian children get the opportunity Council of Tanzania 2012). to live and grow in a conducive and secure environment. An environment that supports them to reach their fullest potential”...President Kikwete As reported in NCA’s January-December 2012 periodic report to AcT, the report has generated Source: NCA Periodic report Jan-Dec 2012 a lot of discussions and debates on capital Box 2: President’s Commitment to realising Child flight and revenue loss at both national and Rights international levels. At the national level the report has influenced parliamentary discussions Dollar Question’ report. The investor failed to through which opposition MPs including Hons get a mining license due to citizen’s pressure Silinde, Zitto Kabwe, Luhaga Mpina and John (Norwegian Church Aid 2013). In addition Mnyika have made extensive reference to the religious leaders have taken bold steps to engage report. Separate papers have also been produced with existing mining companies to address and presented at international conference and to economic injustices committed to communities the Parliamentary Committee on Economic and living within the mining sites. For example the Finance Affairs. Discussions between religious religious leaders held productive discussions leaders, the Ministry of Finance and Tanzania with management of Geita Gold Mines and Revenue Authority (TRA) have also borne African Barrick Gold in which tangible measures some fruit with action being taken by the latter. were proposed to address concerns raised by Some of the tangible actions taken by TRA the communities. Geita Gold Mine agreed include the process of establishing a transfer to resettle displaced persons in collaboration pricing desk and working towards developing a with the local government authorities, while transfer pricing law. TRA has also established a African Barrick Gold agreed to construct a department of International Taxation to address water cleanser that would ensure clean and safe transfer pricing and taxation of multinational drinking water for these communities. Both companies (Norwegian Church Aid 2013). At parties agreed to periodically engage on the international front the report caught the monitoring activities which would involve attention of international tax justice activists members of the communities affected. and revenue experts to influence the 2013 high level meeting on Transfer Pricing and Financial The other study commissioned by the religious Secrecy to be held in Tanzania (Norwegian leaders was a scoping research on Uranium Church Aid 2012). Mining Operations in Tanzania. This report interrogated the magnitude of Uranium In the academic arena the report has been operations in Tanzania and its potential impact used as a reference material in places such as on communities living around the Uranium Mzumbe University, Bishop Kolowa University mining areas. The report elicited reactions from Lushoto and courses offered at MSTCDC the government ministry in charge of mining to in Arusha. A case in point was when students state that “… the government had taken all the from Bishop Kolowa University sensitized the necessary steps to ensure that the catastrophes community in Magamba village, Lushoto to of Uranium mining are avoided”. Other non resist an investor’s attempt to acquire Bauxite state actors including the Legal and Human mining rights in the area. The investor had Rights Centre had also followed up the report failed to convince the villagers on how he by commissioning a documentary titled “The could address mining injustices experienced Road to Calamity.” in other areas as outlined in the ‘One Billion
12 Unblocking Results: A case study of Norwegian Church Aid (NCA) 3.2.2 Policy dialogues to strengthen to negotiate with the government on policy top-down and bottom up accountability matters as they arise. This makes CCT to be mechanisms trusted by the government.
Through their various platforms, religious leaders 3.2.3 Creating platforms for local have engaged with the national government collective problem solving on governance and accountability issues from time to time. The Tanzania Ecumenical NCA and its religious partners have facilitated Dialogue organized a meeting of 66 Bishops the formation of PETS and Interfaith to discuss FBO’s participation into the current committees at the local level. These committees constitutional review process. As an outcome are instrumental structures in following up of this meeting which involved participation of accountability in the use of public resources. central government officials, President Jakaya The PETS committees work independent of Kikwete nominated and appointed Ms Jesca existing government structures but more often Mkuchu, former Executive Director of TEDG collaborate with government officials when as a commissioner to the CRC. demanding for accountability. The committees have faced a number of challenges4 including Religious leaders have also played a significant resistance from their local leaders, being role in defusing tensions between the central threatened and criticised by political leaders. For government and its citizens. A case in point is example PETS committee members from Bahi when 22 religious leaders under the umbrella Market, Dodoma Region have repeatedly been of CCT met with the Prime Minister Hon victimised by the local authorities, sometimes Mizengo Pinda to discuss options of resolving even being threatened and their property the medical doctors’ strike that had taken an ugly confiscated by the same authorities. Despite shape by an attack on one of doctors’ leaders- these hurdles some PETS committees have Dr. Ulimboka. In appreciating the role played by continued to play their roles quite effectively. A religious leaders in resolving the doctors’ strike PETS exercise in Kilosa District exposed misuse President Kikwete in his periodic address to the of public funds by the local Village Executive nation made special reference to the meeting Officer (VEO) who was expelled by the District with religious leaders as one of the key sources Commissioner after pleading guilty of misuse of of the strike’s breakthrough (Norwegian Church agricultural inputs subsidy vouchers. Aid 2012). While it is expected that CCT should be pressing the government to deliver better In another case PETS committee members policies for its people they appear to have taken in Mazizi village managed to pressurize the another role as mediators. In this case CCT was Village Executive Officer who was accused expected to press the government to respond of embezzling village water project funds to to issues raised by the doctors. However, this start repayment. The members ensured that approach seems to work best for the government a more efficient water pump was purchased as it appears to acknowledge CCT’s efforts in and installed to facilitate access to clean and calming the doctors’ strike. safe water supply by the villagers. The PETS committee members also successfully managed Other notable initiatives have been exemplified to reposes land in which the water project stood by the role played the Global Network for from a former Member of Parliament who had Religion and Children (GNRC) organized an illegally acquired it. In Mpamantwa village, international meeting on advocacy for peace Bahi District the PETS committee members and child rights. The meeting was attended by 4 NCA and its FBO partners have since organized a na- President Kikwete who restated his government’s tional interfaith climate (youthCAN) and PETS caravans to show commitments towards accountability and case citizen’s role in enhancing accountability and transparency in public spending and use of public resources. Th caravans also respect to children’s rights (see box 2). It was sought to renew PETS active role at the local level. The event noted that part of CCT’s strategy is to build on was graced by the Deputy Minister for Local Government, Hon relationships which give them a better position Kassim Majaliwa who used the occassion to launch thePETS taining manual. 13 Unblocking Results: A case study of Norwegian Church Aid (NCA) intervened to ensure that a Chinese firm that known as Bodaboda. was harvesting ballast conforms to its promise of compensating the village members for the dust 3.3 The implementation approach that was emanating from the mining site. The and enabling factors firm had fulfilled its promise of remitting some amount of money that would go towards the As outlined above NCA and its FBO construction of a secondary school in the area. partners began their intervention approach by The researcher’s visit to the village confirmed commissioning two major studies that identified that the classrooms for the secondary school had problems afflicting Tanzania’s revenue collection been completed. The firm had also promised to more so tax evasions and incentives especially in construct the village access road. the mining sector leading loss of much needed revenue in form of capital flight. The other study In terms of Interfaith Commitees as reported sought to explore issues that affect the extractive in the CCT 2013 progress report three new industry with particular focus on uranium. The committees (Mwanza, Kilosa – Women, Geita outcome of these two case studies has been – Women) were formed during the reporting successfully employed by NCA and their FBO period, making a total of 12 committees at the partners to facilitate national level advocacy to time. Nine (9) committees (Bahi, Dodoma, bring about corrective measures. This has been Kondoa, Kiteto, Geita, Kigoma, Kilosa, Tarime done by engaging with relevant government and Mwanza) comprised of religious leaders ministries and departments in an attempt to (who were all men) and three (3) committees address policy incoherence. (Kigoma, Kilosa and Geita) comprises entirely of women. At least half of these committees To some extent these advocacy efforts have also met regularly to discuss and settle interfaith trickled down to the local level where some issues and other raising topical issues in their villagers (case of Magamba village, Lushoto) areas of operations. In Mwanza there were engaged a potential mining investor who did other initiatives of forming interfaith and peace not have any clue on how to prevent previous building committee prior to CCT’s intervention. injustices committed by mining companies in One of the notable results of the interfaith was other areas. The investor, having not convinced in Kigoma where women managed to intervene the villagers on his commitment to tackling and settled conflict between Christians and potential conflicts with communities living Muslims in Mwandiga following one Christian around the mining site, was denied mining man who had burned an Islamic training rights. This demonstrates the local community’s book (juz’u) that contains Qur’ān verses. This ability to identify collective local action to deal incident demonstrates the powere of women with local problems. Through the activities of in promoting interfaith relations and peaceful PETS and VICOBA, communities have been coexistance. mobilised to tackle bottom-up accountability challenges at the local level. At the community level social economic activities have been promoted through Inter- In this section we therefore provide some Religious Village Community Banks (IR- few specific examples that show how the VICOBA). As reported by the CCT progress implementation approach applied some of report the IR-VICOBA was being practiced in the key features, enabling the unblocking two districts-Kondoa and Dodoma urban with of the governance constraints in line with 10 and 11 groups respectively. The Dodoma the Unblocking Results framework. Table 2 groups was peculiar because they were made up summarises examples of the identified enabling of youth, who also included members engaged factors: in motorcycle transport business, popularly
14 Unblocking Results: A case study of Norwegian Church Aid (NCA) Table 2: Enabling factors that supported NCA’s interventions
Enabling factor Examples from NCA’s approach Building on existing • Analysing existing legal and policy frameworks guiding the extractive industry policies and legal (e.g. Mining Act, Tax policies) to identify inherent gaps frameworks • Advocating for the strengthening of existing policies to promote revenue collection and humane treatment of communities living around mining sites Identifying and • Utilising the existing window of the Constitutional review to lobby for seizing windows representation of opportunity for Building and sustaining good relationship with government to identify policy advocacy activities • influencing avenues as they arise Acting as facilitators • Facilitating platforms for FBOs, religious leaders and communities to coordinate and lead a collective agenda • Taking advantage of the trust accorded to FBOs by communities and leaders to bridge the gap between the two groups Learning and adaptive • Using adaptive approaches to programme design and evaluation in response to approaches to changing governance dynamics and constraints. programming
Building on existing policies and legal constitutional matters in Tanzania. The Tanzania frameworks Ecumenical Dialogue was one such platform As an entry point to advocacy, NCA and its through which religious leaders engaged the FBO partners commissioned two major studies government for an opportunity to effectively that analysed existing policies in the extractive participate in the constitutional review process. industry. The purpose of these studies was to This engagement led to the nomination and determine potential areas that NCA and its eventual appointment of a former TEDG partners would strengthen to support Tanzania’s Executive Director as a Commissioner of the revenue collection efforts and which would CRC. This was a significant step since NCA and promote human rights especially to communities its FBO partners had the opportunity to directly living around the mining sites. NCA and their influence the constitutional review process. FBO partners have managed to engage the Through its non-confrontational approach to central government to ensure that revenue losses advocacy issues NCA and its FBO partners are curbed. TRA has demonstrated the need to have managed to build a mutual and trusted review its structure by instituting a department relationship with the government. This can be of international taxation to address transfer illustrated by the leader’s positive reference to pricing and taxation of multi nationals in the the role played by religious leaders in solving mining sector. NCA have also been successful conflicts afflicting the country. For example in engaging with these multinationals to ensure at one of his regular addresses to the nation that they fairly treat communities living around President Kikwete noted the role played by the mining areas. Tangible working relationships religious leaders under the leadership of CCT including joint periodic monitoring visits have to help solve the doctor’s strike. This notion has been instituted between the religious entities placed NCA and its FBO partners at a vantage and the multinationals (African Barrick Gold point to influence policy issues as they arise. and Geita Gold Mine). Acting as a facilitator Identifying and seizing opportunities for While acting as a facilitator NCA and its FBO advocacy activities partners have supported a number of platforms The constitutional review process provided through which both the national and local a significant opportunity through which governments have met to chart the way forward NCA and their FBO partners could influence regarding governance challenges facing the
15 Unblocking Results: A case study of Norwegian Church Aid (NCA) country. One such activity was a PETS caravan which communities can question errors and that involved interfaith and youth PETS on one omissions by local leaders regarding public hand the community and government on the resources. In Zombo village Kilosa district other. This event was meant to show case the the PETS committee members mobilised roles of the community and government towards themselves to supervise the construction of social accountability. The deputy Minister for the village office . The committee members local government was the chief guest in this event. ensured that funds allocated for the construction He reiterated the government’s commitment were spent well. (see picture 1). The local area towards governance and accountability and even councillor who was previously a PETS member launched the PETS training manual to be used before getting elected assisted the members to by PETS committee members and facilitators mobilise funds through citizens for the office’s (Norwegian Church Aid 2013). construction. The presence of the office would greatly assist PETS Committee members to At the local level CCT one of NCA’s partners organise themselves and be taken seriously by has facilitated the formation of PETS the village government. committees that provide platforms through
Picture 1: New village office, Zombo village Kilosa
Learning and adaptive approaches to programming
Through the semi-annual outcome mapping reporting format, NCA and its FBO partners have been flexible to report on what progress they have achieved during that period, as opposed to what impact they have made. This type of reporting gives the partner some opportunity to reflect on what is working and what is not working. This demonstrates that the reporting format is sensitive to the change and dynamic governance environment. The monitoring visits conducted by NCA to its FBO partners have also been taken positively by these partners as a learning opportunity. (Norwegian Church Aid 2013).
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4. Challenges
In some instances, the work of PETS committees governance and accountability especially at the in some villages has been hampered by the lack of local level. cooperation by some local government leaders. As stated by a councillor in Zombo village, Inadequate resources to reach wider area Kilosa district “our leaders (especially from local especially those well deserved. During the field government) do not like to be questioned; when visit the researcher came across some villages you do that they feel you are following them”. that had just formed PETS committees and had This has discouraged some PETS members not received training. When asked, the Project who have dropped from that role after weighing Coordinator indicated that there were no funds opportunity cost of being a member of the during this project period to train new PETS committee and the effect to their personal life. members. In its periodic reporting for Jan-Dec This is because in some places like Bahi market 2013 NCA had indicated that it had slowed village some PETS committee members have down training activities to ensure those already been victimised and intimidated to the extent trained practice gained skills. However, with of being dispossessed of their property such as the advent of fresh committees being formed land. To some extend this scenario has led to it would rather be appropriate to ensure that long running court battles which has further trainings and monitoring visits are continuous. dwindled personal resources of these members. This is a drawback to proponents of good
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5. Lessons learned and Conclusions
By building on existing legal and policy legal frameworks. Commissioning of a study frameworks through commissioning studies, to determine the extent to which Tanzania was NCA and her partners have managed to set losing out on tax incentives was a strategy that the grounds for effective advocacy efforts with helped lay ground works for such an advocacy relevant government authorities. The non- initiative. The identification and targeting of confrontational approach to advocacy has also specific government bodies in this case TRA was worked in favour of NCA and her partners. a step in the right direction. It is a mix of these The outcome of this has been the ability of the strategies that pushed NCA and its partners government to acknowledge that NCA and her to the limelight in national advocacy issues partners as being a partner in development. despite having joined the good governance and accountability band wagon rather late. Through NCA and its FBO partners interventions religious leaders have been Having successfully engaged the government catalysed to take an active role in influencing at the national level, NCA and its partners national policy and governance processes in devised effective platforms that sustained this Tanzania. This has been demonstrated by positive relationship with the government. religious leaders’ engagement with specific It was through one such platform-Tanzania government departments and agencies through Ecumenical Dialogue that NCA and its effective platforms. To name a couple of partners gained the government’s commitment platforms have been utilised by religious leaders to nominate one of their own as a commissioner to engage with the government at national level; in the Constitution Review Commission. The Tanzania Interfaith Platform which facilitates religious tainted non-confrontational approach consultations on peace matters and JUHUDI has also been an approach well-crafted by NCA za Viongozi wa dini, used to discuss political and her partners. processes in the country and how these affect faith based constituencies. At the programme implementation level we further observe that the flexible outcome mapping At the local level, change has also been approach encouraged by AcT has enabled NCA demonstrated especially through the activities and its partners to navigate through the ever of PETS committees. A number of incidences changing governance environment by selecting of misuse of public funds have been identified what is working. This approach encourages and action taken against perpetrators amid non learning as an effective way to programming. cooperation of local leaders in some areas. This AcT has not required NCA to engage in impact is an indication that if facilitated communities reporting that follows the traditional logic are able to take their leaders to account. framework. Worth noting is the fact that apart from flexible reporting (semi-annually) AcT has In conclusion we can state that the fact that been partially supporting NCA’s strategic plan NCA and her FBO partners worked with as opposed to project based funding that could existing policy and legal framework was an be quite limiting. enabling factor that ensured its success in advocating for changes in those policies and
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Works Cited
Accountability in Tanzania Programme. Annual Norwegian Church Aid. Periodic Reporting: Report 2012/2013. Annual report, Dar es Salaam: January-December 2012. Progress Report, Dar es AcT, 2013. Salaam: NCA, 2012.
Christian Council of Tanzania. Strategic Plan 2014- Research and Analysis Working Group, United 2018: Final Draft. Strategic Plan, Dodoma: CCT, Republic of Tanzania. Poverty and Human 2014. Development Report. PHDR, Dar es Salaam: RAWG, 2011. Francis, Annie. External Evaluation: GTF project. External Evaluation , Arusha: Haki Kazi Catayst, Tanzania Episcopal Conference, National Muslim 2008. Council of Tanzania and Christian Council of Tanzania. The 1 Billion Dollar Question: Can James, Rick. What is distinctive about FBOs? How Tanzania stop being plundered? Research Report, European FBOs define and operationalise their faith. Dar es Salaam: TEC, BAKWATA and CCT, 2012. Praxis Paper 22, INTRAC, 2009. Tavakoli, Heidi, Rebecca Simson, Helen Tilley, Nordstokke, Kjell. “Faith Based Organisations and David Booth. Using aid to address governance (FBOs) and their distinct assets.” Research paper, constraints in service delivery: Methods and Resources. Undated. Research report, London: Overseas Development Institute (ODI), 2013. Norwegian Church Aid. NCA Tanzania Faith Based Organisations Integrity and Accountability Project Tilley, Helen. “Unblocking Results: Methodology 2011-15. Project proposal, Dar es Salaam: NCA, Guide.” Methodology guide, 2014. 2012. Tobias, Julia, and Francis Omondi. Unblocking Norwegian Church Aid. Periodic Report: January- Results: Case Study of Help Age in Tanzania. June 2013. Progress Report, Dar es Salaam: NCA, Research report, London: Overseas Development 2013. Institute (ODI), 2014.
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Annex 1: Features of AcT’s model
AcT’s theory of change articulates this vision: ‘If their own programming strategies with a view civil society grantees are carefully selected and that these organisations are better equipped respond to individual support tailored to their to understand the governance context they are programming and internal systems, they will be working in and to apply this knowledge toward able to develop targeted strategic interventions shaping their sectoral and governance goals. which are sensitive to changes over time and in the broader political economy, as well as their AcT’s approach to evaluation includes a geographic location, their sector, institutional substantial focus on intermediate, short- mandate, and values…’ (outcome mapping term achievements in addition to long-term brief ). The rigorous, competitive process of outcomes, and aims to enable AcT’s partners to selecting its partners allows AcT to work more learn and adapt their programming strategies intensively with its CSO partners initially and as needed over time rather than rigidly then take a more hands-off approach when committing them to a set of pre-determined the capacity of its partners improves. The AcT targets in advance. The evaluation process, programme is managed and implemented by which involves the use of outcome mapping an intermediary fund manager, KPMG, as they tools, considers the wide range of factors that have been considered better able to provide the can affect its partners’ success in achieving type of tailored support needed for its partners their goals, and aims to assess progress of its than a larger organisation such as DfID would partners on the basis of reasonable efforts made be positioned to give itself, particularly given the rather than solely on impacts achieved. The relatively small size of grants yet large number approach has been characterised as particularly of grantees. Since building capacity of CSOs well-suited for evaluating governance projects is a goal itself, AcT can use a more supportive in a complex, multi-stakeholder environment approach than some donors and therefore avoid such as Tanzania, where outcomes such as the cutting off partners for reasons related to limited effects of lobbying or advocacy are inherently capacity. uncertain, results are unlikely to be achieved in a predictable or linear fashion, and attribution is The theory of change also emphasises AcT’s difficult (outcome mapping brief ). openness to allowing its partners to design
20 Unblocking Results: A case study of Norwegian Church Aid (NCA) Annex 2: Unblocking results methodology
This case study is part of a series of case studies that comprise the second phase of a research project that studies the interaction between constraints and aid packages in particular country contexts and explores how the design and delivery features of aid programmes address such constraints. It builds on earlier ODI research by Booth (2010) and Wild et al. (2012) that categorises typical constraints and incentive problems to service delivery, and shows that a number of common constraints underlie much of the variation in service delivery performance in developing countries, Table 1.5
Table 1: Governance constraints and effects
Governance constraint Explanation Common effects
Policy and institutional Unclear and duplicated Incentives for staff to either refrain incoherence mandates. from implementing policies, or simultaneously pursue several Policy and resource frameworks conflicting policies at once. in conflict. Poor top-down Weak top-down and bottom-up Rules not developed or enforced, performance disciplines accountability mechanisms. instructions are not followed and and bottom-up functions are not carried out. accountability mechanisms Limited scope for Groups are not acting together Result in the under or over- problem-solving and local to produce solutions that are utilisation of services, and are collective action solutions appropriate and in the collective associated with a longstanding interest. disrepair of shared goods. This research does not aim to evaluate the programmes against their stated objectives, nor measure their impact. Rather it examines the types of aid-funded activities that seem most relevant to improving governance constraints, making some speculative conclusions about their ability to do so as well as about the elements of the design and implementation approach that have facilitated the execution of these activities. This will aim to increase our understanding of what aid can do to best feed into domestic change processes in-country. The research questions are presented in Box 1.
Box 1: Research questions Can aid facilitate the unblocking of service delivery constraints and if so, how? • How and to what degree have the activities facilitated an amelioration of constraints to service delivery?
• Which enabling factors should aid programmes prioritise when attempting to address the governance constraints of interest, and why?
• What constrains aid organisations in responding to the enabling factors, and how can these constraints be overcome?
5 While the development community has long recognised that weak governance and incentive problems hinder the deliv- ery of broad-based public services in developing countries (Keefer and Khemani, 2003; World Bank, 2004; Collier, 2007), the last decade has seen a growth in research that seeks to understand and diagnose the nature of these governance problems.
21 Unblocking Results: A case study of Norwegian Church Aid (NCA) The prevalence of the governance constraints were analysed ex ante and ex post, considering the indicators in Table 2, where they were relevant to the specific case study. The research explored the extent to which observed gaps in service delivery are bridged by the intervention. Institutional arrangements such as a poor policy process or system for making decisions may negatively impact on service delivery, as may a lack of capacity, insufficient staff with the required knowledge and skills. These are both relatively tractable, types of problems that aid can help solve. However, if the problems reside in deeper problems of political economy and incentives, it may be more difficult for aid intervention to have any impact.
Table 1: Assessment of situation before and after the intervention
Governance Indicators constraints Degree of a *Well-defined mandates coherent vision *No-overlapping jurisdictions among all or some of the organisations involved in providing public services *Absence of perverse incentives confronting actors within particular organisations. Perverse incentives are often as a result of incomplete implementation of a new policy and/or the simultaneous pursuit of several policies for which practical purposes are in conflict * Disparity between stated public policy and revealed policy (as apparent from policy implementation) Extent of *Site visits by supervising authorities, particularly senior political leaders or officials effective *Resistance to interference by minor politicians outside the chain of command top-down *A palpable sense of being monitored in terms of inputs, outputs or outcomes performance *Actual examples of staff or higher officials being rewarded or punished for their disciplines and performance bottom-up *Monitoring by direct (or indirect users) and the existence of feedback mechanisms accountability *Users (direct or indirect) involved in setting the standards of provision mechanism *Monitoring mechanisms that build on traditional institutions or norms (such as honour and shame) *The degree of exit/opting out from the users Availability of Institutions enabling collective action: ‘locally anchored’ * are problem–solving in the relevant context i.e. Institutions of collective action are solutions (not ones that have been arrived at locally and which specifically address the obstacles that necessarily just at have arisen locally the front line) * make use of institutional elements inherited in the past i.e. draw on previous experience or make use of institutional elements that have been employed in the past
Phase 1 found that there are six ‘enabling factors’ that appear to have allowed the aid-funded activities to obtain traction and nudge forward institutional change that is conducive to the improved delivery of results. These provide clear implications for the design and implementation of aid packages that seek to address service delivery blockages, Table 3. This study explored the extent to which these were relevant to the intervention, along with any other emerging features.
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Table 2: Enabling factors
ENABLING FACTOR CURRENT PRACTICE PROPOSED PRACTICE (STYLISED) Windows of opportunity Country strategies based on needs Weigh need against opportunity to assessments affect change Tangible political payoffs Reluctance to have projects Accept that aid is inherently associated with political platforms/ political and work with the political agendas incentive structure Building on what’s there Tendency to want to start afresh Get existing framework with a revised legal, policy or implemented, however imperfectly, regulatory framework and then adjust Moving beyond policy TA engaged to advise on the TA engaged to support advice content of policies implementation of policies Acting as facilitators External agents provide sound External agents help to facilitate technocratic advice for govts to and mediate a local dialogue about ‘take or leave’ problems and solutions Adaptive and responsive Pre-defined logical frameworks Flexible frameworks that judge to lessons learnt that lock donors and implementers performance on the basis of a into a set of activities sensible effort, rather than pre- defined targets
23 Unblocking Results: A case study of Norwegian Church Aid (NCA)
24 Unblocking Results: A case study of Norwegian Church Aid (NCA)
25 For further informantion:
Programme Director Accountability in Tanzania (AcT) 11th Floor, PPF Tower | Garden Avenue/ Ohio Street | P.O. Box 1160 Dar es Salaam, TANZANIA Phone: +255 22 2122003 | Fax: +255 22 2113343 Website: http://www.accountability.or.tz