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Decentralisation and Central-Local Relations : a Solomon Islands Case

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Decentralisation and Central-Local Relations : a Solomon Islands Case Copyright is owned by the Author of the thesis. Permission is given for a copy to be downloaded by an individual for the purpose of research and private study only. The thesis may not be reproduced elsewhere without the permission of the Author. Decentralisation and Central-Local Relations: A Solomon Islands Case Study on the Negotiations of Relations between National and Provincial Governments A thesis presented in partial fulfilment of the requirements for the Degree of Master of Philosophy in Development Studies at Massey University, Palmerston North, New Zealand Gloria Tapakea Suluia 2012 Abstract The literature on decentralisation and development emphasises the prominent role played by representatives of central government and representatives of local government in the negotiations of central-local relations. This thesis seeks to investigate this argument by examining the institutional framework between national and provincial governments and the negotiations taking place within a decentralised framework in the Solomon Islands context, focusing on government officials’ experiences. Drawing from a case study in the Malaita Province, the most important institutions and procedures for negotiating relations between the national and provincial governments are explored and the extent to which government officials utilise these structures. Furthermore, government officials shared their assessment of the most important institutions dealing with the negotiation of central-local relations. This was important to understand how decentralisation has affected central-local relations. This study which adopted a qualitative case study approach found that two institutions were established by the national government to undertake negotiations between the national and provincial governments within a decentralised framework. While these institutions do exist in theory, in practice they have not been fully utilised by national government officials, which undermined their ability to fulfil their mandate. Furthermore, the absence of policies and clear guidelines on the conduct of central-local relations means that national officials are not obliged to utilise these institutions, and can use or create alternative platforms such as sectoral mechanisms. Provincial officials, however, do not have this opportunity. This study also found that in the Solomon Islands context, the Ministry of Provincial Government and the Premiers’ Conference, as the institutional channels for negotiating central-local relation are not effective due to their limited institutional capacities. Overall, this thesis concludes that within the context of the provincial government system in the Solomon Islands, the decentralisation policies introduced since the 1980s have had minimal impact in enhancing the relation between the national and provincial governments. In this respect, the establishment of institutions resulting from decentralisation are not the only platforms for encouraging cooperation and collaboration between the national and provincial governments. While the existence of these institutions benefited government officials by providing them with platforms to carry out negotiations between the two different levels of government, their limited utilisation by national officials is contradictory to the initial purposes of decentralisation policy, which is to foster a relation between national provincial and local politicians where they can work together for the people they represent. i Acknowledgements I am most grateful to our loving God for all His provisions and for making this journey a memorable one for my family and I. Taku tahi tehaka laoi kite tamana e tapu. This thesis was made possible because of the support and encouragement of several people. I am especially indebted to my supervisor, Dr Gerard Prinsen, who stood by me throughout the journey of putting together this thesis. His invaluable advice and support has kept me going and motivated through many of the challenges encountered. Special thanks also to my second supervisor, Dr Rochelle Stewart-Withers, for all her assistance in reviewing my draft chapters and for her valuable encouragements. I wish to further extend my special thanks to Professor Regina Scheyvens and Dr Maria Borovnik for their academic and personal advice during the duration of my study with the Institute of Development Studies. I would like to extend my sincere gratitude to all participants who unselfishly devoted their time in sharing with me their valuable and rich experiences as government officials. Your patience and support during the fieldwork was beyond my expectation. I am especially grateful to various Heads of National Ministries involved in this research and to the Premier and Provincial Secretary of Malaita Province in the Solomon Islands for the permission to carry out this research with your organisations/government. A heartfelt thank you to NZAID, without your financial assistance I would not have this opportunity to pursue further studies in New Zealand. Sincere thanks to Ms Silvia Hooker, Ms Olive Pimentel and Mr Jamie Hooper for all the support rendered to me and my family. I was humbled by the support and encouragement of so many friends who I have made during my time at Massey University. Special thanks to my postgraduate colleagues who have embarked on this journey with me. Just knowing that I am not alone in this undertaking makes a big difference during those dull moments. Thank you for making my stay in New Zealand a memorable one. I owe my deepest gratitude to my mum who has supported me regardless of the challenges that life brings. Thank you very much for all your support. Most of all, this journey would not have been possible without the love and support of my dear husband, Rollins and, our three sons, Sean, Liam and John. Your company and laughter keeps me going each day. I am especially indebted to my husband’s selfless efforts in caring for our young children and his belief that I can achieve anything if I put my heart into it. Your patience and support never cease. Many thanks for sacrificing your career so I can pursue my studies. Lastly, but not the least, I dedicate this thesis to my late beloved son Angel whom the loving Lord had taken home in Dec 2009 to rest with Him eternally. You are forever in my heart. ii Table of Contents Abstract .................................................................................................................................................... i Acknowledgements ................................................................................................................................. ii List of Figures .......................................................................................................................................... v List of Tables .......................................................................................................................................... vi Abbreviations and Glossaries ................................................................................................................. vii CHAPTER 1: INTRODUCTION ........................................................................................................... 1 1.1 Background ............................................................................................................................... 1 1.2 Significance and Rationale of the Study .................................................................................... 3 1.3 Research Aim, Objective, and Questions .................................................................................. 4 1.4 Structure of the Thesis ............................................................................................................... 5 CHAPTER 2: UNDERSTANDING CENTRAL-LOCAL RELATIONS WITHIN A DECENTRALISED CONTEXT. .......................................................................................................................................... 7 2.1 Introduction ................................................................................................................................ 7 2.2 Defining Decentralisation ........................................................................................................... 7 2.3 Conceptualising Decentralisation ............................................................................................... 9 2.4 Rationale for Decentralisation .................................................................................................. 10 2.5 Dimensions of Decentralisation ............................................................................................... 12 2.5.1 Political Decentralisation ................................................................................................... 13 2.5.2 Administrative Decentralisation ......................................................................................... 13 2.5.3 Fiscal Decentralisation ...................................................................................................... 14 2.6 Forms of Decentralisation ........................................................................................................ 15 2.6.1 De-concentration .............................................................................................................. 15 2.6.2 Delegation ......................................................................................................................... 16 2.6.3 Devolution ........................................................................................................................
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