Advocates Coalition for Development and Environment Plot 96, Kanjokya Street, Kamwokya P. O. Box 29836, Tel: +256 312 812150 Email: [email protected]; [email protected] Website: http://www.acode-u.org

LOCAL GOVERNMENT COUNCILS’ PERFORMANCE AND PUBLIC SERVICE DELIVERY IN

Kanungu District Council Score-Card Report FY 2013/2014

Authors: Edward Natamba, Evelyn Kukundakwe OVERVIEW OF DISTRICT and Rogers Ampumuza DURING FY2013/14

Kanungu district is managed by both political and BACKGROUND AND RATIONALE technical leadership who work together to deliver services to the district. The political leadership was This policy brief presents findings from the 2013/14 headed by Hon. Canon Josephine Kasya, assisted by assessment of Kanungu District Local Government 19 elected councillors (including the Speaker), who under the Local Government Councils’ Score-card provided an oversight role and monitored development Initiative (LGCSCI), an evidence based project projects to ensure quality service delivery. The implemented by ACODE in partnership with ULGA technical leadership was led by Mr. Chrezestom Kayise, with support from DGF. It seeks to enhance the the Chief Administrative Officer, who worked with a effectiveness of elected leaders in fulfilling their team of heads of departments to provide technical mandate and build the citizens’ capacity to demand guidance and implement lawful council resolutions to better services. The initiative is implemented in 30 provide services to citizens. districts, including Kanungu district which was being assessed for the third time. The initiative uses the Kanungu district is renowned for beautiful scenery score-card – an assessment tool - to facilitate annual and areas of protected nature including national performance assessments on the district council, parks (managed by Uganda Wildlife Authority), game district chairperson, speaker and councillors with reserves and both central and local forest reserves. focus on their roles and responsibilities as stipulated In these protected areas, there are a variety of wild in the Local Government Act CAP 243 (as amended). animals including buffalo, climbing lions, mountain gorillas, elephants, Uganda kob and a variety of birds The annual assessment process is conducted by teams and reptiles. Queen Elizabeth National Park and the of researchers across the 30 districts partaking in the Bwindi Impenetrable National Park, in particular, LGCSCI assessment. The research process involves a attract both local and foreign tourists. review of key district documents, interviews with key respondents and consultations with citizens through District oil production is becoming a possibility at sites focus group discussions (FGDs). Following the data in Nyamirama sub-county, Katete Parish in Kambuga collection process, data is cleaned and analysed to sub-county, Kihiihi sub-county, Kanyantorogo sub- identify key themes and patterns wherein a district county and Kayonza sub-county. Currently, mining report detailing the findings is produced for each of activities taking place in the district include gold the assessed districts (full reports are available online; mining and the excavation of sand and clay (mainly http://www.acode-u.org/). LGCSCI also produces for construction and pottery purposes). Agriculture and disseminates a ‘National Synthesis Report’ that is the main economic activity and the construction provides trends analysis for all 30 of the assessed of two major tea factories1 has created further local districts. Both reports are disseminated nationally employment and livelihood improvement opportunities. with districts receiving copies of both their specific The district also hosts three small airstrips (located reports and copies of the National Synthesis Report. at Kayonza Tea Factory, Savannah Resort Hotel and Ishasha areas of Queen Elizabeth National Park) with

1 The two tea factories are Kayonza Growers Tea factory and Kinkiizi Development Company Limited.

ACODE Public Service Delivery and Accountability Report Series No.61, 2015 i proposals to extend the Ishasha grass airstrip for Figure 2: A recently fixed Mitaano bridge, Kambuga Sub- improved transport links and a growing district.2 county to ease transport in the district

Figure 1: One of the largest tea estates in Kanungu District

Photo Credit: ACODE Digital Library

Photo Credit: ACODE Digital Library

A review of selected service delivery indicators for FACTORS AFFECTING SERVICE Kanungu district shows that despite improvements DELIVERY IN KANUNGU DISTRICT in levels of statistical achievement from FY2012/13, the quality of service provision remains wanting. For a) Budgetary Constraints: During FY2013/14 example, in the education sector key primary education Kanungu District Local Government received indicators showed an improvement in comparison with the biggest share of its revenue from central the achievements of FY2012/13. Enrolment levels government transfers, accounting for 93 per increased from 47,162 to 51,241 pupils whilst the cent of the district’s revenue. Locally-generated pupil-teacher ratio was at 38.1; well above the national revenue contributed only 1 per cent while donor target of 55:1. However, despite impressive statistics, contributions were 6 per cent. Kanungu district the education sector faced several challenges including outlined the costs of their projected service the poor remuneration of teachers (more than 15 per delivery activities for FY2013/14 at UGX 22.9 cent of primary teachers were not on the payroll), billion but only UGX. 22.7 billion was received. inadequate teaching facilities, high levels of staff and Although there was an increase in central student absenteeism, a high dropout rate (despite an government transfers during FY2013/14, central increase in enrolment levels for FY2013/14) and the government disbursements were mainly in the poor participation of parents in the education of their form of conditional grants. As such, there was children. little or no room for the re-allocation of funds by the district local government to other service In terms of transport and access to the district, delivery priorities. Kanungu district had no tarmac roads. Notably, the connection into Kanungu district was improved with b) Limited Support Supervision and Operations the provisional Mitaano Bridge as the construction Repairs and Maintenance: The inadequate and of a new bridge continues. However, despite an limited supervision by district staff of service improvement in the district road network (15 km of delivery operations and maintenance led to trunk roads, 390 km of rural district/feeder roads, and delays in the implementation of work by some 600 km of community access roads) in the previous contractors. Furthermore, the procurement of financial year, the gravel work was poor. In such a hilly planned activities was delayed. This particularly district, periodic maintenance is necessary (especially affected the engineering and roads sector. on central government roads) as roads became impassable, particularly during the rainy season. c) Prohibitive Terrain: The hilly nature of Kanungu Poor roads access impacts on the transportation of district makes the maintenance of roads agricultural produce to the markets and has previously difficult. For example, Kibimbiri-Mitanda- forced farmers to sell their produce at a give-away Katokye road has remained in a poor state price with minimal financial returns. although the district local government has tried to ensure that the road is graded to the required standard. Similarly, monitoring in such hard-to- reach areas is complicated.

d) High Drop-out Rate of Councillors: Research 2 The Population and Housing Census (2002) estimates the findings revealed that there was a high turnover annual population growth rate of the district at 2.1 per cent. ii ACODE Public Service Delivery and Accountability Report Series No.61, 2015 rate of councillors . For example, five councillors Table 1: Kanungu District Council Score-card FY 2013/14 left their roles and were serving in other positions in local governments or as Resident District 2011/12 67 100 Commissioners (RDCs) which left sub-counties 2012/13 57 100 with no representation in council. The high drop- out rate was attributed to findings that suggest 2013/14 69 100 councilors had excessive expectations on the financial returns of a political position in local % change 21 Trends in Performance government and were unaware of the magnitude of roles and responsibilities expected from them Max amidst the meager allowances. Indicator Score Explanatory Remarks Score

e) Poor Monitoring and Documentation: Although Parameter

councillors are supposed to monitor the delivery Rules of Procedure 2 2 of public services, this was found wanting. Poor Membership to ULGA 1 2 The council adopted monitoring was mainly attributed to insufficient standard rules of Committees of Council 3 3 procedure with funds allotted to the exercise. In cases where amendments and, as the councillors claimed to have monitored, there a member of ULGA, Motions passed 1 3 paid subscription. The was often no evidence to back up their claims DEC sat more than ten Ordinances 1 3 times and motions such as monitoring reports or signatures in the were passed on issues visitors books of service delivery points. Conflict Resolution 1 1 such as meeting with UNRA staff about the Public Hearings 2 2 poor state of central f) Limited Contact with Electorate: The failure government roads, the repair of Mitaano LEGISLATIVE ROLE by electorate to understand the roles and Legislative resources 3 4 Bridge, Ishasha eco responsibilities of political leaders and power dam and Petitions 2 2 delayed works on councillors greatly affected the councillors’ -Kanungu road. The district role of contact with electorate. The electorate Capacity building 2 3 council also hosted a had diverse expectations from their councilors delegation from . and the, often excessive and non-constitutional, Sub total 18 25 demands discouraged the councilors from carrying out this role. Fiscal Accountability 4 4 There was adherence to the work plans Political Accountability 5 8 although this was hindered by delayed funds. Council debated Administrative Accountability 2 8 on corruption scandals SCORE-CARD PERFORMANCE (particularly in the Involvement of CSO 2 2 roads sector) and action was taken. The score-card parameters are derived from the Principles of accountability 0 3 MoUs were signed between the district mandate of the organs assessed as stipulated in the and development partners including Local Governments Act. While all the four categories of Kigezi Tea Growers ACCOUNTABILITY TO CITIZENS Kanungu District Local Government political staff are Sub total 13 25 Company Ltd however there was no evidence evaluated on their legislative and monitoring functions, of public display of the the district chairperson, speaker and council are client charter. assessed against additional roles. Plans, Vision and Mission 5 5

District Budget 4 4 The district had an As the political head of the district, the district approved DDP, CBP chairperson is also assessed on their political Local Revenue 9 11 and REP however there was still no ordinance leadership as well as the initiation of and participation on local government financial autonomy. in development projects in their electoral area. The Sub total 18 20 speaker is assessed primarily as a councillor with PLANNING & BUDGETING an additional scoring requirement of presiding over and the preservation of order in council. The district Education 4 5 council, the highest organ in the district, is assessed Health 5 5 against planning and budgeting requirements and in Despite monitoring Water and sanitation 1 4 some service delivery providing accountability to citizens. facilities, the council did not adequately Roads 2 4 monitor water and sanitation, roads and Agriculture 4 4 FAL services delivery points. FAL 0 4

ENR 4 4 MONITORING SERVICE DELIVERY ON NPPAs Sub total 20 30

ACODE Public Service Delivery and Accountability Report Series No.61, 2015 iii Table 2: Chairperson’s Score-card FY2013/14 Table 3: Speaker’s Score-card FY 2013/14

Josephine Kasya NRM Name Charles Beshesya

2011/12 53 100 District Kanungu

2012/13 74 100 Political Party NRM

Constituency Kirimya 2013/14 62 100

Gender M % change -19 Trends in Performance Terms 1

2011/12 61 100 Max Indicators Score Explanatory Remarks Score 2012/13 68 100 Parameter 2013/14 72 100 DEC 3 3

Monitoring admin 5 5 % change 6 Trends in Performance State of affairs 2 2

Oversight civil 1 4 The chairperson presided servants Max over executive meetings and Indicator Score Explanatory Remarks presented a report on the state Score Commissions/ of the district. She also wrote 2 2 a letter to the DSC over the

Boards Parameter delayed backlog for interviews.

Chairing council 3 3 Central gov’t 3 4

Rules of procedure 6 9 The standard rules of Sub Total 16 20 procedure were adopted and POLITICAL LEADERSHIP Business Committee 3 3 enforced by the speaker whilst minutes were produced on Council 2 2 time and given to councillors before the next council The chairperson attended Records book 2 2 meeting. The speaker also Motions Executive 4 6 council at least four times; convened meetings according motions and bills on service Record of motions 3 3 to a schedule which was Bills by Executive 0 7 delivery were presented on circulated to councilors for the delayed road works of their reference. He also Rukungiri – Kihiihi-Kanungu Special skills 0 5 delegated to his deputy. road and tree planting along Sub Total 6 15 the roads.

LEGISLATIVE ROLE Sub Total 17 25 Legislative Function Meetings Electorate 3 5 Meetings Electorate 11 11 The speaker had a programme Issues by electorate 5 5 The chairperson visited eight to meet citizens in his sub-counties and held radio constituency every Friday talk shows on service delivery coordinating center 9 9 and also mobilized citizens to demand for the broken Sub Total 8 10 Mitaano bridge to be repaired;

CONTACT WITH ELECTORATE after a meeting with the Sub Total 20 20 president at the site, a Projects Initiated 3 3 provisional bridge was fixed. Among other projects, Contact with Electorate the chairperson linked the Communal Projects 1 2 community to development partners including Kiruruma The speaker attended five NGOs 5 3 community to Netherlands sub-county sessions and gave Participation in LLG 10 10 people. She also made official communication (as sure that the pledge of tea reflected in minutes). seedlings from the president

Sub Total 9 10 LLG was fulfilled. PROJECTS Health 7 7 Agriculture 4 7 Education 5 7 Health 7 7 Agriculture 5 7 Schools 0 7 The chairperson performed well in monitoring the areas The speaker monitored a Water 5 7 Roads 7 7 of agriculture, health, roads substantial number of service and environment however delivery facilities however his Roads 3 7 monitoring role was found Water Sources 0 7 the chairperson’s monitoring performance was found wanting in the areas of FAL wanting in the areas of FAL 0 5 and Environment. FAL 0 5 education, water and FAL.

Environment 5 5 Environment 0 5

Sub Total 23 45 Sub total 25 45 MONITORING SERVICE DELIVERY ON NATIONAL PRIORITY PROGRAMME AREAS Monitoring NPPAs

iv ACODE Public Service Delivery and Accountability Report Series No.61, 2015 Sub Total Sub

0 7 5 45 37 35 33 32 31 35 29 26 24 22 27 34 20 14 15 24 ENR

2 1 1 0 2 1 1 1 1 0 1 0 0 0 0 0 0 0 5 1 FAL

3 1 3 1 5 3 3 0 1 1 5 0 0 0 0 0 0 0 5 1 Roads

7 7 7 7 7 7 5 7 0 5 7 6 7 7 1 0 2 0 7 5 Water 4 7 5 7 0 5 5 1 1 4 4 7 3 0 0 0 0 0 7 3

Monitoring NPPA Agriculture

7 5 7 5 3 7 5 7 7 5 5 7 0 1 1 0 3 3 7 4 Education

7 7 5 7 7 5 7 5 7 0 5 7 3 3 6 0 0 2 7 5 Health

7 7 5 5 7 7 3 5 7 7 0 7 7 3 7 0 2 0 7 5 Sub county meetings county Sub 6 4 8 0 8 0 0 0 7

10 10 10 10 10 10 10 10 10 10 10

LLGs Subtotal

2 0 0 20 16 16 16 16 16 11 16 16 13 16 16 16 13 13 11 12 Office

9 9 9 9 9 6 9 9 6 9 9 9 6 6 7 2 0 0 9 7 Meeting electorate Meeting

7 7 7 7 7 5 7 7 7 7 7 7 7 7 4 0 0 0 6

11 Contact with electorate Sub total Sub

2 6 6 25 19 19 19 17 16 15 19 19 16 17 19 13 18 16 16 15 Special skill Special

1 1 1 1 0 0 1 1 1 1 1 0 0 0 0 0 0 0 4 1 Motion

2 2 2 0 0 2 2 2 2 0 2 0 0 2 0 0 0 0 5 1 Committee

8 8 8 8 8 5 8 8 8 8 8 1 8 8 8 8 5 5 8 7 Plenary

8 8 8 8 8 8 8 8 5 8 8 1 5 8 8 8 1 1 8 7

Legislative role % Change %

24 -4 20 15 7 -11 -5 -8 3 -17 -11 -12 -25 -12 -69 -48 0 -9 2013/14

100 82 80 78 75 73 71 70 65 63 63 62 60 56 55 52 18 13 11 58 2012/13

100 66 83 65 65 68 80 74 71 61 76 70 68 73 59 58 25 0 62 2011/12

100 65 77 64 57 27 49 64 65 66 59 27 44 72 50 10 13 0 48 Trends in Performance Terms

1 1 3 3 1 2 1 3 3 3 3 1 2 3 1 1 1 1 Gender F F F F F F F F F F M M M M M M M M

Maximum Score Sub-county Sub-county

Nyamirama Kihiihi Kanungu Kirima & Kanungu Rutenga/ Kinaaba Kanyantorogo Kanyantorogo Kayonza Kihiihi Kambunga Rugyeyo Kayonza & Mpungu Kihiihi Mpungo Nyomiroma PDW Male Youth Female PWDs Female Political Party Political

NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM Name Lawrence Byaruhanga James Niringyimana Ruugi Kaberuka Emmy Magezi Justine Atwine Kakuru Mable Nahurira Mariam Asiimwe Christopher Kamara John Muhima Addah Nasiima Jacinta Kataba Fulgence Muhumuza Hope Tugumisirize Nyiraguhigwa Felesta Frank Byaruhanga Jackline Mugisha Geoffrey Bigambwamukama Immaculate Nyabuhara Joselyn Kigundu Average Identifiers Table 4: Summary performance of Kanungu District Councillors FY 2013/14

ACODE Public Service Delivery and Accountability Report Series No.61, 2015 v POLICY RECOMMENDATIONS FOR About the Authors IMPROVED SERVICE DELIVERY

From the Kanungu District Council Scorecard Report, Edward Natamba is an Independent Researcher it is recommended that: and the Executive Director of South Western Institute for Policy and Advocacy (SOWIPA) 1. Central Government considers increasing based in Ntungamo. He has worked on the the budgetary allocation for Kanungu Local Local Government Councils Score-Card Initiative Government to meet service delivery priorities. (LGCSCI) since 2009.

2. Kanungu District Local Government devises Evelyn Kukundakwe is an Independent strategies to increase and effectively collect Researcher and she works with Kanungu district local revenue from the available local resources. NGO Forum.

3. Kanungu District Local Government recruits key Rogers Ampumuza is an Independent Researcher administrative staff that can offer leadership and he is also the Director of MBHU Kanungu. and supervision to ensure efficiency in service delivery.

4. Kanungu District Local Government intensifies monitoring by both political and administrative leaders to check shoddy works on service delivery units, especially engineering and road works.

5. Kanungu District Local Government institutionalizes the practice of elected leaders producing monitoring reports.

6. Kanungu District Local Government includes more capacity building initiatives for council members and elected leaders in the areas of legislation, drafting motions and bills, report writing, record keeping and minute taking

The full report on these findings can be accessed on ACODE’s online information center at: http:www.acode-u.org/

vi ACODE Public Service Delivery and Accountability Report Series No.61, 2015