Advocates Coalition for Development and Environment Plot 96, Kanjokya Street, Kamwokya P. O. Box 29836, Kampala Tel: +256 312 812150 Email: [email protected]; [email protected] Website: http://www.acode-u.org
LOCAL GOVERNMENT COUNCILS’ PERFORMANCE AND PUBLIC SERVICE DELIVERY IN UGANDA
Arua District Council Score-Card Report FY 2013/2014
Authors: Robert Rupiny Ronnie, Lillian Driwaru and wing was headed by Mr. Sam Ogenrwoth as Chief Matthew Bandale Administrative Officer (CAO).
Arua District’s main economic activity is agriculture with 96 per cent of the households dependent on
BACKGROUND AND RATIONALE subsistence farming. However, although Arua District has 20 gazetted forest reserves (40%-60% of these This policy brief presents findings from the 2013/14 gazette forests have been depleted for agricultural assessment of Arua District Local Government under activities, fuel and timber. BAT was instrumental in the the Local Government Councils’ Score-card Initiative districts economy growth before its closure few years (LGCSCI), an evidence based project implemented ago. Cross border trade with DR Congo and South by ACODE in partnership with ULGA with support Sudan, fishing in the Sub counties adjacent to Albert from DGF. It seeks to enhance the effectiveness of Nile and partnership with several programmes and elected leaders in fulfilling their mandate and build projects such as NAADS, vegetable oil development the citizens’ capacity to demand better services. The project, funded by MAAIFS and IFAD, Integrated initiative was implemented in 30 districts, with Arua Seed Sector Development Project (ISSD), Live Fish being assessed for the first time. The initiative uses the Marketing Facility Construction by MAAIFS and cattle score-card – an assessment tool - to facilitate annual restocking project by the OPM are contributory performance assessments on the district council, economic activities. The district has an airport district chairperson, speaker and councillors with which is the second busiest in Uganda after Entebbe focus on their roles and responsibilities as stipulated international airport which is being upgraded by Civil in the Local Government Act CAP 243 (as amended). Aviation Authority (CAA) to international standards of 200 passengers, when completed it will significantly The rigorous assessment process is guided by a boost the economy of the district. deliberate methodology and is conducted by an assorted team of researchers that is trained on an Arua District has 246 primary schools whose enrolment annual basis. The process involves: review of key for the FY 2013/14 was 273,720 pupils, posting an district documents, interviews with key respondents, increase from FY 2012/13 that had 261,830 pupils. consultation with citizens through focus group PLE performance was average, recording over 50 discussions, analysis of data collected and finally, per cent of students scoring Div. III in 2012; while in production and dissemination of findings. The 2013 the rate was 57%. However there was a slight findings are compiled into a report and disseminated decline in those who scored Div. I and Div. II compared at national and district levels (available online; http:// to the previous year. The Pupil Classroom Ratio of www.acode-u.org/). 102:1 and Pupil Latrine stance Ratio of 112:1 are still considerably high. OVERVIEW OF ARUA DISTRICT DURING FY2013/14 During the year under review safe water coverage increased by 0.2 per cent from 73 per cent to 73.2 per Arua District was managed by the political and cent so was latrine coverage from 66.9 per cent to 73 technical leadership which complement each other. per cent. The political docket was headed by Hon. Wadri Sam Nyakua supported by 47 councillors including the Speaker Hon. Genesis Dria Acema while the technical
ACODE Public Service Delivery and Accountability Report Series No.45, 2015 i Table 1: Service Delivery Indicators in Arua District (2013/14)
National standard/ NDP Level of achievement Indicators Level of achievement 2012/13 target 2013/14 Sector
Children of primary school going age (6-12 yrs) All children from 6 yrs + 221,206 223,645
Enrolment - 261,830 273,720
Pupil Classroom Ratio (PCR) 55:1 106:1 102:1
Pupil-Teacher Ratio (PTR) 55:1 63:1 61:1
Pupil-to-Desk Ratio (PDR) 3:1 6:1 6:1
Education -Primary Div 1-2.1%; Div II-47.2%; Div 1-1.6%; Div II-41.3%; PLE Performance - Div III-24.6%; Div IV-13.6%; Div III-29.1%; Div IV-15%; U-7.6% ; X-4.6% U-8.6%; X-4.3%
ANC 4th Visit 60% 35.1% 40%
Deliveries in Health Centres 35% 37.4% 63%
Total beds - - -
Access to Maternity services - - -
MMR - - - Health Care services IMR - - -
Staffing Levels - 48% 49%
643.5 after every 2 Km of roads under routine maintenance - 643.5 after every 2 months months
Km of roads rehabilitated - 0 0
Km of roads under periodic maintenance - 9.38% 22.1
Proportion of roads in good condition 100% 50% 55% Road Sub-Sector Construction of bridges 7 1 0
Opening up new community roads - 0 0
Water coverage 100% 73% 73.2%
Number of boreholes sunk - 26 21
Number of boreholes rehabilitated - 25 0
Functionality of water sources 100% 86% 89%
Water and sanitation Proportion of the population within 1km of an improved water source 100% 73% 73.2%
Latrine coverage 100% 66.9% 73%
Number of extension workers per sub-county - 85 in 28 sub counties 85 in 28 sub ounties
Number of service points - 27 27
Number of demonstration farms - - Agriculture
Technical back-up visits - 15 days per month 15 days per month
Number of instructors - 160
Number of participants - - 3680 FAL Number of service centres - - 160
Level of coverage - - Not known
Staffing Level - - -
Conduct Environmental monitoring and assessment - 25 14
Production and update District State of the Environment Report (DSOER) Annually - -
District Environment Action Plan 1 1 1
Preparation of District Wetland Ordinance - - -
Monitor wetland systems in the district - 4 6
Establishment of Agro-forestry nurseries - -
Produced District Forest Development Plan Annually - - Environment and Natural Resources Prepared Community Action Wetland Plan - - 2
District Wetland Action Plan - - -
Ordinance on Environmental conservation - - - ii ACODE Public Service Delivery and Accountability Report Series No.45, 2015 FACTORS AFFECTING SERVICE the political head of the district, the district chairperson is also assessed on their political leadership as well DELIVERY IN ARUA DISTRICT as Initiation and participation in projects in their electoral area. The speaker is assessed primarily as a) Budgetary Constraints: During the Financial a councillor with an additional function of presiding Year under review, Arua District’s budget and preservation order in council. The district was 52,007,034,946/=. Central government council, which is the highest organ in the district, is transfers accounted for 83 per cent, Local also assessed against the core function of planning Revenue and Donors funds accounted for 1 and budgeting as well as providing accountability to percent and 12 percent respectively. This is citizens. an indication that the district remains heavily dependent on central government transfers that Table 2: Arua District Council Score-card FY 2013/14 are mainly in form of conditional grants. As
such there is little or no room for re-allocation 2013/14 46 100 of funds by Arua District Local Government to other service delivery priorities. Max Indicator Score Explanatory Remarks Figure 3: A four year budget performance for Arua District FY Score
2010/11-2013/14 Parameter
Rules of Procedure 2 2 Adopted model rules of procedure. Annual Membership to ULGA 2 2 subscription to ULGA was paid. DEC had Committees of Council 3 3 8 meetings. There was no motion on local government Motions passed 2 3 local government financial autonomy. Ordinances 0 3 No ordinance was passed in council; Source: Arua District approved budgets FY2011/12, 2012/13, Conflict Resolution 1 1 there were 3 bills on; child labor 2009, drug 2013/14 Public Hearings 0 2 abuse 2005 and food
LEGISLATIVE ROLE security and nutrition bill 2010. Two Conflict Legislative resources 1 4 b) Inadquate staffing: In the FY2013/14, the resolution initiatives district experienced inadequate staffing at 53 held on land issues; Petitions 0 2 agreed to institute a per cent. This not only impacted on the smooth library, equip office Capacity building 3 3 of clerk and create running of the district activities, but it also council chambers and strained the available staff. Sub total 14 25 a lounge. c) Persistent land and border conflicts: The Fiscal Accountability 4 4 There is no evidence district was engaged in several land and of; timely action on Political Accountability 4 8 PAC and internal border conflicts some of which escalated into audit reports; debate on independent Administrative Accountability 5 8 clashes. Significant amount of time was spent evaluation; and adoption of the in negotiations which could have been used in Involvement of CSO 2 2 revised charter on service delivery priorities. accountability and Principles of accountability 1 3 ethical code of conduct d) Intrigue and infighting among technical staff: for Local Governments. Evidence of the
There were incidences of intrigue and infighting ACCOUNTABILITY TO CITIZENS district client charter Sub total 16 25 developed (June 2011) amongst technical staffs of the district, was available. mainly attributed to rivalry over positions thus Plans, Vision and Mission 5 5 Evidence of; approved hampering effective service delivery. 5 year DDP; CBP and District Budget 4 4 REP; annual workplans e) Poor documentation and record keeping: and budgets. No evidence of ordinances Local Revenue 2 11 Although councillors claimed to have carried on local government out various activities, there was no evidence financial autonomy or engagement with supporting the claims. There were no reports Sub total 11 20 central government on prepared for the activities carried out making it PLANNING & BUDGETING revenue enhancement. difficult to assess the magnitude of the service Education 1 5 delivery deficiencies. Health 1 5
SCORE-CARD PERFORMANCE Water and sanitation 1 4 Monitoring of NPPAs was minimally done Roads 0 4 attracting weak The score-card parameters are derived from the performance under this parameter. mandate of the organs assessed as stipulated in the Agriculture 2 4 Local Governments Act (as amended). While all the FAL 0 4 four categories are evaluated on their legislative and ENR 0 4
monitoring functions, the district chairperson, speaker MONITORING SERVICE DELIVERY ON NPPAs and council are assessed against additional roles. As Sub total 5 30
ACODE Public Service Delivery and Accountability Report Series No.45, 2015 iii Table 3: Chairperson’s Score-card FY2013/14 Table 4: Speaker’s Score-card FY 2013/14
Name Genesis Dria Acema Sam Wadri Nyakua
District Arua
2013/14 49 100 Political Party NRM
Performance Constituency Okollo
Gender Male Max Indicators Score Explanatory Remarks Score
Parameter Terms 3
DEC 3 3 2013/14 40 100 Monitoring admin 5 5
State of affairs 1 2 Performance
Oversight civil 2 4 Chaired meetings jointly with servants civil servants. Held meeting with RDC on conflict resolution. Participated in district security Max Commissions/ Indicator Score Explanatory Remarks 2 2 meetings Score Boards Parameter
Central gov’t 4 4 Chairing council 3 3
POLITICAL LEADERSHIP Sub Total 17 20 Rules of procedure 9 9 Chaired 5 council meetings. Council 2 2 Rules of procedure were Business Committee 3 3 adopted. Timely and filed Attended 5 council sittings. Motions Executive 4 6 minutes of council meetings There was no motion on were available. Presided enhancing local government Bills by Executive 0 7 Records book 2 2 over 4 business committee financial autonomy. No meetings and minutes evidence of bills presented by produced. Files with petitions the Executive to council Record of motions 3 3 and motions were available. Sub Total 6 15 However, there was no
LEGISLATIVE ROLE evidence of special skills Special skills 0 5 provided. Meetings Electorate 4 5 No evidence of meeting with the electorates, but held Issues by electorate 5 5 meetings at; Muni, Odupi and Sub Total 20 25
Ozuu. Sensitized people about Legislative Function land issues; cattle re-stocking programme and construction of Arua airport on local radio talk Meetings Electorate 2 11 There was no evidence of Sub Total 9 10 shows. No evidence of issues programme for meetings held. raised by the electorate to the However, evidence of meeting
CONTACT WITH ELECTORATE executive coordinating center 9 9 electorates was available in the visitors’ book at home and Projects Initiated 3 3 Initiated SACCO for bodaboda file at office. groups. However, he had no Sub Total 11 20 Contact with Electorate Communal Projects 1 2 evidence of written advice to community. Made contribution NGOs 3 3 to institutions and community members. He signed MoU Attended only 2 meetings with Associazion Centro of LLG. No evidence of any Participation in LLG 4 10 communication, feedback or Sub Total 7 10 AiutiVolontari (ACAV- and UNHCR/OPM/ OXFAM. sharing of information. PROJECTS LLG Agriculture 0 7 Health 1 7 Health 5 7 Education 1 7 Monitored 3 health centres Schools 5 7 but monitoring reports were Apart from heath and Agriculture 1 7 not prepared. Monitored 5 Roads 0 7 schools where there was fair schools but did not meet the performance, Agriculture, Water 1 7 threshold. No evidence of any Water Sources 0 7 roads, water sources, FAL and agriculture activity monitored. environment did not attract Roads 1 7 Visited only 2 water points and any point hence the poor 4 roads but monitoring reports FAL 0 5 performance were not made. No evidence FAL 0 5 was available of visiting FAL Environment 0 5 centres, and environmental Environment 0 5 sites. Sub Total 10 45 MONITORING SERVICE DELIVERY ON NATIONAL PRIORITY PROGRAMME AREAS Monitoring NPPAs Sub total 5 45
iv ACODE Public Service Delivery and Accountability Report Series No.45, 2015 Sub Total Sub
6 5 2 3 7 5 6 3 4 4 7 4 4 1 5 7 5 7 4 8 3 5 4 4 45 18 10 23 18 13 11 10 14 16 ENR
5 0 1 1 1 1 0 1 0 1 1 1 1 1 1 0 5 0 1 1 1 0 0 0 0 1 1 0 1 1 1 0 0 0 FAL
0 1 0 1 0 1 0 0 1 1 1 0 0 0 1 0 5 0 1 0 1 1 1 0 1 1 0 1 0 0 1 0 1 0 Roads
3 1 7 1 1 0 1 1 0 1 1 5 1 5 1 1 7 1 1 1 1 1 0 0 1 1 1 0 1 0 1 1 1 1 Water 5 1 0 5 4 0 1 1 0 1 0 1 1 0 0 1 7 0 0 0 1 0 1 0 0 1 0 0 0 0 0 1 0 0
Monitoring NPPA Agriculture
1 3 1 0 0 0 3 3 1 1 0 1 1 1 1 1 7 0 0 1 1 0 0 0 1 1 1 1 0 1 0 1 1 1 Education
3 3 7 5 0 0 3 3 0 1 1 1 1 4 1 1 7 1 0 0 1 1 1 0 1 1 1 0 1 1 0 1 0 1 Health
1 1 7 1 1 7 5 7 0 3 1 1 1 1 5 1 5 1 1 1 1 1 1 1 1 1 1 5 1 5 0 1 1 1 Sub county meetings county Sub 8 6 8 4 8 8 8 8 4 0 2 0 4 0 0 0 0
10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10
LLGs Subtotal
6 7 4 6 6 9 6 4 2 0 0 4 0 4 4 4 5 2 6 4 0 0 6 6 4 4 4 20 13 18 11 11 16 11 Office
2 9 0 6 2 9 0 9 5 9 2 4 0 0 6 0 9 0 2 0 4 4 2 0 0 4 4 0 0 2 4 4 4 4 Meeting electorate Meeting
9 4 0 4 2 0 2 4 0 2 0 0 7 0 2 0 0 0 2 5 2 2 0 0 0 4 2 0 0 0
11 11 11 11 Contact with electorate Sub total Sub
9 9 9 9 9 9 9 9 9 9 9 9 9 2 1 9 9 9 9 25 21 15 16 16 21 21 16 16 11 18 11 16 16 15 Special skill Special
0 1 0 0 0 0 0 0 0 0 0 0 0 0 0 0 4 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 Motion
5 5 0 0 5 5 0 0 0 0 0 0 0 2 0 0 5 2 2 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 Committee
8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 8 1 8 0 8 8 8 8 Plenary
8 1 8 8 8 8 1 1 1 1 8 1 8 1 1 1 8 8 1 8 1 1 1 8 1 1 1 1 7 1 1 1 1 1
Legislative role 2013/14
100 62 53 51 50 50 40 39 38 38 37 37 37 34 31 31 29 29 29 28 28 27 27 26 26 22 20 19 19 19 18 18 17 17 Terms
2 2 2 4 3 1 1 2 1 1 4 3 1 1 1 1 2 7 2 1 3 1 3 2 1 1 1 1 0 3 1 1 1 Gender F F F F F F F F F F M M M M M M M M M M M M M M M M M M M M M M M
Maximum Score Sub-county Sub-county
Ogoko Arivu Uriama Aroi Odupi Arua Hill Division River Oli Division Ulepi Vurra, Logiri Manibe Rigbo, Ewanga R. Camp, Ogoko, Pawor Pawor Logiri Adumi River Oli Division Katrini Rigbo Omugo Ajia Oluko Manibe, Aroi Okollo Bileafe Dadam Adumi, Ayivuni Bileafe, Uriama Vurrah Aiivu Okollo, Uleppi Arua Hill Division Offaka Aniribu Political Party Political
FDC NRM FDC NRM NRM NRM FDC NRM Ind NRM NRM NRM NRM NRM Ind NRM NRM NRM FDC NRM NRM NRM NRM FDC NRM NRM FDC NRM NRM NRM NRM NRM Name Identifiers Hamzah .A. Manzah Candini Luigi Wilfred Saka Kamilo Sabo Sunday Ayikoru Dawin Dawa Karim Raima Edward Akua Stella Alitiru John Atibuni Rgina Buleru Rose Jenny Abiko Peter Thoryek Boniface Ogacindiyo Alioni Luke Asua Muzamil Achema Rose Emmanuel Mundum Stephen Agnes Tako Cosmas Ayikobua Alex Adrabo Joyce Lekuru Atilio Droma Geofrey Opima Moses Amat Josephine Chandiru Agnes Ocitini Anguyo Pariyo John Amayo Florence Driwalu Justine Hubert Afidra Alex Butele Sam Olema Onzia Table 5: Summary performance of Arua District Councilors FY 2013/14
ACODE Public Service Delivery and Accountability Report Series No.45, 2015 v Sub Total Sub
5 3 6 0 2 6 3 1 1 0 1 0 1 6 POLICY RECOMMENDATIONS FOR ENR IMPROVED SERVICE DELIVERY
0 0 1 0 0 1 0 0 0 0 1 0 1 1
FAL The report recommends that, among others:
0 1 1 0 0 1 0 0 0 0 0 0 0 0 Roads 1. The central government should consider 1 0 1 0 1 0 1 0 0 0 0 0 0 1
increasing the budgetary allocation for Arua Water
0 0 0 0 0 1 0 0 0 0 0 0 0 1 Local Government to meet service delivery
Monitoring NPPA Agriculture priorities.
1 1 1 0 0 1 1 0 0 0 0 0 0 1 Education 2. The district should devise strategies to increase 0 0 1 0 0 1 0 0 0 0 0 0 0 1
and effectively collect the local revenue from the Health
3 1 1 0 1 1 1 1 1 0 0 0 0 2 available local resources. Sub county meetings county Sub 0 0 0 4 0 0 0 0 0 0 0 0 5 10 3. The district leaders should engage the conflicting LLGs
parties in order to end the existing disputes once Subtotal
2 4 0 2 4 0 9 2 0 0 0 0 0 5 and for all. Office
0 4 0 0 4 0 9 0 0 0 0 0 0 3 4. The district should intensify monitoring by both Meeting electorate Meeting political and technical leaders to check shoddy 2 0 0 2 0 0 0 2 0 0 0 0 0 2
Contact with electorate any sub-standard works on service delivery Sub total Sub 9 9 9 9 9 8 1 0 9 9 8 9 8
10 units. Special skill Special
0 0 0 0 0 0 0 0 0 0 0 0 0 0 5. There is need to continuously orient councilors Motion
0 0 0 0 0 0 0 0 0 0 0 0 0 1 and citizens on their roles and responsibilities in
implementing public service delivery. Committee 8 8 8 8 8 8 0 0 8 8 8 8 8 7
6. Institutionalize the practice of production of Plenary 1 1 1 1 1 0 1 0 1 1 0 1 0 3
Legislative role monitoring reports by the elected leaders. 2013/14
16 16 15 15 15 14 13 13 10 9 9 9 9 26 7. Include more capacity building initiatives for Terms council members/elected leaders on report
2 3 1 1 1 1 1 1 2 1 3 3 1 writing, record keeping and minute taking. Gender F F F F F F F F M M M M M
The full report on these findings can be accessed on
ACODE’s online information center at: Sub-county Sub-county http:www.acode-u.org/
About the Authors Offaka , Antiribu Asia, Arivu Ayivuni Youth Male Arua Hill Division Pajulu Pajulu Aiivu, Katimu Dadamu Youth Female Omugo Odupi
Robert Rupiny Ronnie is an Independent Researcher Political Party Political and he also works with Nebbi NGO Forum.
Lillian Driwaru is an Independent Researcher. She is NRM NRM NRM NRM FDC NRM NRM NRM NRM NRM NRM NRM NRM also the Coordinator, Youth Development Initiatives West Nile.
Matthew Bandale is an Independent Researcher. Name Identifiers Jane Rokoni Bacimva Natalia Drateru Faustine Yikita Ferry Jary Ombaa Night Eyoru Asara Patrick Enguma Christine Debo Jesca Candiru Abedu Florence Barbara Alesi Canon Viga Mary Adakuru Peter Mali Adroma Average
vi ACODE Public Service Delivery and Accountability Report Series No.45, 2015