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Re-imagining Decentralization: Improving of Relationships between Ethnic Groups and the State in Uganda. A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy at George Mason University By Ashad Sentongo M.A Coexistence and Conflict Resolution, Brandeis University 2008 Diploma in Management, Dameline School of Management 1998 Post-Graduate Dip in Educ - Islamic University in Uganda 1992 B.A Islamic Studeis, Islamic University in Uganda 1991 Dissertation Director: Terrence Lyons – Professor School for Conflict Analysis and Resolution Summer Semester 2013 George Mason Univeristy Fairfax, Virginia Copyright 2013 Ashad SENTONGO All Rights Reserved Dedication To my parents for dedicating their lives to educate me. The late Hajji Asadu Semmindi Lutale passed away on April 23rd 2012 in the early days of writing this dissertation, and Hajjat Sarah Nakanwagi Lutale who continues to be a source of guidance and inspiration. I profoundaly thank Allah (SWT) for the life and wisdom He gave me, and for providing me with a supportive family, resourceful lecturers, supovisors, and friends with whom I shared this journey. ii Table of Contents Page Abstract …………………………………………………………..…..……….………. x Chapter One ……………………………………………………………………………1 1.1 Introduction to the study………………………………………………….…….1 1.2 Research Problem…………………………………….………...………………7 1.3 Historical Context…………………………………………..……...…..….......11 1.4 Rationale for the study……………………………………………………......18 1.5 Main research question………………………………………….………........19 1.6 Operational definition of terms……………………….………………..…….....19 1.7 Scope of the study…………………………………..……..……….…………...24 Chapter Two……………………………………….………………………..…..…….29 2.1. Theoretical Review……………………….….…………………..……….……29 2.2. Power and power-sharing……….….………..…………………………….…32 2.3 Consociation and integrative theories….….……..…………….......……….39 2.4 Structural Violence Theory………………..……..……………….......………43 2.5 Social Identity Theory …………………………..…..………………...………49 Chapter Three……………………………..……………………….…………..……..55 3.1 Research Design……………………...………..…………..………………….55 3.2 Research Subjects……………………...…………………….……….………57 3.3 Sampling design and sample size……...…………………..………………..59 3.4 Research procedure………………………..………………..……….……….63 3.5 Validity and reliability………………………..…………..…………..………...71 3.6 Ethical considerations………………………...……….....……….......………72 3.7 Limitations to the study………………………..………….………......………73 Chapter Four………………………………..……..……..…………………………...76 4.1. Ethnic groups in Uganda……………….……………..…………………………76 4.2 The Baganda ethnic group……………….………..……………......………..79 4.3 The Basoga Ethnic Group………………………..………………...........…..85 Chapter Five………………………………………….…………………...................92 5.1 Decentralization…………………………………………….…….............…..92 5.2 Decentralization as Power-sharing……………………….……….....……...94 5.3 Studies on decentralization……………………………………..........………97 5.4 Decentralization in Uganda…………………………….………........……...103 5.5 Decentralization and Movement Politics…………….………...........…….107 5.6 Dimensions of decentralization in Uganda………….………..……...........113 5.7 LG and Cultural Leadership Structures………………….……........……..118 5.8 Resident District Commissioners………………………………........……..124 5.9 LG performance………………………………………………....…....……...125 5.10 Decentralization in Buganda Kingdom……………………....…....…....….127 5.11 Decentralization in Busoga Kingdom……………….....…....…....….....…136 Chapter Six…………………………………………………………………..………147 6.1 Decentralization and relationships……………………...……..…...148 6.2 Interests…………………...…………………………………………....……..152 6.3 Perceptions……………...………………………………………..…....……..181 6.4 Pattern of interactions………………...………………...……….…....……..189 Chapter Seven………………………………….………………………………...…204 7.1. Study Findings and Analysis……………………………………..…....…..…..205 7.2. Understanding decentralization……………………………………...…....…..205 7.3. Decentralization and relationships…………………………………..…....…..212 Chapter Eight…………………………………………………………………..……263 8.1. Conclusions………………………………………………............….......…..263 8.2. Understanding decentralization…………………………………..……..….....266 8.3 Decentralization and relationships……………………………..…….....….268 8.4 Re-imagining decentralization.………………………….………..……..….274 8.5 Recommendations…………………….………………….………..….....……..277 8.6 Areas for future research…………………………………………….......….285 8.7 A finishing note…………………………………………………………....….287 2 List of Tables Table Page Table 1: Distribution of ethnic groups in the Central Region….……....................58 Table 2: Distribution of ethnic groups in the Eastern Region……….................…59 Table 3: Distribution of respondents in Kampala and Jinja Districts................…62 List of Figures Figure Page Figure 1: Framework of the study…………………………………………..………..31 Figure 2: Data Analysis Spiral……………………………....................……………63 Figure 3: Decentralization on the African Continent……………….....................112 Figure 4: Decentralization choices and outcomes…………………....................117 Figure 5: The Structure of LGs in Uganda………………………….....................120 Figure 6: The Service Structure of LGs in Uganda…………………...................123 Figure 7: Structure of a Baganda Clan………………………………...................130 Figure 8: Relationship between the social and political structures of Baganda…………………………………………………………………...................131 Figure 9: Decentralized structure of Busoga Kingdom……………….................138 Figure 10: LG and traditional authorities - Kampala District…….......................215 Figure 11: LG and traditional authorities - Jinja District……..............................215 Figure 12: Make decisions about local interests - Kampala District……...........224 Figure 13: Make decisions about local interests - Jinja District……..................224 Figure 14: Set local priorities – Kampala District…….................……................229 Figure 15: Influencing LC actions – Kampala District…….................…….........230 Figure 16: Set local priorities – Jinja District…….................…….......................234 3 Figure 17: Influencing LC actions – Jinja District…….................……................235 Figure 18: Set and collect taxes – Kampala District…….................……...........237 Figure 19: Control local resources – Kampala District……..............……...........237 Figure 20: Set and collect taxes – Jinja District…….................……..................244 Figure 21: Control local resources – Jinja District…….................……..............244 Figure 22: Benefit from decentralization - Kampala District…….............……....250 Figure 23: Benefit from decentralization - Jinja District…….................……......250 Figure 24. Relationship Matrix…….................…….................……....................269 4 List of Abbreviations ACCU – Anti-Corruption Coalition Uganda BLB – Buganda Land Board CAO - Chief Administrative Officer CAR - Conflict Analysis and Resolution CECC - Civic Education Central Committee DA - District Administrators DLB - District Land Board DP - Democratic Party DPSF - Decentralization Policy Strategic Framework DSC - District Service Commissions KY - Kabaka Yekka Party LC – Local Councils LG - Local Governments MISR - Makerere Institute of Social Research N-ve - Negative NN-ve - Non-negative NP+ve - Non-positive NRA - National Resistance Army NRM - National Resistance Movement P+ve - Positive PAF - Poverty Action Fund PEAP - Poverty Eradication Action Plan RC - Resistance Councils RDC - Resident District Commissioner SI - Social Identity SNA - Social Network Analysis SV - Structural Violence TL -Traditional Leaders UNC - Uganda National Congress UPC - Uganda People’s Congress ABSTRACT RE-IMAGINING DECENTRALISATION: IMPROVING OF RELATIONSHIPS BETWEEN ETHNIC GRPOUPS AND THE STATE IN UGANDA Ashad Sentongo, Ph.D George Mason Univeristy, 2013 Dissertation Director: Dr. Terrence Lyons Decentralization of state power is often argued to be the appropriate power- sharing system of government in ethnically divided societies, whenever group grievances over exclusion or discrimination by the state culminate into violent conflicts. Studies about decentralization also tend to focus on policies, systems and structures through which the state delegates, decongests and devolves its powers to local governments in which citizens participate. However, conditions under which decentralization can or fails to improve relationships especially between aggrieved ethnic groups and the state remain indeterminate. Failure to recognize these conditions may explain why the system manages conflicts within one group and not the other, and accounts for persistent group claims of entitlement to power and control of resources. In the face of the overwhelming power and influence of the state and local governments over local communities, such claims tend to be framed and articulated by traditional authorities and their members as threats to group status, culture and identity. This study determined that decentralization improves relationships positively when it is perceived to function effectively to deliver services, including meeting cultural and identity interests of ethnic groups especially over power and resources. However Non-positive improvement occurs when the system functions effectively to deliver services, but is perceived by ethnic groups to threaten their status, cultural and identity interests. Non-negative improvement occurs when poor service delivery frustrates ethnic groups, although not in ways that threaten their status, culture and identity interests.
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