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The Politics of Public Policy Decisions in Local Government in Uganda

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The Politics of Public Policy Decisions in Local Government in Uganda THE POLITICS OF PUBLIC POLICY DECISIONS IN LOCAL GOVERNMENT IN UGANDA A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy awarded by the Faculty of Cultural Studies at Bayreuth University By Jane AYEKO-Kümmeth Submitted 29th October 2014 Date of Defence: 04.02.2015 Supervised by Prof. Dr. Dieter Neubert Second Supervisor: Prof. Dr. Klaus Schlichte Table of Contents List of Illustrations ................................................................................................................... v EIDESSTATTLICHE VERSICHERUNG ........................................................................... vi ACKNOWLEDMENTS ......................................................................................................... vii ACRONYMS ......................................................................................................................... viii ABSTRACT ............................................................................................................................. ix CHAPTER ONE: INTRODUCTION .................................................................................... 1 1.1. Research Background .............................................................................................. 1 1.2. Structure of the Thesis ............................................................................................. 8 CHAPTER TWO: CONCEPTUAL AND THEORETICAL FRAMEWORK ................ 12 2.1. Local Government, Decentralisation and the making of Public Policy Decisions 12 2.2. Decentralisation: The African Experience ............................................................. 19 2.2.1. Local Government and Decentralisation in Uganda .............................................. 21 2.3. Actor-centered Institutionalism.............................................................................. 23 2.3.1. Institutions in Actor-centered Institutionalism ...................................................... 24 2.3.2. ACI perspective of Actors..................................................................................... 26 2.3.3. Actor Constellations and modes of interaction ...................................................... 27 CHAPTER THREE: METHODOLOGY ............................................................................ 34 3.0. The Research Approach ......................................................................................... 34 3.1. Research design ..................................................................................................... 35 3.2. Sampling ................................................................................................................ 37 3.2.1. Data collection techniques ..................................................................................... 41 3.2.2. Data Analysis ......................................................................................................... 44 3.2.3. Ethical Considerations, Technical Aspects and Challenges .................................. 44 ii CHAPTER FOUR: REFLECTIONS ON THE HISTORY OF LOCAL GOVERNMENT IN UGANDA ........................................................................................................................... 47 4.1. The Pre-colonial Era .............................................................................................. 47 4.2. Local government in the Colonial Era ................................................................... 49 4.3. Local Government in Post -Independence Uganda ............................................... 52 4.4. Local Government during the National Resistance Army/Movement Era ............ 55 4.4.1. Explaining the Local Government Act .................................................................. 58 4.4.2. Institutions and Actors in Local Government ........................................................ 59 CHAPTER FIVE: BEYOND CONSITITUTIONALISM: MICRO-HEGEMONY AND POLITICAL ORDERS IN UGANDA .................................................................................. 65 5.1. The Creation of Power Centres/Powerful Actors and the resultant Establishment of Micro-Hegemony in Local Government .................................................. 65 5.5.1. Application of Micro-Hegemony to Personnel Recruitments and its Impact on LG 72 5.5.2. Application of Micro-Hegemony on Financial Decisions and its Impact on LG .. 78 5.5.3. Application of Micro-Hegemony on Public Procurement and its Impact on LG .. 81 5.5.4. Application of Micro-Hegemony on local Policy Formulation and Implementation and its Impact on LG ............................................................................................................ 84 5.6. The development of Musevenism, how it works and its impact on LG ................ 88 5.7. Recentralising Local Government within a Decentralised System ........................ 96 5.8. Summary .............................................................................................................. 101 CHAPTER SIX: LOCAL GOVERNMENT IN THE CONTEXT OF DECENTRALISATION ...................................................................................................... 103 6.1. Decentralisation as a medium for Participation ................................................... 103 6.2. Decentralisation as a medium for Representation ............................................... 114 6.3. The creation of New Districts and the resulting impact on LG ........................... 120 6.3.1. Towards the Development of Soilisation and how it works ................................ 132 6.4. Summary .............................................................................................................. 136 CHAPTER SEVENE: MONETARISED LOCAL GOVERNMENT ............................. 139 iii 7.1. Conceptualising Monetarised Political Systems .................................................. 140 7.2. Beyond the façades: Neo-patrimonialism and policy decisions in LG ................ 140 7.3. Monetised Operations: The something for something syndrome ........................ 151 7.4. The Liberalised Economy .................................................................................... 159 7.5. The Politics of Land Wrangles: Turning the solution into political mileage ...... 161 7.6. The involvement of Multilateral Organisations and its implications on Public Policy Decisions in LG: the case of Foreign Donors .............................................. 165 7.7. Summary .............................................................................................................. 167 CHAPTER EIGHT: ‘HYBRID GOVERNMENT’: THE INTERFACE BETWEEN STATE AND NON-STATE ACTORS ............................................................................................... 169 8.1. The Concept Hybridity in other studies ............................................................... 170 8.2. Situating Cultural and Religious Institutions in Uganda ..................................... 171 8.3. The role of Non-State Actors in shaping Public Policy Decisions ...................... 172 8.4. The engagement of Non-State Actors in the Social Service Sector: Implications for Public Policy Decisions ...................................................................................................... 176 8.5. The Influence of Non-State Actors in Electoral Trends ...................................... 182 8.6. Ethnic Fractionalisation and Politics of Ethnicity ............................................... 185 8.7. Summary .............................................................................................................. 191 CONCLUSION ...................................................................................................................... 194 Finding I ................................................................................................................................. 195 Finding 2 ................................................................................................................................ 196 Finding 3 ................................................................................................................................ 198 Finding 4: ............................................................................................................................... 199 Theoretical Implication .......................................................................................................... 201 Policy implication .................................................................................................................. 202 Limitation and Recommendation for future research............................................................. 202 iv REFERENCES ..................................................................................................................... 204 Pilot Research Questions ..................................................................................................... 216 Appendix ............................................................................................................................... 217 List of Interviews .................................................................................................................. 217 Curriculum Vitae ................................................................................................................. 222 List of Illustrations List of Illustrations Figure 1: The Structure of District
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