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

Rukungiri District Council Score-Card Report FY 2013/2014

Authors: Edward Natamba, Milcah Abasabyona OVERVIEW OF DISTRICT and Sunday S. Muhwezi DURING FY2013/14

Rukungiri District political leadership was headed by BACKGROUND AND RATIONALE Hon. Charles Byabakama and assisted by 24 elected councillors (including the Speaker) who provided an This policy brief presents findings from the 2013/14 oversight role and monitored development projects assessment of Rukungiri District Local Government to ensure quality service delivery. Meanwhile, the under the Local Government Councils’ Score-card technical team was led by Mr. Stephen Ouma as the Initiative (LGCSCI), an evidence based project Chief Administrative Officer, who worked with the implemented by ACODE in partnership with ULGA with respective heads of departments to provide technical support from DGF. It seeks to enhance the effectiveness guidance and implement lawful council resolutions to of elected leaders in fulfilling their mandate and build provide services to the citizens. the citizens’ capacity to demand better services. The initiative is implemented in 30 districts, including As a District, Rukungiri is endowed with undulating Rukungiri which was being assessed for the fourth hills, a number of rivers and Lake Edward, the main time. The initiative uses the score-card – an assessment lake in the district where fishing activities take place at tool - to facilitate annual performance assessments on Rwenshama Fishing Village. Other small lakes found the district council, district chairperson, speaker and in the district include Lake Kimbuga in Nyarushanje councillors with focus on their roles and responsibilities and Lake Garubunda in Kebisoni sub-counties. A as stipulated in the Local Government Act CAP 243 (as number of people derive their livelihood from fishing, amended). particularly from Lake Edward, while others do fish farming around their homes although agriculture is The annual assessment process is conducted by teams the main economic activity in the district. Over 90 of researchers across the 30 districts partaking in the per cent of the population depends on subsistence LGCSCI assessment. The research process involves a farming as their main source of livelihood. review of key district documents, interviews with key respondents and consultations with citizens through The district attracts tourists thanks to unique features focus group discussions (FGDs). Following the data such as Bwindi Impenetrable Forest National Park collection process, data is cleaned and analysed to and Queen Elizabeth National Park. Other tourist identify key themes and patterns wherein a district attractions include Ilimbo hot springs in Bwambara report detailing the findings is produced for each of sub-county, hot mineral springs in Kebisoni sub-county the assessed districts (full reports are available online; and falls in Nyarushanje sub-county. All these http://www.acode-u.org/). LGCSCI also produces features have the potential for development and the and disseminates a ‘National Synthesis Report’ that generation of local revenue for the benefit of district, provides trends analysis for all 30 of the assessed if well planned and prioritized. districts. Both reports are disseminated nationally with districts receiving copies of both their specific Although the district’s population has been growing reports and copies of the National Synthesis Report. rapidly over time with the annual population growth rate estimated at 2.5 per cent, service delivery indicators for Rukungiri District demonstrate that the quality of service provision remains below target levels. In FY2013/14, Rukungiri district had a total of

ACODE Public Service Delivery and Accountability Report Series No.59, 2015 i 1,223 primary schools with 1,162 government aided FACTORS AFFECTING SERVICE primary and 61 private schools. The district achieved only 60% enrolment whilst 10 per cent of the primary DELIVERY IN RUKUNGIRI DISTRICT teachers in the district were unable to access the payroll. The performance of UPE schools was poor a) Budgetary Constraints: In the FY2013/14 compared to private schools, particularly in rural areas Rukungiri District’s budget was UGX 23.7 billion despite a good pupil to teacher ratio. In FY2013/14, although the actual amount received by the the primary education sector in Rukungiri District district was UGX 20.7 billion. It was noted that, faced challenges including; high levels of staff and compared to the needs outlined by the district student absenteeism, inadequate teaching facilities, local government of the projected service poor sanitation facilities and the limited participation delivery activities, fewer funds were disbursed of parents in the education of their children. that what was required which directly impacted effective service delivery. Rukungiri District Figure 1: A crowded classroom of Nyakitabire P/S, Ruhinda Local Government was still heavily dependent on Sub-county central government transfers during FY2013/14 which accounted for 98 per cent of the district’s total revenue whilst locally-generated revenue and donor contributions accounted for 1 per cent each to the district revenue (as shown in Figure 1). It is imperative to note that central government disbursements, on which the district government is almost entirely reliant, form the greatest percentage of the district budget and are mainly in the form of conditional grants. What this means is that there is little or no room for the re-allocation of funds by the district local government to other service delivery priorities.

Figure 3: A Three year budget performance for Rukungiri Photo Credit: ACODE Digital Library district from FY2011/2012-2013/2014

In terms of accessibility, Rukungiri district is served by a 25km tarmac road that connects the district to the Kampala City via District. The bulk of the road network (600km of trunk roads and 300km of rural district/feeder roads) in the district is gravel. Although the district received road maintenance equipment, the state of some roads was found wanting - particularly Nyakisoroza-Bugoro and Nyakishenyi-Rubabo roads in Nyakishenyi sub-county. In addition, the periodic maintenance of some roads was insufficient as roads became impassable during Source: Rukungiri District Local Government final accounts the rainy season which halted the transportation of for FY 2013/14 agricultural produce to markets. b) Limited Support Supervision: Despite the Figure 2: A poorly maintained road in Buhunga Sub-county staffing gaps in district departments, the process of filling vacant positions is bureaucratic due to long staff recruitment and deployment processes which has greatly impacted on service delivery due to the limited available manpower to carry out district activities.

c) Poor Monitoring and Documentation: Although councillors are supposed to monitor the delivery of public services, insufficient funds allotted to the exercise meant that councilors were not facilitated to complete the activities. In cases where the councillors claimed to have monitored service delivery points there was no evidence (such as monitoring reports or signatures Photo Credit: ACODE Digital Library in visitors books) to back up their claims on monitoring activities undertaken. ii ACODE Public Service Delivery and Accountability Report Series No.59, 2015 d) Limited Contact with Electorate: The failure Table 1: Rukungiri District Council Score-card FY 2013/14 by the electorate to understand the roles and responsibilities of political leaders and 2011/12 69 100 councillors greatly affected the councillors’ role of contact with electorate because the 2012/13 70 100

electorate had diverse expectations from their 2013/14 80 100 councilors. The (often excessive) financial and social demands discouraged the councilors % change 14 from maintaining contact with their electorate. Trends in Performance

Max Indicator Score Explanatory Remarks Score SCORE-CARD PERFORMANCE Parameter

The score-card parameters are derived from the Rules of Procedure 2 2 mandate of the organs assessed as stipulated in the Membership to ULGA 0 2 The rules of procedure were adopted Local Governments Act. While all the four categories of Committees of Council 3 3 and enforced and Rukungiri District Local Government political staff are although council paid Motions passed 1 3 subscription to ULGA evaluated on their legislative and monitoring functions, they did not take any Ordinances 1 3 actions. The DEC sat the district chairperson, speaker and council are more than ten times assessed against additional roles. and two motions were Conflict Resolution 1 1 passed on maternal and child care and Public Hearings 2 2 enacting the Universal As the political head of the district, the district Primary Education Bill. chairperson is also assessed on their political LEGISLATIVE ROLE Legislative resources 4 4 Council resolved a conflict between Kigezi leadership as well as the initiation of and participation Tea Growers and the Petitions 2 2 community over land in development projects in their electoral area. The as well as petitioning speaker is assessed primarily as a councillor with Capacity building 3 3 Central Government over bad roads in the an additional scoring requirement of presiding over district. and the preservation of order in council. The district Sub total 19 25 council, the highest organ in the district, is assessed against planning and budgeting requirements and in Fiscal Accountability 4 4 providing accountability to citizens. Political Accountability 4 8 There was adherence to the work plans Administrative Accountability 8 8 although these were hindered by a delay in Involvement of CSO 2 2 the release of funds. Council rarely reviewed PAC reports despite Principles of accountability 3 3 the reminders and although local revenue is shared with LLG, the DSC was not functional

ACCOUNTABILITY TO CITIZENS because it lacked two Sub total 21 25 members.

Plans, Vision and Mission 5 5

District Budget 4 4 The district had an approved DDP, CBP Local Revenue 9 11 and REP although there was still no ordinance on local government financial autonomy. Sub total 18 20 PLANNING & BUDGETING

Education 3 5

Health 3 5

Water and sanitation 3 4 A substantial level of monitoring was done Roads 3 4 for almost all the sectors. Agriculture 3 4

FAL 3 4

ENR 4 4 MONITORING SERVICE DELIVERY ON NPPAs Sub total 22 30

ACODE Public Service Delivery and Accountability Report Series No.59, 2015 iii Table 2: Chairperson’s Score-card FY2013/14 Table 3: Speaker’s Score-card FY 2013/14

Charles K. Byabakama NRM Name Henry Ndyabahika

2011/12 44 100 District Rukungiri

2012/13 80 100 Political Party NRM

Constituency Buhunga 2013/14 78 100

Gender M % change -3 Trends in Performance Terms 2

2011/12 64 100 Max Indicators Score Explanatory Remarks Score 2012/13 75 100 Parameter 2013/14 68 100 DEC 3 3

Monitoring admin 4 5 % change -9 Trends in Performance State of affairs 2 2 The chairperson presided over executive meetings and Oversight civil 3 4 presented a report on the state servants Max of the district. However, the Indicator Score Explanatory Remarks chairperson did not take the Score Commissions/ initiative to compose the DSC. 2 2 The chairperson did correspond

Boards Parameter directly with the central government on bad roads in the district. Chairing council 3 3 Central gov’t 4 4

Rules of procedure 9 9 Sub Total 18 20 POLITICAL LEADERSHIP Business Committee 3 3 The speaker chaired council Council 2 2 meetings and convened Records book 2 2 meetings according to a Motions Executive 4 6 The chairperson attended more schedule which was circulated than four council meetings. to councillors for their Motions and bills on service Record of motions 3 3 reference. Bills by Executive 0 7 delivery have been passed including one regarding UNRA and the poor state of roads in Special skills 2 5 Sub Total 6 15 the district.

LEGISLATIVE ROLE Sub Total 22 25 Legislative Function Meetings Electorate 5 5 The chairperson meets his Meetings Electorate 9 11 Issues by electorate 5 5 electorate every month in different sub-counties and The speaker had a also conducts radio talk programme to meet citizens coordinating center 9 9 shows every Wednesday and in his constituency and had Sub Total 10 10 Saturday. a coordinating center at Kyaruyenje Trading Centre in CONTACT WITH ELECTORATE Buhunga sub-county. Sub Total 18 20 Projects Initiated 3 3 Contact with Electorate The district chairperson Communal Projects 2 2 commissioned a number of projects and also signed MoUs NGOs 3 3 with colleges and universities The speaker attended three such as MTAC, and Participation in LLG 4 10 out of four meetings in the Bishop Stuart University to give sub county. bursaries.

Sub Total 8 10 LLG PROJECTS Health 3 7 Agriculture 7 7 Education 3 7 Health 7 7 The speaker monitored at least Agriculture 3 7 Schools 6 7 half of service delivery points, made monitoring reports The chairperson performed well Water 3 7 Roads 7 7 and, in most cases, would under this parameter although make a follow up on issues his performance was found Roads 5 7 raised by citizens and service Water Sources 2 7 wanting in the areas of water providers. However, there was and FAL. FAL 3 5 no evidence that he followed FAL 3 5 up on the roads and water sectors. Environment 4 5 Environment 4 5

Sub Total 36 45 Sub total 24 45 MONITORING SERVICE DELIVERY ON NATIONAL PRIORITY PROGRAMME AREAS Monitoring NPPAs

iv ACODE Public Service Delivery and Accountability Report Series No.59, 2015 Sub Total Sub

0 7 0 7 0 0 0 0 0 45 40 42 37 36 30 33 32 29 32 33 25 18 15 17 19 ENR

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

3 5 1 5 5 0 5 3 3 0 3 0 0 3 0 1 0 1 0 0 0 0 0 5 2 Roads

7 7 7 5 3 7 5 7 5 7 3 7 5 0 0 1 0 1 0 0 0 0 0 7 3 Water 7 7 7 7 3 7 3 3 7 7 0 7 1 3 0 1 0 1 0 0 0 0 0 7 3

Monitoring NPPA Agriculture

7 7 7 3 3 3 3 1 7 7 7 1 1 3 0 1 0 1 0 0 0 0 0 7 3 Education

7 7 7 7 7 7 7 7 1 3 3 1 3 3 0 1 0 1 0 0 0 0 0 7 3 Health

7 7 7 7 7 7 7 6 7 7 7 1 3 3 0 1 0 1 0 0 0 0 0 7 4 Sub county meetings county Sub 6 4 6 4 6 6 6 6 6 4 0 6 6 2 7

10 10 10 10 10 10 10 10 10 10

LLGs Subtotal

8 5 9 9 9 2 5 2 0 2 2 20 18 18 18 18 18 11 18 10 11 15 18 18 11 Office

9 9 9 9 9 2 9 5 9 6 5 9 6 9 9 9 9 2 5 2 0 2 2 9 6 Meeting electorate Meeting

9 9 9 9 9 9 9 5 2 2 0 0 9 9 9 0 0 0 0 0 0 0 0 4

11 Contact with electorate Sub total Sub

2 9 25 16 17 17 21 16 18 15 14 14 11 14 14 11 13 15 21 16 13 21 16 13 15 Special skill Special

0 1 1 0 2 0 0 0 0 0 0 0 2 0 0 0 0 1 0 0 0 0 0 4 0 Motion

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

8 8 8 8 1 8 5 1 1 8 5 1 1 1 8 8 8 5 8 8 8 8 8 8 6 Plenary

8 8 8 8 8 5 5 8 8 1 4 8 8 1 5 5 8 8 5 8 8 1 5 8 6

Legislative role % Change %

9 26 21 58 -9 11 -5 -18 7 -5 15 -22 9 -7 -34 -23 -12 0 -50 -68 -68 -8 2013/14

100 84 83 82 79 74 72 71 63 61 58 54 47 47 47 41 37 36 29 28 23 22 17 17 51 2012/13

100 77 66 68 50 81 65 75 77 57 61 47 60 43 0 44 56 47 33 0 46 69 53 0 51 2011/12

Trends in Performance 100 75 70 61 49 71 46 69 57 53 55 28 22 32 0 34 21 28 15 0 40 42 32 0 39 Terms

2 3 1 1 1 1 1 1 1 1 1 1 1 3 1 1 1 1 2 2 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

Maximum Score Sub-county Sub-county

Ruhinda/ Buhunga PWDs Bwambara Nyakishenyi Buyanja Kebisoni Nyarushanje Western Division Ruhinda Nyakagyeme Eastern & Southern Divisions Western Division Male Youth Eastern Division Bugangari Bugangari,Bwambara Southern Division Youth Nyakishenyi Kebisoni PWD Nyarushanje Nyakagyeme Buyanja Political Party Political

NRM NRM NRM NRM NRM NRM FDC NRM NRM FDC FDC FDC NRM NRM NRM FDC FDC NRM NRM NRM NRM NRM NRM Name Identifiers Helen Kabajungu David Masiko Chris Kagayano Juliet Kabayo Macklean Sabiiti Fudel Begumisa Peter Tuheirwe Benson Karyamarwaki Alex Tumuramye Pheonah Nankunda Jenifer Kiconco Amon K Kanywanisa Christopher Gomwe Fred Kigangi Tumushabe Teddy Frank K Bwesigwa Phyllis Ariho Innocent Ninsima K Frank Adam Muzoora Agnes Kenyangyi Emily B. Kiiza Grace Kaino Dickens Monday Biryomuriwe Average Table 4: Summary performance of Rukungiri District Councillors FY 2013/14

ACODE Public Service Delivery and Accountability Report Series No.59, 2015 v POLICY RECOMMENDATIONS FOR About the Authors IMPROVED SERVICE DELIVERY From the Rukungiri District Council Scorecard Report, Edward Natamba is an Independent Researcher and it is recommended that: the Executive Director of South Western Institute for Policy and Advocacy (SOWIPA) based in Ntungamo. He 1. Central Government considers increasing has worked on the Local Government Councils Score- the budgetary allocation for Rukungiri Local Card Initiative (LGCSCI) since 2009. Government to meet service delivery priorities. Milcah Abasabyona is an Independent Researcher. 2. Rukungiri District Local Government devises She works with Rural, Gender and Development Association (LUGADA). strategies to increase and effectively collect local revenue from the available local resources. Sunday Silver Muhwezi is an Independent Researcher and he also the Coordinator for Rukungiri Civil Society 3. Rukungiri District Local Government intensifies Forum. monitoring by both political and administrative leaders to check shoddy works on service delivery units, especially road works.

4. Rukungiri District Local Government institutionalizes the practice of the production of monitoring reports by the elected leaders.

5. Rukungiri District Local Government includes more capacity building initiatives for council members and elected leaders in 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.59, 2015