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

Mukono District Council Score-Card Report FY 2013/2014

Authors: Edmond M. Owori, Deoson Kigoonya hand manages the technical wing which comprises and Stephen Ssempala several specialized departments that deliver a host of services to a population of about 550000 that grows annually at a rate of 2.6%. This population vis-à-vis the available resources and quality of leadership of

BACKGROUND AND RATIONALE the district greatly determine the level and quality of service delivery in the district. A number of indicators This brief presents findings from the 2013/14 provide a glimpse into the state of service delivery for assessment of Local Government the district. Table 1 shows the level of achievement of under the Local Government Councils’ Score-card the district during FY 2013/14. Initiative (LGCSCI), an evidence based project implemented by ACODE in partnership with ULGA with Table 1: Level of achievement of the district during FY 2013/14 support from DGF. It seeks to enhance the effectiveness Level of achievement of elected leaders in fulfilling their mandate and build Indicators 2013/14 the citizens’ capacity to demand better services. The Sector initiative uses the score-card – an assessment tool - Children of primary school going age (6- 74,724 to facilitate annual performance assessments on the 12 yrs) district council, district chairperson, speaker and Enrolment 74,724 councilors with focus on their roles and responsibilities as stipulated in the Local Government Act (as Pupil Classroom Ratio (PCR) 49:1 amended). Pupil-Teacher Ratio (PTR) 47:1

Pupil-to-Desk Ratio (PDR) 5:1 The rigorous assessment process is guided by a Education -Primary Div 1(10.2%) Div 2.40.7%) deliberate methodology and is conducted by an PLE Performance Div 3. (22.1%) Div 4: (12.7%) assorted team of researchers that is trained on an Div u:(14.4%) annual basis. The process involves: review of key ANC 4th Visit 7784 (28%) district documents, interviews with key respondents, Deliveries in Health Centres 46% consultation with citizens through focus group discussions, analysis of data collected and finally, Total beds - production and dissemination of findings. The Access to Maternity services - findings are compiled into a report and disseminated MMR 423 per 100,000 live births at national and district levels (available online; http:// www.acode-u.org/). Health Care services IMR 57 per 1,000 live births Staffing Levels 84%

OVERVIEW OF MUKONO DISTRICT Latrine Coverage 64% DURING FY2013/14 Km of roads under routine maintenance 1184.51km (planned)

Km of roads rehabilitated 36.30km (planned) Mukono District is managed by the political and technical leadership which complement each other. Km of roads under periodic maintenance 103.94km (planned) The political wing is headed by Mr. Francis Lukooya Proportion of roads in good condition Not known Road Sub-Sector Mukoome, the District Chairperson who works with Construction of bridges None a council of 28 elected councilors, 19 of whom are male and 11 female. Mr. Luke Lukoda on the other Opening up new community roads

ACODE Public Service Delivery and Accountability Report Series No.36, 2015 1 Water coverage 65% per cent of the locally-raised revenue this greatly affects the performance of council. Number of boreholes sunk 15 (planned)

Number of boreholes rehabilitated - b) Limited support supervision and operations

Functionality of water sources 92% repairs and maintenance: There is evident weak support to sectors in terms of effective Proportion of the population within 1km of - an improved water source supervision and inspection, from both the technical and political angles. An audit report Water and sanitation Pit latrine coverage 72.8% indicated that boreholes drilled at UGX Access to safe water - 120,087,849 were found producing unsafe water.

Water source with active water user Construction of staff houses at Namasumbi 52% committee HCII in which UGX 47,135,660 had already been

Number of extension workers per sub- sunk was incomplete and had been abandoned. No information county Overall, poor management and supervision of

Number of service points No information contracts was reported by various assessments, noting that six contracts awarded worth UGX

Agriculture Number of demonstration farms No information 186,283,217 were uncompleted or their works Technical back-up visits No information were abandoned.

Number of instructors 231 c) Issues related to procurement, poor contract Number of participants 2,379 works and accountability: There were concerns FAL Number of service centres - with regard to the slow and bureaucratic

Level of coverage Not known system of procurement process leading to the delayed delivery of services. Findings lacking fiscal planner, Registrar Staffing Level of Titles, District Valuer. indicated interruptions and delays especially in the engineering and construction works. Conduct Environmental monitoring and 13 district-level projects assessment The concern, however, remains the quality of services as reflected in the various sub-counties. Production and update District State of the The District lacks a wetlands Environment Report (DSOER) management plan There were cases of sub-standard work seen in

District Environment Action Plan None the construction of classroom blocks, health centres and sinking of boreholes. Audit findings Preparation of District Wetland Ordinance Not done by the Office of the Auditor General revealed Monitor wetland systems in the district 90 sites (fragile ecosystems) several irregularities.

Establishment of Agro-forestry nurseries - Environment and Natural Resources Produced District Forest Development Plan 1

Prepared Community Action Wetland Plan 1

District Wetland Action Plan Not developed.

FACTORS AFFECTING SERVICE DELIVERY IN MUKONO DISTRICT

As observed from the table, the district has made headway in some areas while performance in other areas is still faced with challenges. These challenges Above: Culvert casting yard initiated by Mukono District for easing are discussed as follows. on roads maintenance in FY 2012/13 and Below is a Drilling Rig Unit procured by the District from Malaysia in FY2013/14 a) Budgetary Constraints: The financial resources available to the district remain inadequate amidst low levels of local revenue collection. During the FY 2013/14, the district had a total of 26,559,803 of which only 999,596 (3%) was local revenue. Mukono suffers the fate of most local governments of narrow tax base and the significant decrease in locally raised revenues by UGX 245m, arose from central government taking over of the lands office and services. Given that council activities are dependent on 20

2 ACODE Public Service Delivery and Accountability Report Series No.36, 2015 SCORE-CARD PERFORMANCE Table 2: District Council Score-card FY 2013/14

The score-card parameters are derived from the 2011/12 78 100 mandate of the organs assessed as stipulated in the Local Governments Act (as amended). While all the 2012/13 67 100 four categories are evaluated on their legislative and monitoring functions, the district chairperson, speaker 2013/14 69 100 and council are assessed against additional roles. As the political head of the district, the district chairperson % change 3 Performance is also assessed on their political leadership as well as Initiation and participation in projects in their Max electoral area. The speaker is assessed primarily as Indicator Score Explanatory Remarks a councillor with an additional function of presiding Score and preservation order in council. The district Parameter council, which is the highest organ in the district, is Rules of Procedure 2 2 also assessed against the core function of planning and budgeting as well as providing accountability to Membership to ULGA 0 2 citizens. Committees of Council 2 3 Council NOT fully paid Mukono District Council comprises 28 councilors, the up member to ULGA Motions passed 2 3 Policy on client charter, Speaker and the Chairperson. The District Council anti-corruption, and graduated tax scored 72 out of 100 possible points. This good Ordinances 0 3 compensation passed performance was attributed to the introduction of Ordinance on sanitation at H/Cs Conflict Resolution 1 1 accountability meetings at sub-county level. The Petitioned NFA for degazetting Namyoya

District Chairperson, Lukooya Francis Mukoome, LEGISLATIVE ROLE Public Hearings 0 2 CFR scored 80 points, while the District Speaker scored 89 A resource centre Legislative resources 4 4 points (Overall Best Speaker). With an average score established with IT facilities. of 69 points, the councilors’ performance reflected Petitions 2 2 constant improvement when compared to the score of 53 per cent for the preceding FY(2012/13). With Capacity building 2 3 76 points, Hon. Jane Mukasa Ssozi of Ntenjeru and Mpatta sub-counties doubled as the best female and Sub total 15 25 also best overall performer, while Hon. Musa Kiggundu Fiscal Accountability 4 4 of Kyampisi sub-county was the best male councillor for FY 2013/14. Notable among the new improving Political Accountability 4 8 Information is councilors were Hon. Isabirye of Nama Sub-county displayed on sub- county notice boards 12 MOUs signed for who performed extremely well in monitoring service Administrative Accountability 4 8 partnership activities delivery and reporting, while his counterpart in Budget conferences attended with different Nakisunga Sub-county, Hon. Ssekikubo also performed Involvement of CSO 2 2 stakeholders well. Client charter displayed at CAOs notice board.

ACCOUNTABILITY TO CITIZENS Principles of accountability 3 3

Sub total 17 25

Plans, Vision and Mission 5 5

Lobbying central District Budget 4 4 gov’t for more funds as graduated tax compensation. BUDGETING Local Revenue 6 11 PLANNING &

Sub total 15 20

Education 3 5

Health 5 5 Efforts were made in Water and sanitation 3 4 all the sectors by the standing committes. Roads 4 4 However committee no involvement in Agriculture 3 4 FAL activities and no reports were received. FAL 0 4

ENR 4 4

MONITORING SERVICE DELIVERY ON NPPAs Sub total 22 30

ACODE Public Service Delivery and Accountability Report Series No.36, 2015 3 Table 3: Chairperson’s Score-card FY2013/14 Table 4: Speaker’s Score-card FY 2013/14

Name James Kezaala Kunobwa Francis Lukooya Mukoome

District Mukono 2011/12 80 100 Political Party NRM

2012/13 80 100 Constituency

2013/14 80 100 Gender Male

Trends in performance % change 0 Terms 3

Max 2011/12 73 100 Indicators Score Explanatory Remarks Score

Parameter 2011/12 79 100

DEC 2 3 2013/14 89 100 Monitoring admin 5 5

% change 13 State of affairs 2 2 Trends in Performance

Attended 5 council sittings Oversight civil 2 4 servants Bills on land recentralization of office by the council being non Max accountable. Indicator Score Explanatory Remarks Commissions/ Score 2 2 Boards Parameter

Central gov’t 4 4 Chairing council 3 3

Rules of procedure 7 9 Sub Total 17 20 POLITICAL LEADERSHIP

Business Committee 3 3 Council 2 2 Chaired 5 council sittings but Program of meetings Records book 2 2 did not delegate any. evidenced on report formats Production of minutes NOT Motions Executive 4 6 developed, Diary and Record of motions 3 3 timely! notebooks in office. Presided over 5 business committees. Issues raised evidenced in DEC Special skills 5 5 Bills by Executive 2 7 minutes Public notification of decisions evidence seen in Barazas to electorate and communities. Sub Total 23 25 Sub Total 8 15 Legislative Function LEGISLATIVE ROLE

Meetings Electorate 3 5 Meetings Electorate 11 11

Public notification of decisions Evidence of meetings with coordinating center 9 9 Issues by electorate 5 5 evidence seen in Barazas to Namataba Town Board, electorate and communities. Nakaseeta Community Polytechnic. Evidence on Sub Total 8 10 CONTACT WITH ELECTORATE circular to sub counties and community meeting. Sub Total 20 20 Projects Initiated 3 3

Initiated a number of projects Contact with Electorate Communal Projects 2 2 including the procurement of drilling machine for the district NGOs 3 5 and making own culverts for Attended 4 sub-county council the district. Participation in LLG 10 10 meetings at Naggojje Sub- county.

Sub Total 8 10 LLG PROJECTS

Agriculture 6 7 Health 7 7

Education 5 7 Health 6 7 Agriculture 3 7 Schools 7 7

Monitored service delivery Water 7 7 Monitored service delivery Roads 6 7 units and made necessary units and made necessary follow up actions apart from Roads 7 7 follow up actions apart from Water Sources 7 7 FAL. FAL. FAL 3 5 FAL 4 5 Environment 4 5 Environment 3 5

Sub total 36 45 Monitoring NPPAs

MONITORING SERVICE DELIVERY ON NATIONAL PRIORITY PROGRAMME AREAS Sub Total 39 45

4 ACODE Public Service Delivery and Accountability Report Series No.36, 2015 Sub Total Sub

9 7 5 6 45 28 33 29 29 21 25 19 21 23 15 21 19 13 13 18 18 15 18 14 15 11 10 14 13 17 ENR

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

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

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

Monitoring NPPA Agriculture

3 3 7 1 1 1 1 1 1 3 1 7 3 1 7 3 3 3 1 1 3 1 1 1 1 1 7 1 7 2 Education

7 7 1 7 5 7 3 5 5 3 3 7 3 3 1 3 1 1 3 1 1 3 1 1 1 1 1 1 7 3 Health

7 7 5 7 5 7 1 5 5 3 3 1 1 3 1 1 3 3 3 3 3 3 1 5 1 0 1 1 7 3 Sub county meetings county Sub 6 6 6 6 0 4 2 0 6 4 6 0 4 0 6 8 4 6 6 6 2 0 0 5

10 10 10 10 10 10

LLGs Subtotal

7 20 18 18 18 10 18 18 18 18 18 18 14 12 18 18 18 14 10 18 18 18 18 14 18 11 14 18 16 16 Office

9 9 9 5 9 9 9 9 9 9 5 9 9 9 9 9 5 9 9 9 9 5 9 6 9 9 5 9 9 8 Meeting electorate Meeting

9 9 9 5 9 9 9 9 9 9 9 3 9 9 9 5 5 9 9 9 9 9 9 5 5 9 2 7 8

11 Contact with electorate Sub total Sub

8 9 9 25 21 15 16 21 16 16 16 16 16 17 17 13 17 16 21 16 12 17 12 18 10 16 16 16 16 15 Special skill Special

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

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

8 1 8 8 8 8 8 8 8 8 8 8 8 8 8 8 4 8 4 8 8 8 8 8 8 8 8 8 8 7 Plenary

8 8 8 8 8 8 8 8 8 8 8 5 8 8 8 8 8 8 4 1 4 8 1 8 8 8 8 1 8 7

Legislative role % change %

5 6 0 0 4 2 0 1

-6 -5 -6 19 11 24 23 18 20 24 17 15 30 -15 -11 -19 -22 -13 -20 -24 -48 2013/14

77 72 69 66 61 59 57 57 57 56 56 54 54 53 52 52 50 50 50 49 49 49 48 47 43 41 36 31 53 100 2012/13

64 64 55 53 64 55 53 66 59 55 62 45 44 64 41 65 56 49 61 63 41 51 45 40 41 40 27 58 53 100 2011/12

36 81 43 54 49 24 18 30 60 45 43 60 37 51 25 39 19 48 27 67 31 33 53 14 33 21

40 100 Trends in Performance Terms

2 2 1 2 1 1 1 1 2 2 2 1 1 1 1 5 1 1 1 1 1 2 1 1 1 1 2 1 1 Gender F F 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

Maximum Score Sub-county Sub-county

Ntenjeru,Mpatta Kyampisi Nama Koome Nakisunga Mpunge Mpatta Youth Seeta Namuganga PWD Nakisunga Seeta Namuganga Kimenyedde, Nabbaale Mukono Cental Division PWD Ntenjeru Kimenyedda Kasaawo Goma Goma Ntunda, Nagojje Mukono Central Divivsion Youth Ntunda Nama,Kyampis Nabbale Koome, Mpunge Political Party Political

NRM NRM NRM NRM NRM NRM NRM NRM Ind NRM NRM NRM NRM DP NRM NRM NRM Ind NRM DP DP NRM DP NRM Ind NRM NRM NRM Name Table 5: Summary performance of Mukono District Councilors FY 2013/14 Identifiers Jane Mukasa Ssozi Musa Kiggundu John Bosco Isabirye Asuman Muwumuza Mubarak Ssekikubo Samuel Okoth Emmanuel Mbonye Lyton Nabukenya Evaristo Kaluuma Annet Nakanwagi Roy Grace Nammayanja Florence Nakamya Kaate Alice Namanda Julius Ddamulira Ssemakula Godfrey Nsubuga Godfrey Musanje Kikulwe Hardson Kiyaga Robison Hussein Mubiru Hajara Nakiguli Lukeman Ssegayi Teopista Galabuzi Anna Lubulwa Rose Babirye Joachim Mukasa Kaweesa Noelina Nabuyange Jamil Kawooya Anuriata Nambi Average

ACODE Public Service Delivery and Accountability Report Series No.36, 2015 5 KEY FACTORS AFFECTING deployment of staff across sectors beginning with the critical ones. PERFORMANCE OF MUKONO DISTRICT d) Effective Coordination between the District and a) Unfulfilling political promises: A good number LLGs: This will ensure effective accountability by of councilors find their expectations have not leaders to the citizens. At the LLGs, it is good been met, hence the seemingly low morale in the practice to share a schedule of council meetings execution of their duties. But most profoundly, with the district to avoid scheduling overlaps poor facilitation emerged as the most critical and clash of activities planned. factor constraining performance, as they could not conduct regular monitoring as well as e) Orientation of District Councilors: Role organize community meetings to account to clarity is key to effective functionality of local their voters. governments. It is imperative that efforts to b) Roles and Responsibilities: There is an apparent orient councilors on their designated roles and failure on the part of some councilors to responsibilities be given due attention. distinguish between the functions of the political f) Improve Civic Awareness and Engagement: and technical arms of the local government. For citizens to effectively hold their leaders c) Challenges to keeping contact with the accountable, they should know what those electorate: It was observed that district leaders should do for them. More emphasis councilors did not have officially laid out plans should be put on using the radio to remind for meetings with the electorate and therefore did communities about the district’s development not conduct formal meetings. The few councilors agenda. that sustained their contact with the electorate g) Improve contact with the electorate: Councilors’ continued to do so during social functions such contacts with the electorate should be improved as church services, weddings and burials. through councilor-community meetings and d) Low levels of participation in sub-county attendance of sub-county meetings. council meetings: It was evidently observed from the study that there was poor performance in regard to the required attendance of sub- county council meetings by district councilors. e) Low civic awareness among community The full report on these findings can be accessed on members: A key finding from the various ACODE’s online information center at: FGDs conducted with communities, as well as http:www.acode-u.org/ interactions with district officials, noted that the majority of citizens were largely ignorant of the mandate of councilors. This in essence meant that councilors were not held accountable by the electorate for their actions while in council.

About the Authors POLICY RECOMMENDATIONS FOR

IMPROVED SERVICE DELIVERY Edmond M. Owori is a Development Consultant with working experience of several years in postgraduate a) Identify and Utilize Local Revenue Source research and consultancy, capacity building and Potential: Mukono District has enormous organizational development support. untapped local revenue potential. The district should increase revenue through popularizing Deoson Kigoonya is an Independent Researcher and the Local Economic Development (LED) agenda. is also the Cordinator of Mukono NGO Forum. b) Strengthen Local Accountability Mechanisms: Stephen Ssempala is an Independent Researcher and Mukono boasts of some initiatives that have been instrumental in championing accountability, and is also the Advocacy Officer with Mukono NGO Forum. these include: accountability meetings by the CAO, Mukono Day led by the RDC, and the public display of leaders’ phone numbers spearheaded by the Chairperson. This should be consolidated c) Recruitment of Staff: The survey revealed significant staff gaps across all departments in the district. Mukono District Local Government should therefore consider recruitment and

6 ACODE Public Service Delivery and Accountability Report Series No.36, 2015