UN Joint Programme on Local Governance and Decentralized Service Delivery in Somalia
JPLG Annual Report 2012
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UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
Executive Summary
In the last year of the first phase of the UN Joint Programme on Local Governance (JPLG), the programme continued to work towards the strengthening of local governance and the enhancement of decentralized services in Somalia. This happened through coordinated work, among central and local governments, the five UN partner Agencies, a range of implementing partners, other development partners, the private sector and communities across Somalia. With the support of its donors, the Joint Programme worked within eight programmatic areas, namely policy formulation for Decentralization, Land Management, Municipal Finance, Local Economic Development, Service Delivery, Social Accountability, Planning and Budgeting and Fiscal Transfers.
One of the most significant breakthroughs of the year was the appointment in October 2012 of the Presidents of Puntland and Somaliland and their respective Vice Presidents as ‘Champions for Local Governance’. These nominations helped advance the local governance reform process and further discussions on decentralization of services while raising the JPLG profile. Under their leadership, inter-ministerial meetings were called and action points taken to develop decentralization policies and start piloting basic devolution of services in 2013 (See Section 1.1).
At the policy and regulatory level, the Joint Programme supported a number of Ministries in developing policies, standards, regulations and guidelines. In Somaliland, a ministerial decree was passed in May 2012 to adopt an Automated Accounting system that is based on Municipal Finance and the Automated Information Accounting System (AIMS), which was developed by JPLG. Further, findings and recommendations from sector studies in Education, Heath, Water, Roads and Natural Resource Management that were conducted to assess the opportunities and capacities of key sector ministries and central authorities were discussed with respective sector ministries. These discussions were geared towards initiating design pilots and service agreements based on emerging policy, institutional, legislative and regulatory issues among the different sector ministries on the assignment of functions across tiers of government.
Capacity Development has always been a cross-cutting priority for JPLG and in 2012 the programme supported capacity for a range of stakeholders from the communities, district departments, councilors, women groups, private contractors, line ministries and other central government institutions. At the district level, JPLG has for instance supported capacity for participatory and strategic planning, transparent financial management and procurement, effective public works project delivery, and equitable delivery of basic services, as well as for fiscal transfers (see Section 2). As in previous years, the Joint Programme also contributed, through training, to enhance community participation and social accountability, local leadership, conflict management and gender in local governance. During the formulation of the District Annual Workplans, JPLG piloted spatial planning and sector planning inputs aimed at improving the quality of district plans and enhancing the use of resources while building a stronger link between local plans and central/sectoral ones. With regard to fiscal transfers, JPLG continued to use the modality of the Local Development Fund (LDF) which has resulted in dialogue and more ownership by both local and central governments in fiscal transfers for decentralized service delivery. This led to increased contributions from local governments as well as a pledge from Ministry of Finance (so far in Somaliland) to increase their contribution by 5 percent.
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Considering the importance of Local Economic Development (LED), JPLG supported the development of district LED strategies through LED forums guided by local economic assessments, enterprise and labour market surveys which provided local economic profiles. The strategies contain action plans with local priority projects. During 2012, four districts made significant progress towards meeting the minimum conditions for accessing LED pilot grants and at the same time one district (Bossaso) raised their own funding (about 60%) for construction of a market prioritized by the community (See Section 1.4).
Improving Local Revenue Generation remains a key area of focus for JPLG and support interventions directed towards better Urban Land Management and property taxation (mainly using the GIS Property Databases that were undertaken in Puntland and Somaliland). In Hargeisa, the introduction of the GIS and BIMS (Billing and Information Management System) helped increase property taxes from USD$ 169,062 in 2005 to USD$ 795,000 in 2012 (see Section 1.3). Districts have started to use their own revenues (i.e. local tax and community contributions) to extend LDF projects.
With regard to Social Accountability, JPLG worked on enhancing transparency, accountability and responsiveness of local governments through engagement and dialogues in the form of civic education, participatory planning and monitoring, and public feedback meetings. JPLG further provided technical support to a draft policy guide for community engagement on local planning and social accountability with the Ministries of Interior in Somaliland and Puntland and the Local Governments. In 2012, the programme strategy for civic education was revised to focus more on issue-based and interactive discussion sessions. The strategy has also been adopted by the complementary CDRD Programme and is being used in their programme (See Section 1.6).
On Gender Mainstreaming, JPLG supported the Ministry of Labour and Social Affairs (MoLSA) in Somaliland by providing advocacy to increase the number of women candidates for the local elections in November 2012. MOLSA also conducted trainings targeting women leaders and political parties to increase the membership of women. Through its focus on Social Accountability, JPLG also designed the Public Feedback meetings in a way that ensured women participation while working towards ensuring that women are represented in village committees and community monitoring groups (See Section 5). In regard to Public Works, about 20% of the contractors on JPLG projects are women and also all LDF funded projects aim at equal participation in planning, implementation and subsequent access to service delivery.
In regard to Conflict Analysis and Risk Management, JPLG carried out a risk assessment in the new districts {of which there were 4 districts (Gabiley, Jariban, Eyl and Banderbeyla) in 2012} to assess conflict sensitivity, local capacities, security and access for JPLG interventions. A conflict analysis was also conducted in these new districts before rolling out the Civic Education programme. This will help assure that the “do no harm” principle is adhered to in the implementation phase. This was for instance linked to the pitching of education messages and the media strategy. Further, JPLG’s community consultations involved conflict sensitivity tools ensuring review and participation of vulnerable groups of the population. In addition, the JPLG project appraisal tool and feasibility studies allowed analysis of potential risks during and after implementation.
In the second half of the year, the political and security developments that took place in the Southern and Central regions of Somalia resulted in the establishment of a new Parliament, the election of a President and the nomination of a Federal Government. These developments provided the opportunity for the Joint Programme to engage with the new government and reaffirm JPLG’s strong commitment to support the new institutions. As a result, JPLG started activities with the Federal Governments’ Ministry of Interior and agreed to work in newly recovered areas under a government-led local governance programme. Activities were also expanded in support to the Municipality of Mogadishu (i.e. urban planning, procurement, business
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licensing and community consultations). In Adado, a town about 400 km north of Mogadishu, the first District Development Framework (DDF) and District Annual Workplan was developed with JPLG’s support and a first batch of service projects was initiated (i.e. school construction, waste management and garbage disposal).
2012 was also the year of the formulation of the second phase of the JPLG Programme Document (2013-2017). This was led by an international team of consultants, the analysis and formulation process started in April and ended in December 2012, through intensive consultations with Joint Programme stakeholders and beneficiaries in Somalia as well as with UN partner Agencies, the UNRC, Embassies and Donors in Somalia and Nairobi. The five year Programme Document was approved in December 2012, with an estimated total cost of USD$ 145M.
At the programme management level, during preparation of the 2013 AWPBs, JPLG strengthened their Result Based Management (RBM) framework. As an example, annual results (milestones with baselines and annual targets) were discussed and agreed during the September 2012 review meeting between the UN Agencies and Somali counterparts. In terms of budgeting, to avoid a substantial budget gap, Governments and the five UN partner agencies agreed to a more rigorous budgeting process for the 2013 AWPBs, that includes a comprehensive peer-to-peer review process, the introduction of a budget forecast (including donor contributions) and the use of standardized ceiling costs for operations. In 2012, two national M&E officers were recruited and posted in Hargeisa and Garowe and they have contributed to strengthening the Joint Programme’s M&E system and also shared information and identified lessons learnt and best practices. Four stories were posted on the JPLG website (www.jplg.org) which continues to provide regular updates on the Joint Programme as well as on the status of implementation of all the LDF contracts awarded in the districts (See under Programme Management in Chapter 6).
As in the past, oversight and coordination/information meetings were conducted as planned. In 2012, the Annual Workplan and Budget Review meetings were organized in March and September. It should be noted that for the first time, it was agreed for the Steering Committee meetings to be held in Somalia, namely in Mogadishu, Garowe and Hargeisa. in addition, , three donors meetings were conducted further to bilateral donor consultations that the PMU and TWG members held. The Senior Programme Manager also chaired three Programme Management Meetings (PMG’s) with the Heads (and/or Deputy Heads) of the five UN participating Agencies; and regular Technical Working Group meetings (TWG) were conducted with the five Project Managers and the PCU. In 2012, the JPLG team (excluding staff based in Somalia) conducted 1,036 mission days across Somalia (See table attached in Annex 5).
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Abbreviations and Acronyms
AA Administrative Agent ALGAPL Association of Local Government Authorities Puntland ALGASL Association of Local Government Authorities Somaliland AWP Annual Work Plan CDRD Community Driven Recovery and Development Project CMG Community Monitoring Groups DBF District Basket Fund DPPB District Participatory Planning and Budgeting Process DC District Council ILO International Labour Organisation JPLG Joint Programme on Local Governance LDF Local Development Fund LED Local Economic Development LG Local Governments LLM Local Leadership and Management LOA Letter of Agreement MC Minimum Conditions (LDF) M&E Monitoring and Evaluation MgOA Magistrate of Accounts MOI Ministry of Interior MOF Ministry of Finance MOFASD Ministry of Family Affairs and Social Development (Somaliland) MOSS Minimum Operational Security Standards MOU Memorandum of Understanding MOWDAFA Ministry of Women Development and Family Affairs (Puntland) NGO Non-Governmental Organisation OES Outcome Evaluation System PCU Programme Coordination Unit PIM Participatory Impact Monitoring PL Puntland PMG Programme Management Group RC Resident Coordinator RDP Somali Reconstruction and Development Programme RSL Recovery and Sustainable Livelihoods Programme of UNDP SL Somaliland SC South central Somalia TOT Training of Trainers TWG Technical Working Group UN United Nations UNCDF United Nations Capital Development Fund UNCT United Nations Country Team UNDG United Nations Development Group UNDP United Nations Development Programme UN-HABITAT United Nations Human Settlements Programme UNICEF United Nations Children’s Fund UNSAS United Nations Somalia Assistance Strategy USD United States Dollar VC Village Committee
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Map of JPLG Target Districts
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TABLE OF CONTENTS
PART 1:
EXECUTIVE SUMMARY ………………………………………………………….………………………………………… 2
ABBREVIATIONS AND ACRONYMS……………………………………….…………………………………………… 5
MAP OF JPLG TARGET DISTRICTS…………………………………………….……………………………………….. 6
QUOTES FROM LOCAL BENEFICIARES……………………………………………..………………………….………9
CHAPTER 1 THEMATIC AREAS……………………………………..………………………………………………10
CHAPTER 2 CAPACITY DEVELOPMENT………………………………………………………………………..28
CHAPTER 3 CONFLICT SENSITIVITY AND RISK MANAGEMENT …………………………………….34
CHAPTER 4 VALUE AND EFFECTIVENESS FOR MONEY……………………………………………….. 35
CHAPTER 5 GENDER MAINSTREAMING……………………………………………………………………. 37
CHAPTER 6 PROGRAMME MANAGEMENT……………………………………………………………….. 38
CHAPTER 7 CHALLENGES AND LESSONS LEARNED… …………………………………………………….41
CHAPTER 8 RESOURCES AND BUDGET DELIVERY AGAINST TARGET……………………………. 46
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PART 2:
ANNEX 1 RESULTS AND INPUTS AND ACTIVITIES UNDERTAKEN………………………...... 54
ANNEX 2 STATUS OF 2011 LDF INVESTMENT PROJECTS…………………………..……………….83
ANNEX3 STATUS OF 2012 LDF INVESTMENT PROJECTS…………………………………………..89
ANNEX 4 HUMAN RESOURCES…………………………………………………………………………………92
ANNEX 5 JPLG MISSIONS TO SOMALILAND, PUNTLAND AND SOUTH CENTRAL SOMALIA IN 2012……………………………………………………………………………....94
ANNEX 6A INDICATOR DATA SOMALILAND……………………………………………………………….97
ANNEX 6B INDICATOR DATA PUNTLAND …………………………………………………………………115
ANNEX 7A TRAINING DATA SOMALILAND………………………………………………………………...131
ANNEX 7B TRAINING DATA PUNTLAND……………………………………………………………………..137
ANNEX 7C TRAINING DATA SOUTH CENTRAL SOMALIA……………………………………………..144
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Change in leadership attitudes in Bandarbeyla district, Puntland
Following the end of a civic education training for women’s groups in Bandarbeyla district in Puntland, Habiba Jama said, “The workshop has enhanced our self-confidence and sense of responsibility for the sake of our community.” The Mayor of Bandarbeyla district, Said Aden Ali, mentioned that he had experienced a significant increase in the interest and willingness of the community to engage with the local administration from the start of the civic education workshops and community dialogues. The Mayor appreciated the rapid improvement that JPLG has made in the community, particularly how it has enlightened the people about their obligations and rights with regards to the protection and access to public property.
JPLG shows results on civic education in Somaliland in the last two years
In the little known village of Halane in Borama district, we find Amina Abdi a community activist who has been working for the community for more than two years. Dressed in her cultural linen, Ms. Amina smiles, when meeting with consultants working for the JPLG.
“I remember when you first came here, many people were skeptical and they were very shy to question a person in authority, but today a group of women visited the Mayor seeking to know what has been done with the tax money they pay,” she says. Halane is one of the remote villages in Borama district, which is approximately 4 hours’ drive, through very rough terrain, from the regional capital of Hargeisa.
Interview with a Businesswoman in Garowe, Puntland
In Garowe, USD$ 150,000 was required for the construction of Sheikh Abdelkadir tarmac road which was the first tarmac road built since the collapse of the Somali central government. From this amount, the local community contributed USD$ 27,000.
Rukia Mohamed, a local businesswoman has recently re-opened her shop along the reconstructed road. She told district officials that her business was undermined by inaccessibility and road blockages. “I suffered from economic deficiency in the past decade due to lack of income sources” she added. She also said that the inauguration of the new road will significantly contribute to the livelihoods of thousand households as it creates business opportunities for the female population. Now, business activities are booming considerably and I earn more-than-enough ‘thanks to Allah’ she concluded.
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The district of Bossaso uses local revenues and the procurement system designed by JPLG for other (non LDF) projects
In Bossaso, the District added USD$ 67,000 to the LDF allocation to tarmac a gravel road and improve access to services and business opportunities. The District also used the public procurement process developed by JPLG for its other local projects.
CHAPTER ONE: THEMATIC AREAS
1.1 Decentralization Policy
In Somaliland, as in Puntland, one of the crucial developments is to conduct Sector Studies, which will provide the functional analysis which is a prerequisite for determining a decentralization policy and will assist in identifying which functions would best be carried out at either a central, regional or district level. It seems that there is still a large measure of skepticism about the rationale and potential for decentralization of services and what is openly being argued by respondents from line ministries, is the lack of resources in all levels of government with the underlying issues/position being the reluctance to devolve powers. This again shows how important it will be for those who support it to have a ‘decentralization champion’ at the highest level of government to drive whatever initiatives will be necessary in achieving a meaningful decentralization of service delivery (JPLG Outcome Evaluation Somaliland 2012, page 9, section 3.2).
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Further, a key observation being made by a study in Puntland is that many of the regional and district structures of the vertical ministries are either under-staffed or not staffed at all. The Social Affairs Departments in the District Councils (responsible for education, health and water services according to Law No.7), have limited and/or no operational capabilities in many districts. Therefore, an important focus of the assessment is on sector strengthening at both regional and district levels. The private sector plays a critical role in all three sectors. In all cases, the leading role of the private sector, and the role of the Diaspora, can be better leveraged (JPLG Outcome Evaluation Puntland 2012, page 9-10, section 3.2).
As a cross cutting priority for JPLG, the programme in 2012 continued to advocate for decentralization as a pivotal element of the governance reform process across Somalia. Building on the results achieved during the last four years, the Joint Programme supported line ministries in institutionalizing some of the local governance systems and policies that were initially developed and piloted at the local level (see next section). In May 2012, the promulgation in Somaliland of a Decree on an Automated Accounting system for local governments is an example of how central government has used and adopted a tool developed by JPLG.
The Joint Programme also worked towards supporting the Federal Government and the Governments of Somaliland and Puntland to formulate draft decentralization policies to drive their local governance reform processes and help ensure that the essential elements of accountability, transparency, participation, equity and allocation of resources are addressed over the next few years to enhance the delivery of local services and improve local governance. In this context, JPLG has increased its consultation with a range of core ministries (MoI, MoF, MoP, etc.) and has also directly engaged with the Presidents and Vice Presidents of Somaliland and Puntland. Through these new relations, the highest levels of government in Somaliland and Puntland have recognized the importance of local governance and committed themselves to supporting the reform process. Agreements were reached on the need to formally establish Inter-Ministerial Working Groups under the leadership of the Vice-Presidents, and the provision of secretariat support through the MOI. Since then, the two Vice-Presidents have taken the initiative to call and chair Inter-ministerial meetings to discuss local governance issues and decentralized service delivery. The Vice-President of Somaliland, the Chief of Cabinet of the President’s Office of Puntland and the Mayor of Mogadishu (who heads the Benadir Regional Administration) also attended a global event on local governance (in Dakar, November 2012) sponsored by JPLG.
Fiscal Decentralization is another key element of the on-going discussions on decentralization policies. While the Local Development Fund (LDF) initiated by JPLG laid the foundations and helped introduce (and pilot) basic fiscal transfers; fiscal decentralization cannot be restricted to the LDF alone and requires the development of a comprehensive roadmap to guide decentralization in Somalia, and also should address issues related to allocation formulas, local revenues, tax, fiscal transfer and sectorial grants. In this context and in coordination with the work conducted in terms of administrative decentralization, JPLG initiated consultations with the central Governments (MoI and MoF) in both Puntland and Somaliland, who agreed to review the LDF lessons learnt and consider options to respond to fiscal decentralization requirements which also need to be aligned and coordinated with the wider Public Financial Management (PFM) reform process that is now taking place.
1.2. Land Management
In regards to land management, transfer of authority means that local government must have the capacity to manage land and deliver titles. Such capacity brings land management closer to the people and gives them the chance to benefit from the rights the land law provides. Hence, land is a very important asset to local government, generating significant financial resources through
11 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report sustainable land management and taxation. Weak land governance can discourage investments in land and sustainable resource use, and may contribute to the emergence of conflict, ultimately affecting broad-based economic growth.
In Somaliland and Puntland, access to and use of land and land resources are still widely seen as clan issues and are a regular source of conflict. Additionally, the resolution of land disputes is problematic mainly due to a plural legal system. The main application of sharia property law is found in inheritance matters, while most land disputes are subject to customary law courts whose decisions are non-robust and depend on mutual consent by disputing parties. Statutory land law is only considered as a last resort. Under these circumstances, many land disputes remain unresolved, turn violent, and have the potential to spur widespread conflict.
In 2012 and as described in the sections below, JPLG continued to support Somaliland and Puntland in the process of developing land policies, establishing a legitimate land and urban management institute, building capacity of the land dispute tribunal and providing support to land management through the development of the Geographical Information System database. The Hargeisa Land Dispute Tribunal has for instance helped create an environment for solving conflicts and created better opportunities for the JPLG interventions in service delivery and capacity building for the local government and communities.
Land Policy
For Somalia as is in any other country, a comprehensive and coordinated land policy is a major factor in national development. The absence of a comprehensive and enforceable land policy and land law coupled with a weak institutional framework has made land management in Somalia a complicated process. As a good governance tool to help mitigate local conflicts and enhance service delivery, JPLG is advocating for the adoption of a Land Policy that is a transparent system for the allocation of different types of land use such as for economic development, human settlements and also for local service delivery, which in turn contributes to socio-political stability, poverty reduction and peace building.
This is why in 2012, JPLG continued to advocate for the formulation of land policies in Puntland and Somaliland to secure rights over urban land and provide for sustainable growth, investment and the reduction of poverty in line with the Government’s overall development objectives. In Somaliland, the discussion on the development of a land policy continued through bi-lateral meetings with stakeholders and the Issues and Options Paper for Land policy development was discussed at the Land Reform Session of the Cabinet Meeting in October 2012. The process will continue in 2013 with the objective of having a final land policy enacted. In Puntland, the Action Plan for Land Policy Development was drafted by the Land Secretariat with support from JPLG, and approved by the Ministry of Public Works and Transport to proceed with further land policy development in 2013.
It should also be recognized that land issues and the development of land policies cannot be solely addressed by JPLG and that consensus building and time are required over the next few years to help central and local governments and other stakeholders develop a framework of policies, laws and regulations related to land governance.
Land Dispute Tribunal (LDT) and Land and Urban Management Institute (LUMI)
JPLG continued to support the capacity development of the Hargeisa Land Dispute Tribunal (LDT) through training (on roles, responsibilities, accountability structures, strategic plan and approach to institutionalization of the LDT) and awareness-raising about administrative procedures on land disputes resolution. A draft LDT manual/guideline was produced with plans to have the final one circulated in 2013. In Puntland, following discussions with the Ministry of Interior and the Chief- 12 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
Justice of the Supreme Court, it was agreed that consultations on establishment of land dispute tribunals for Puntland should commence in 2013 with all relevant stakeholders.
Further attempts in Somaliland to institutionalize the establishment of a Land and Urban Management Institute (LUMI) were made in 2012. LUMI was designed to be a national and semi- autonomous institute that provides technical support to the implementing agencies of state policies on spatial planning, development, control and support the improvement of land tenure security and resource mobilization through property taxation. One of its expected activities is to assist central and local governments in managing urban, rural and regional areas to increase the access to equitable land resources through a balanced spatial allocation and distribution of activities and services. LUMI is expected to be a leading research and training institute of Somaliland in the land and urban sector, establishing networks and sharing capacity with other research institutes in Somaliland and abroad. However, the ambiguity in the Somaliland law required to support the establishment of LUMI has resulted into some delay in the process of institutionalizing it. The plan is therefore to revisit the law and take necessary actions to resolve the ambiguity and have a fully functional and autonomous Land and Urban Management Institute in 2013.
Geographical Information System (GIS)
The processes of land administration include the transfer of land rights, regulating of land and property development, land use and conservation, gathering of revenues from the land (through sales, leasing, and taxation) and resolving of conflicts concerning ownership and use of land. Somalia lacks the information and institutional set-up that guarantees accuracy and efficiency in tax collection and use through investing in the improvement of basic facilities. The main challenge in such a data-poor environment is to develop a system which can be made operational quickly and which will start generating revenues in a short time.
The GIS database developed in many districts (both Puntland and Somaliland) with technical support from JPLG includes key property characteristics such as building quality, infrastructure and number of occupants, as well as a photo of each property. The property database also includes spatial data, with each property located and geo-referenced into a GIS. The GIS system can later be updated into a land cadastre.
The installation of a GIS database and various technical support and trainings provided over the years including in 2012 to municipal GIS departments and to municipal staff in charge of revenue has led to better understanding and use of the GIS database, increased taxable properties, efficient billing (bills are now produced on time and with improved distribution) and consequently resulted in increased revenue and available funds for improved service delivery. For example, before the installation of the GIS database system in Borama, Somaliland, the revenue department in the Municipality was only collecting tax from 7,600 registered properties but after the property survey a total of 15,494 properties were captured. Also in Gardo Municipality, Puntland, the revenue department in the Municipality was only collecting tax from 2,000 registered properties and after the property survey a total of 5,384 properties were captured. Similarly, in Berbera Municipality, Somaliland, the registered properties were 3,000 but this increased to 7,107 after the GIS property survey. In addition to increasing the numbers of taxable properties, the administrative boundaries were delineated leading to ease in the distribution of bills as each house is mapped.
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1.3. Municipal Finance and Revenue Generation
Through AIMS and manual book entries for MoF, AIMS is expected to improve accuracy/reliability and timeliness of reports. (JPLG, Outcome Evaluation, Somaliland 2012, page 26).
There is an increased emphasis on local government as the delivery agent for key basic services including: water, sanitation, primary health care, housing, economic and community development. However, the devolution of service-delivery responsibility poses significant difficulties for local government if it is not coupled with sufficient financial resources, greater autonomy and increased capacity. The decentralization of expenditure responsibilities to local governments without adequate revenue sources compromises the ability of local governments to provide services and puts pressure on municipal finance. As is in other developing countries, revenues of Municipalities in the Somali regions have not kept pace with the increased expenditure requirements. The amount of funding available to local governments is an important determinant of the quantity and quality of services that they will be able to provide.
Municipal Finance is a cornerstone in Public Financial Management (PFM) and JPLG has provided support to districts to establish Municipal Finance systems since its onset. One of the milestones in 2012 was the adoption of a decree in Somaliland for Accounting and Budgeting Systems developed under JPLG providing the government with systems that are transparent (as mentioned above under 1.1).
In 2012, JPLG supported the strengthening of municipal financial management in districts at the Magistrate of Accounts and the District Oversight Department of the Ministry of Interior through capacity building in financial planning, budgeting, accounting, balancing of revenues and expenditures, and determination and collection of municipal rates, fees and licenses.
By 2012, the AIMS and BIMS were implemented in the districts of Boroma, Berbera, Burao, Gabiley, Hargeisa, Odweyne and Sheikh in Somaliland, while in Puntland, this was implemented in the districts of Bossaso, Gardo and Garowe, including the District Oversight Department of the Ministry of Interior and the Magistrate of Accounts in both regions. The automated accounting component of the System (AIMS and BIMS) is linked to the property taxation activities and business licensing.
All districts where AIMS and BIMS are operational have benefited tremendously, with AIMS and BIMS having improved the capacity of the districts, not only in their ability to use an automated accounting system, but in improved accountability, better financial reporting and most importantly having facilitated improved revenue collection and provided funding for increased and improved service delivery. For example, the Hargeisa Municipality experienced, after the introduction of AIMS, BIMS and the GIS-based property database, an increase in municipal revenue, particularly, property taxes from USD$ 169,062 in 2005 to USD$ 795,000 in 2012. Similarly, Borama Municipality revenue department in 2004 collected property tax amounting to USD$ 5,000, USD$ 59,524 in 2007 and USD$ 209,765 in 2011
In addition JPLG is supporting public administrative and public financial management reforms towards improving local government finances, financial management and performance in service delivery. In 2012, with support from JPLG, a roadmap towards the development of a municipal finance policy was produced.
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1.4. Local Economic Development, Procurement, Business Licensing and PPP’s
Localities are best placed to understand the drivers, opportunities and barriers to local growth and prosperity and as such should lead their own development. District councils have a constitutional mandate to undertake local economic development (LED) and accordingly must exercise powers and functions to create an enabling environment for business and employment creation. In realizing this objective, district and municipalities should provide leadership in building partnerships for diverse actors interested in local economic development, promote local business development through an enabling regulatory environment, provide incentives (fiscal, land development, marketing) to attract private investment, coordinate and fundraise for LED projects and ensure quality of public infrastructure and service delivery. The JPLG strategy has been to support target districts to undertake a strategic local economic development planning process as part of the overall preparation review and update the District Development Framework. Through the process, the skills, experiences and resources from a range of local stakeholder groups are brought together to reach agreements and take decisions to make the economy grow and create income opportunities for more people, especially for the poor and marginalized. Initial support is provided to the target districts to undertake local economy assessments and enterprise surveys to gather data on the local economy. These allow the assembly of key economic data and indicators including on the economic sectors, relationships and activities, labour market, and other data that help to identify the strategic direction of the local economy. In 2012 this was completed in the new target districts of Gabiley, Jariban and Bandarbeyla.
During 2012, four pilot districts (Burao, Berbera, Garowe and Bossaso) were further supported to engage in a facilitative role in public private dialogues, bringing together key economic actors, stakeholders and beneficiaries including women, youth, elders and marginalized groups, to discuss the local economy, establish LED Forums and jointly develop the district Local Economic Development Strategy. The district staff and LED forums received training on the LED process and facilitation support leading the LED Forums through the drafting and finalization of constitutions, registration through the Ministry of Planning and opening of bank accounts (which are some of the minimum conditions for accessing LED pilot grants). The Forums were supported in hosting public private dialogue (PPD) forums bringing together the full range of stakeholders involved in the local economy including line ministries such as Planning, Chambers of Commerce and the local councils among others. The dialogues were guided by the local economy assessments, the local enterprise surveys and labour market surveys that the JPLG supported, which provided an economic profile and analysis covering key aspects i.e. local resources including labour, infrastructure, institutions, key business and economic sectors and factors/bottlenecks therein. The dialogues thus provided the platform to take stock, analyse and agree on the key economic opportunities and potential of their localities as well as the threats and weaknesses. This led towards agreement on priorities and the drafting of local economic strategies with action plans including priority projects. The district LED strategies provided the strategic framework for local economic development and within this an overall plan that has short, medium or long-term goals and actions. The strategies establish an agenda to promote and develop a local community’s economic, physical, social and environmental strengths and address challenges and opportunities, as well as a tool to mobilize resources. The LED strategies will be integrated into the district development frameworks during the review of the DDFs, and were used to inform the 2013 AWPB process
The districts realized successful efforts in fund mobilization, particularly in Bossaso, where the private sector and community committed to co-fund the priority market construction project and raised USD$ 40,000 (total market cost is USD$ 70,000). In other districts, in-kind contributions were made, for instance, in Burao, a private company sponsored the LED Forum launch and in Garowe, the district council offered office space rent free for the LED offices.
A number of challenges were faced during this process: varying levels of interest, ownership and commitment to the process have been witnessed which slowed initial momentum. However in some 15 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report districts there was extremely strong ownership. The risk of elite capture by a few was a risk mitigated by ensuring broad stakeholder representation. Through this piloting process, the LED Process Guidelines and toolkit produced by the JPLG were revised and enhanced taking on board the lessons learned and adapting it to the local context in Somaliland and Puntland.
Local government procurement
Over the last four years, JPLG has supported the Somaliland and Puntland administrations in developing a local government procurement framework based on the principles of transparency, accountability and value for money. This involved the development and endorsement for use by local governments of a set of procurement guidelines, development of training modules based on the guidelines, setting up of requisite procurement structures, training and mentoring the local administrations in undertaking procurement actions in accordance with these guidelines in the target districts. The training is targeted towards all actors in the procurement process from the councils who play an oversight role, to the district administrations with executive responsibilities for the procurement process. The approach to capacity development has been to partner with local institutions, such as the Civil Service Institute (CSI) in Somaliland and KAALO and PIDAM in Puntland establishing their competency to deliver procurement training to the local governments through formal training of trainer (TOT) courses followed by regular refresher TOT training courses informed by lessons from practice.
In 2012, CSI, KAALO and PIDAM LG Procurement Trainers who act as district mentors received refresher training and were deployed to the target mature districts to provide refresher training to all the procurement actors in the districts informed by the shortcomings and weaknesses defined during the LG procurement audits.
To assess compliance with the LG procurement Guidelines and competence of all actors in the LG procurement process, JPLG undertook a LG procurement audit in 2012. This was preceded by the preparation of a toolkit on LG procurement audit procedures and training of the Audit General and District Internal Audit officers who were to participate in the audit process as part of the learning process. The audit covered the 2011 procurement actions and checked compliance, identified areas of non-compliance and capacity gaps as the basis for making improvements in the future. It also made recommendations to ensure compliance and that the procurement process is carried out transparently, efficiently and with economy in mind.
Procurement audits were conducted in Garowe, Gardo and Bosasso in Puntland and in Odweine, Borama, Sheikh and Burao in Somaliland. Among the interesting aspects of the audit was the involvement of staff from the Office of the Auditor General in Puntland as a way of skills transfer on how to conduct the audits. Further, when comparing the results of the audits for the year 2011 with those of the year 2010, there is significant improvement in terms of compliance with procurement guidelines. This reflects the fact that there has been a general increase in knowledge and acceptability of the procurement guidelines.
During 2012, JPLG also undertook to review the LG procurement guidelines and training modules through a process that was informed by the outcomes and findings from the 2012 LG procurement audits, to ensure alignment with the newly revised District Planning and Budgeting Guidelines which were revised in 2011 and to align and harmonise the format of the training modules to that of the revised PEM modules.
Contractor registration
The construction sector plays an important role in the economy of Somaliland and Puntland not only in terms of income generation and creation of employment but also it accounts for the bulk of investment in all reconstruction and development. The sector represents the second most important
16 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report economic sector after the food/non-food trade and the services sector1. The construction industry in Somaliland and Puntland are likely to continue to grow even further as confidence is gained with improved stability levels and as the governments direct their efforts to rehabilitation and construction of new infrastructure as outlined in their National Development Plans, which identify infrastructure development as one of the priority sectors. The growing confidence and willingness of development partners, local and diaspora private sector to invest in infrastructure and other economic projects is also contributing to the growth of this industry. All these developments are leading to increased competition as well as increased risks both to the companies as well as to the clients particularly as the industry is not well regulated. The risks could include inhibiting the growth of small companies due to unfair competition with large firms, creating unequal opportunities to access jobs, safety risks (occupational health risks) to employees and the general public, etc. For example, currently open invitations to tender are issued to all registered contractors even in cases of minor works that could be done, through a targeted procurement process, to small contractors, if a contractor categorization system existed. This hampers the growth of small contractors and leads to under- utilization of plant and equipment owned by large contractors and problems retaining good staff. Further, the absence of regulation of the contractor’s performance leaves the users of their services at risk in for example a situation where a contractor takes advance payment and disappears without executing the works, an occurrence already witnessed across Somaliland and Puntland. It is against this background, that the Puntland and Somaliland governments are seeking to improve and develop a fair and transparent system of contractor registration, that would provide a regulatory and development framework for the industry, facilitate growth of contractors, enhance their performance, facilitate risk management and give contractors an opportunity to access jobs in a fair and transparent manner.
In 2012 an initial assessment was completed on the existing system of registration of contractors both in Puntland and Somaliland which identified the following key issues: Poorly defined legal and institutional framework for registration, regulation and promotion of contractors, inadequacies in the criteria for contractor registration which inhibit regulation, lack of contractor classification system in Puntland (in Somaliland where a classification system exists there is lack of various contractor disciplines such as electrical, mechanical, building, etc. nor does it provide tendering thresholds for each class),there is no mechanism for monitoring and enforcing compliance with the requirements for registration including procedures for up/downgrading the status or de-registration of contractors, weak manual systems for register maintenance, updating and for accessing of information in the register.
The review proposed the way forward towards the development of an effective system of registration, regulation and promotion of contractors which include: undertaking a survey to gain a better understanding of the industry in terms of access to plant/equipment, financial capacity and access to finance, technical skills/competence of personnel, opportunities, challenges and constraints facing the contracting industry; the preparation of draft legislation to establish the legal and regulatory framework for contractor registration and promotion; the design and documentation of the registration scheme, and drafting of a code of ethics and practice for contractors with a view to ensure compliance and professionalism within the industry with the ultimate purpose of realizing value for money. These activities are currently ongoing.
Labour standards - Occupational Safety and Health in the construction sector
As stated in both Somaliland and Puntland, the construction industry provides one of the main sources of wage employment for those with little education or training. However, it is also one of the most dangerous industries to work in. It is an industry where informal day labour is often used leaving workers without a formal framework on which to base protection of labour rights and
1 According to the Hargeisa Urban Household Economy Assessment (2003)
17 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report exposing them to further risks. On-site practices in Somaliland and Puntland are simply inadequate. In addition to the risk of an accident, the health of construction workers is very likely to be affected by exposure to dust, noise, vibration or chemicals, the effects of which may take many years to develop. Given the importance of the construction sector to the urban economy in Somaliland and Puntland, JPLG with the respective labour ministries responsible and MOI, initiated works towards the establishing of a code of practice for health and safety in the construction sector, whilst talking into account the need for a policy and legal framework. The work carried out in 2012, involved sensitizing social partners on risks and hazards in the sector, the need for a code of practice on safety and health in the construction sector, which was done in consultation with key stakeholders from the sector and social partners. This will be carried out by adapting the ILO Code of Practice on safety and health in the construction sector to a Somali context and drafting a roadmap for the establishment of an Occupational Safety and Health legal and regulatory framework. The draft code of practice and the roadmap will be further discussed and refined and adopted for pilot implementation in 2013. This work will be aligned to and linked to the on-going contractor registration regulatory framework.
Business licensing
One of the areas identified as requiring attention during the JPLG commissioned assessment of the “Policy and Legal Framework for Micro, Small and Medium Enterprises (MSMEs) in Somaliland and Puntland,” was that local councils require to improve the business regulatory environment to create a business friendly environment, which encourages business retention and attraction and which as a result contributes towards much needed employment and revenues for service delivery. The report recommended that the business registration and licensing processes should be simplified, streamlined and decentralized as much as possible to make it easier for MSMEs to do business. For this to be done, there is a need to merge these processes into a single user-system interface at local levels. Support towards business licensing reform in Somaliland (Hargeisa) and Puntland (Garowe) was initiated in 2011 with an assessment and evaluation of licensing processes, human capacity, council by laws, business categorization and stake holder analysis with both the public and private sector. Using the information received during the assessment stage, JPLG worked with the respective council leadership through a participatory method to reform the licensing system. During 2012, key milestones achieved were: Revision and agreement on the business categories with the Councils aligning them to best practices, development and refinement of the licensing software which is integrated into the current BIMS database to aid in automation of the licensing process and preparation of a software manual to be used by the staff involved in licensing at the council. However, a major setback has been delays in upgrading of the BIMS software, which is yet to be fully handed over and institutionalized in the districts. The staff at the local authority were also trained in the use and management of the new software and the overall licensing system as well as introduced to key aspects of customer service. Awareness creation materials to be used during the launch and public education when the system starts to operate were also prepared. Broader stakeholder engagement with the central ministries and Chambers of Commerce initiated laying the foundation for overall business environment reform and to build consensus and support for the process.
In 2012, JPLG initiated the process in Mogadishu with an assessment visit and consultations with the Benadir Regional Administration (BRA), Central government representatives, the Chamber of Commerce, and Business associations. The aim was to gather information on business registration and licensing processes, challenges faced by business in licensing and also from BRA, fees and business categories, status of ICT and human capacity. This provided an understanding of the current licensing process and discussion on a simplified approach and process involving the engagement of both the public and private sector. It also allowed better understanding of the human and institutional capacity upon which capacity development needs and training support during implementation of the licensing reform have been defined. Based on this, a proposal on business categorization and license fees was prepared and shared with BRA and stakeholders for discussion and approval, where a draft framework for a national programme on business environment reform 18 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
in Mogadishu was produced. This will be the basis for further discussion and refinement in subsequent consultations, aimed at providing a guideline for the overall business environment reform. During 2013, support will be provided to roll out the proposed improvements to business licensing with implementation guided by a Simplification Committee to be established as well as the complementary revisions to the legal and regulatory instruments to support the necessary reforms.
Public Private Partnerships in Local Government Service Delivery
Public Private Partnerships (PPP) provide a feasible option for local governments across Somaliland and Puntland to cope with increasing demands for basic public services . JPLG has supported the administrations of Somaliland and Puntland in their work towards the development of favorable legal, policy and regulatory environment for PPP’s through the drafting of PPP policy frameworks and the preparation of a PPP toolkit. JPLG has also provided orientation and training on the initiation and implementation of PPP to central, local and private sector partners involved.
In 2012, Puntland held policy dialogue forums to validate the draft policy document developed with support from JPLG. The high level participation was a clear indication of the Puntland Administration’s commitment towards establishing a coherent PPP framework. Key outcomes of this dialogue were the validation of the draft policy components and agreement to establish a Steering Committee whose role is to steer the finalization and adoption of the policy and promote the role of government in providing a positive legal and policy context for the development of PPPs in Puntland. The Steering Committee membership is drawn from the Ministries of Interior, Planning and International Cooperation, Commerce and Industry, Finance, Health, Education as well as the Puntland State Authority for Water, Energy and Natural Resources (PSAWEN) and key private sector stakeholder representation (GUMCO, NUWACO and NEC).
A study tour was organized for government and private sector representatives from all three regions (Puntland, Somaliland and South Central) to Tanzania to understand and learn from the Tanzanian PPP reform process. The tour involved visits to key institutions with responsibility for the initiation and implementation of PPP projects in Tanzania. Besides the learning and exchange that took place, one of the outcomes from the study tour was that the delegations from each region all prepared an action plan to take forward efforts to finalize the policy and work towards implementation of the legal, institutional and regulatory reforms guided by the policy.
1.5. Service Delivery and capacity for the delivery of basic services, Public infrastructure, NRM, SWM
All participating districts (in Puntland and Somaliland) have been able to implement a variety of projects (both in size and quality) aimed at improving service delivery ranging across education, health, water, sanitation and market facilities showing a marked improvement from the 2010 baseline study which showed LGs providing little or no services. Some of the indicators of this improvement are: Local governments have for the first time extended services to villages in the rural areas, the quality of services has substantially improved , people have easier access to local government offices and officials than before, local governments are implementing some projects in collaboration with the private sector
(for example, in Berbera, a housing scheme for the poor and the construction of a sports stadium). (Outcome Evaluation Somaliland 2012, page 11 and 29).
Evaluation respondents agreed that JPLG has improved the performance of local governments in a number of ways. They recognize that it has provided financial and technical support, whichRoad sector has enabled the LGs to implement some much needed projects such as rehabilitation of roads, construction of market centers, and improvement of hygiene and sanitation works. Thus, there is a greater trust and a Roads provide the primary mode of internal transport facilitating access to basic social services, better relationship between the LGs and theircreate employment through their construction and in their use publics. (Outcome Evaluation Puntland 2012, page 32)., facilitate access to employment and to markets for productive sectors. They provide the links with neighboring economic areas and form 19 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report arteries to the seaports, facilitating internal and regional trade, and fostering urban and rural linkage and development. In all regions, roads are a priority sector in their national economic and development plans,strategies and reconstruction efforts since they represent a significant proportion of public expenditure. JPLG commissioned the road sector studies in Somaliland and Puntland aimed at understanding the current legislative, policy, institutional and service delivery frameworks. The studies further aimed at unbundling, costing and assigning of functions, responsibilities and powers related to road administration, construction and maintenance between the different tiers of government and institutions involved. The primary aim of the studies was to inform decentralization reforms in the sector relating to increased effectiveness and efficiency of the roads sector at local level. The studies addressed the key building blocks of road reforms and provided recommendations around: Ownership and responsibility – clearly defined ownership and responsibilities between different tiers of government and the need for road agencies to be established through legislative, regulatory and institutional reforms and development; finance – the need to provide adequate, stable and continuous finance through robust fund management and administration and Management – strengthening management through capacity development
The draft reports and recommendations were shared with the Somaliland and Puntland administration, and validation workshops held with all stakeholders to agree on long term and short term action plans.
In Puntland, the findings and recommendations were validated. Key issues were agreeing to the current institutional set up with key recommendations on establishment of a Directorate within the Ministry of Public Works as the line ministry responsible, harmonization of legal instruments to remove overlaps and ensure clarity on the functions delegated to the districts and considered delegation of functions based on district categorization (capacity).
In Somaliland, despite major changes to the institutional set up after the studies, the stakeholders validated the findings and recommendations. Recent changes through a presidential decree, scrapped the Somaliland Road Authority, established a Somaliland Road Development Agency under the Ministry of Presidency with a range of responsibilities including policy, regulation and road development, leaving road maintenance for the Ministry of Public Works. The JPLG and other development partners have engaged in discussions with the administration to discuss these changes. JPLG will continue work with the government and provide advice on a rational set up based on principles of transparency, accountability and efficiency.
Solid Waste Management
Municipal Solid Waste Management is a major responsibility of local government and is an important entry point for integrated urban management support with the first goal of protecting the health of the population, particularly that of low-income groups. Other goals include promotion of environmental quality and sustainability, support of economic productivity and employment generation. It is a complex task which requires appropriate organizational capacity and cooperation between numerous stakeholders in the private and public sectors. Achievement of effective Municipal Solid Waste Management goals requires sustainable solid waste management systems, which are adapted to and carried by the municipality and its local communities. JPLG has been supporting the Somalia regions in their attempt to achieve this and initiated a solid waste management project in 2011 in collaboration with the Municipalities. The objectives were to improve waste management collection systems, increase the community awareness of disposal practices, promote Public Private Partnerships, provide sustainable safety and collection equipment support, support development of municipal regulations, reduce the uncontrolled waste dumping and to enhance capacities of waste sector actors. The Solid and Liquid waste management sub- projects have had the direct effect of bringing services closer to the people and also created governance linkages and dialogue between the district authorities and their subjects. The participatory consultations attended by 175 people (with female representation) from the 4
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Puntland Districts helped the respective districts to update their Municipal waste Management (MWM) service and infrastructure proposals and district profiles, identify gaps and priorities in public MWM infrastructure and basic services, and to select potential sub-projects to be implemented.
A Somalia Solid and Liquid Waste Sector Study commenced in 2012 and will be finalized in 2013. The overall objective of the study is to provide an understanding of the dynamics of the SWM sector by identifying problems of sustainable development of the sector, contributing to strengthening the decentralization process, providing strategic guidance/guidelines for the development of the sector, and better orientating the future operations of JPLG, the government and other actors/stakeholders in the SWM sector.
Natural Resource Management Sector
In Somaliland and Puntland, about 70% of the communities rely on livestock, agriculture and other natural based resources to sustain lives and livelihood. However, the status of the environment has continued to deteriorate over time from poor management,compounded by the effects of climate change, thereby threatening the survival of the people with the rural communities being the most affected. Centralized management of the environment, ineffective legislations, poor policies and resource incapacities (financial and human) have directly contributed to the worsening state of the environment. In 2010, JPLG concluded the environmental Sector Studies aimed at defining functions, responsibilities and powers that should be devolved to local government. The findings were discussed with the administration and relevant stakeholders and what was very evident from the studies was the need to break down the sector into manageable components. The devolution, governance and management of natural resources were isolated as priority areas. Following this, further work was undertaken in 2012 entailing the review of the sub-sector policy, legal and institutional framework, through a series of consultative meetings and workshops. One significant challenge relates to the integration of natural resource management responsibilities across a number of Government Ministries. Parallel policy and legal processes across the environment, agriculture and pastoral development sectors have resulted in complex and overlapping procedures. Currently, there is also lack of clarity regarding institutional responsibilities and legal mandate for NRM. This conflict is creating confusion at all levels of government, both central and local and increasing the potential for misuse and abuse by those in dominant political positions. Another concern identified, is the limited alignment of externally funded programmes with government: development partners have been supporting efforts to sustainably manage resources through community-based approaches for a number of years. However, to date, these initiatives have tended to operate through parallel delivery mechanisms, as well as supporting particular identified localities, rather than adopting a national approach. This has created inefficiencies and has increased transaction costs for development partners and rural communities alike while opportunities for integrating multiple benefit streams from the integrated management of natural resources have been missed out.
The study provided definition of and recommendations on: functional assignment and institutional arrangements for decentralized NRM, policy, legal, regulatory and institutional framework for decentralized NRM, enhance citizens participation in environmental/NRM governance and management, linking NRM to livelihoods and employment, strategy for district level institutional capacity building and pilots – involving institutional arrangements and district NRM planning. The findings and recommendations were discussed and validated during workshops with a broad range of stakeholders drawn from local and central government, with regional representation, development partners, CSOs and other representative groups.
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Education, Health and WASH Sectors
In 2012, JPLG engaged in key consultations and validation workshops in Somaliland and Puntland to review and agree on Education, Health and WASH Sector Functional Assessment study recommendations. These consultation processes led to a stronger focus on key priorities required in sector and local government reforms, around policy and institutional arrangements that will provide clarity on local governments mandates in basic social service delivery. This allowed for progress and agreement in reaching the key end results in the advancement of operationalizing these reforms through design and implementation of Service Delivery Model (SDMs) pilots in targeted districts for 2013.
The major challenge has been the lack of a National Decentralization policy. The sector study reports have greatly facilitated decentralization dialogues with government stakeholders and will inform the development of the decentralization policy. In addition, limited engagement of sector ministries in JPLG 1 also contributed to their lack of support and commitment towards local governance reforms and JPLG phase II has strategically been designed to facilitate this coordination and linkages with sector ministries and programmes.
JPLG will continue to support the sector linkages around the decentralization agenda by engaging the sector ministries in design and implementation of SDMs in targeted districts as well as development of sector standards and guidelines in harmonization of social sector planning with district planning. This support will contribute significantly to the decentralization policy under development coordinated by the Vice Presidential Office. It is expected that once the decentralization policy is in place it will further compliment the functional assessment recommendations for effective decentralized service delivery. The recommendations include Civil Servant Survey for Key Sectors and Local Government, Urgently Revise Law 23/2002 (SL) and Strengthen Draft Sector Laws, Define Service Delivery Models and Strengthen Government Provision Functions, Maximize efforts to resolve financing constraints, Strengthen Local Government Public Financial Management, Private Sector Activities have been identified, The Private Sector and Diaspora are critical Drivers of Services
1.6. Urban Planning
The role of urban planning in guiding the sustainable development of urban areas in Somalia (at both national and local levels) is critical and is gaining more significance. An effective urban planning mechanism in Somalia will help ensure that land, the prime source of conflict is equitably utilized by all. It will ensure sufficient land reservation for realization and expansion of public service facilities, provide plans and guidance for road development and public transportation thereby improving access and mobility, help direct urban growth to ensure the balance of environmental, social and economic aspects in urban areas and provide guidance for planning for infrastructure, recreation, waste management and local economic development.
Urban Planning is an important component of JPLG in providing standards and systems. In 2012 (as can be seen below) road planning, classification and naming were among the areas in which JPLG provided support to districts. For instance, a city like Hargeisa previously had only streets without names and no classification that distinguished between trunk roads, major roads and side roads.
For JPLG, support to selected districts in the preparation of urban development strategy and plans indicating directions for the future urban expansion and investment in basic services and infrastructure, land development, physical development and planning regulatory standards embedded in the district participatory planning and investment process is essential to build a sustainable capacity development in the district. Development of necessary tools and systems to enable this process has begun in Garowe and Hargeisa with support from JPLG as can be seen in the results below:
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The Urban Road Network Plan for Garowe, Puntland (phase 1)
Today, the urban area of Garowe has an estimated population of 40,000, which is likely to double in the next 10-15 years. The town has already shown a remarkable growth rate, which is 135% in only 5 years, making it one of the fastest growing urban centres in Puntland. As part of its technical assistance for the enhancement of the local government’s ability to govern and deliver services to the community, JPLG supported the Garowe Municipality in the implementation of the first phase of a pilot project - “Road Demarcation for Garowe”. The pilot project, aiming to develop a road network plan for the fast growing Garowe was initiated at the beginning of 2012 resulting into a Road Demarcation Development Phase Plan (2012-2035) and during this first phase around 7 km as new extensions of the main road was demarcated to secure the future routes from encroachment by informal building construction.
As a continuation of the road demarcation project, during the year 2012, the technical committee (TC) for the project was established and started working to produce the draft road network plan with road classification and hierarchy. The aim of the project is to define a clear hierarchy of the urban roads in Garowe for better transport and management of the urban area, to enhance road hierarchy in order to improve road safety and efficient traffic flow, to support activities of the local economic development with increased security and accessibility, to help to establish postal codes, house numbers for services such as taxis, mail and parcel delivery, ambulances, tax collection, utility fee billing and collection, and provide a basis to plan for public transportation routes. An action plan for the project was developed and handed over to the TC; a manual was also developed to guide the TC on how to conduct road classification and road conditions survey. The project completion is planned for 2013.
Urban road classification and road naming for Hargeisa, Somaliland (Phase 2)
In Hargeisa, which is fast growing, Urban road classification and road naming project was initiated as a pilot to help create a basis for development of urban road network plan.. The project was designed to contribute to better urban management and road infrastructure investment prioritization. To support the implementation of the project a technical committee (TC) composed of representatives from Ministry of Public Work, Hargeisa Municipality, Land and Urban Management Institute of Somaliland, supported and co-chaired by UN-Habitat National Officer for Somaliland, was established. With support from JPLG, the TC produced a list of criteria and definition as standards for urban road classification and hierarchy network. This will help in the long term to manage effectively urban road network and improve mobility. In addition, the TC conducted a road condition survey and produced a GIS based road conditions database for urban roads in Hargeisa, which was used to produce an urban road hierarchy and classification network. A draft urban road classification network plan for Hargeisa was submitted to the District Council and approved.
A second component of the project is the roads/streets naming (which were classified as Trunk, Primary and Secondary roads) and the installation of roads/street name plates in Hargeisa. The project was concluded in 2012 and 179 street signs were installed increasing the legibility and orientation in Hargeisa. A technical specification guideline for manufacturing and installing the street/road signage in Hargeisa was developed and handed over to the Municipality. The capacity of the Municipality staff was enhanced, as the knowledge of the planning urban road system was transferred. A basis to establish the city`s first ever street addressing system and the city map was developed. Due to the impressive outputs and request, the project will be replicated in other districts/regions during the year 2013.
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The Urban Land Use Planning Standards
Urban land use planning standards serve as a reference for ensuring adequate reservation of land during the planning process for meeting growing space demand of economic and social developments as well as for providing appropriate public services. During the year 2012, JPLG supported Somaliland with the preparation of a draft land use planning standards. This will be finalized in year 2013 with a graphical illustration of the standards so that it becomes clearer for all local partners in Somaliland. A broad stakeholder consultation process will be conducted to have an inclusive document strongly owned by Somaliland authorities and other stakeholders in the field of urban planning. The land use planning standards for Somaliland will be adapted for Puntland in 2013 and later for the South Central region of Somalia.
The Construction Standards
Construction Codes provide minimum standards to safeguard life or limb, health, property, and public welfare by regulating and controlling the design, construction, quality of materials, use and occupancy, location and maintenance of all buildings, structures and certain equipment within a jurisdiction. During year 2012, with the support of JPLG, a draft construction code was developed for Somaliland. A public consultation process will be conducted in 2013 in order to have an inclusive document strongly owned by Somaliland authorities and to finalize the production of the construction code.
1.7. Fiscal Transfers
The Outcome Evaluation for Somaliland and Puntland 2012 highlights that unless there is substantial improvement in institutional and fiscal capacity at the local level, effective and sustainable service delivery will not materialize. 2012 was the first full year of the Local Development Fund (LDF) focusing on systems development, consolidation and capacity building. (JPLG Outcome Evaluation, Somaliland 2012, page 21 and page 24 for Puntland)
Through the LDF, a fiscal transfer system was implemented allowing for funds to flow from both central governments and the donors through a single source to the district projects. The governments of Puntland and Somaliland each contributed 10% and 12 % respectively of the LDF for funding the prioritized investment projects at the districts. As part of stimulating and supporting the fiscal decentralization system, JPLG contributed 85% of LDF funds while the beneficiary districts contributed 5% from own resources. These projects improved social service delivery and local economic development covering, among others, roads, schools, health, water, garbage collection and markets.
These projects had significant impacts on communities by improving living conditions, improving physical infrastructure that increased value of land and properties, boosting economic activities and creating additional motivation for participation and accountability. In Somaliland a road project in Borama district implemented in 2012 provided a good example of a community incentive where the district and the local community mobilized additional private funds. The community mobilized an additional USD$ 46,000 to top-up the LDF allocation to change the gravel road into tarmac. Also in Puntland in the rehabilitation of the Bossaso Gravel Road the business community mobilized an additional USD$ 65,000 to top-up the LDF allocation to change the gravel road into tarmac. The same public procurement process adopted from the JPLG capacity building programme was utilized for the other projects undertaken by the districts funded through own-source and other community mobilized resources.
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The notable achievement and lesson through LDF implementation has been the opportunity and incentive for dialogue and interaction between central government and local governments that never existed before. This not only provides the central government with a voice, but also provides a basis for decentralization and central coordination by coordinating district implementation of LDF funded projects. Previously there were no regular transfers nor did the districts work much with central governments but now, the central governments under JPLG do not only make regular fiscal transfers but also have a control and coordination role accepted and recognized by districts thus demonstrating a decentralization environment that is only awaiting policy documentation and improved legislation after functional assignments have been agreed.
1.8. Social Accountability and Civic Education, Community Monitoring and Public Meetings
Respondents to the Outcome Evaluation were of the view that the public is gradually learning about the
rights and responsibilities of citizens with regard to local governments. Older people have memories of
previous regimes when local governments were highly structured and operating with well-defined
processes while younger people – now the majority of the population – were not so well informed about local government functions and about their own rights and responsibilities. The increase in public awareness was attributed to efforts of the JPLG’s civic education component.
The Outcome Evaluation found that there has been marked improvement in the communication that
the local governments have with their publics especially through public meetings where questions and
criticisms are openly addressed and people have more opportunities for hearing about local government plans and achievements. The evaluation noted that there is a growing sense of ownership of the process as indicated by the initiative taken by the districts to fund the publicity of these meetings through the public media and there is a sense of growth in public awareness and greater demand for consultation ensuring that the local governments will feel the need to continue such consultative practices. (Outcome Evaluation 2012 Somaliland, pages 27, 28 and 31).
In Puntland specifically, a shift in public knowledge about local government functions was seen with a greater understanding of the challenges the local councils face, and an appreciation of efforts being made to improve the delivery of basic services. This is partly due to the civic education programmes carried out through the JPLG. The interviews and focus group discussions held by the evaluation team – and the viewing of video recordings of public meetings held by the LGs – showed that public attitudes
have changed and respondents have become more critical of the performance of their councils and are
more confident in demanding better services. This is an important achievement of JPLG.
Almost all the respondents said that they knew about the civic education programme and that it had been carried out in their localities. (Outcome Evaluation 2012 Puntland, page 31).
JPLG supported social auditing in JPLG targeted district aimed at increasing effective engagement and dialogues to enhance accountability, transparency and responsiveness of local government in local service delivery. Several strategies including the Civic education programme and capacity building of targeted districts and communities in participatory planning and monitoring were used to empower local government and community structures on how to engage in these processes. The following are the key achievements of 2012 implementation on social auditing systems:
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Civic Education Programme
In 2012, efforts were made to revise the programme strategy for Civic Education (CE) with the aim of facilitating more issue-based and interactive discussion sessions (whether through the media or ‘on- the-ground outreach activities’) and a Resource Pack (RP) was produced, containing ‘trigger materials’ on key local governance themes. Under the leadership of the Ministry of Interior (MOI), the strategy and RP was validated and agreed to with all key stakeholders including the Ministries of Information, Education and civil society organizations engaged in such programmes in the country. The RP will allow a more coordinated approach to capacity development and delivery of the Civic Education programme at the district level in Somalia. Already CDRD and the Governance and Peace Building Consortium have agreed to use the RP in their programme enhancing efficiency and expansion of the Civic Education programme beyond the JPLG targeted districts. In partnership with DRC, the RP was translated into Somali and 34 (9 female) district-based facilitators were identified and trained based on the revised strategy and use of RP tools and methodology to be able to effectively engage in delivery of civic education activities within their targeted locations. The programme applies various approaches from mass media, community dialogues and outreach, mobile cinemas documentaries, drama as well as key stakeholders workshops, debates and talk shows to empower citizens on their rights and responsibilities and to strengthen their voice and participation in local decision making and development. This has strengthened accountability, transparency, ownership at the local level and improved relationships between the citizens and their district authorities in co-provision and cooperation in delivery of basic services to the Somali people as supported by the Outcome Evaluation and Mid-Term Review reports.
“Community groups are more aware of LG responsibilities –and citizens’ rights. There is an increase in knowledge about LGs and a positive shift in attitude about LG performance” The Mayor appreciated the rapid improvement that the JPLG has made in the community, particularly how it has enlightened the people about their obligations and rights with regards to the protection and access to public property. (JPLG Outcome Evaluation 2012).
Community engagement in local Planning and Monitoring
Community consultation processes: As part of the PEM 2 training module on participatory planning, district departments of planning and social affairs were trained as Trainers of Trainers (TOT) on the Participatory Integrated Community Development (PICD) approach and tools enabling them to train district based facilitators and oversee successfully implementations of the community consultation process in new targeted districts: (Gabiley in Somaliland and Bandarbeyla, Eyl and Jariban in Puntland. The community consultation in these new JPLG districts effectively assisted targeted communities through a visioning process to analyze their situation including their key challenges, needs, and develop long-term social and economic priorities that would meet their development objectives as well as strengthening village governance structures to be more representatives and inclusive. This resulted in the development of village priorities and improved village committee structures. In addition, JPLG facilitated sector participation and linkages in the process through ensuring (i) sector secondary database information; (ii) sector standards and priorities and (iii) sector deconcentrated staff were available to participate in the community consultation process to inform the prioritization process at district level. As a result the prioritization and data collection at village level improved with inputs from the line ministries used to inform district profiling and development of District Development Frameworks (DDF). Furthermore, JPLG supported district council meetings with community members represented by their village council and committees (VCs) to validate and agree on the DDF and districts Annual work plans and Budgets (AWPBs). As cited in the JPLG Outcome Evaluations and Mid-Term Review these processes have fundamentally contributed to key aspects of state-society relationships, in particular legitimacy and the role of voice in decision making which requires the formation and support of inclusive structures and platforms to forge workable proposals in local service delivery and development.
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Community Monitoring System
As part of the PEM 5 training module, JPLG has supported local governments in setting up community structures as a sub-committee of the VCs’ for social auditing of projects implementation. Through partnership with the service provider, local governments, jointly with the contractors and community monitoring groups, were trained on Participatory Impact Monitoring (PIM) enabling these stakeholders to identify their roles and responsibilities and developing monitoring matrixes for project monitoring of the districts’ 2012 projects. This process strengthened the Project Impact Monitoring (PIM) role of Community Monitoring Groups (CMG) to review service delivery impacts including issues related to user access, quality of services, information accessibility as well as sustainability considerations. In addition, the CMGs play a critical role in ensuring community ownership of the projects and facilitation of community mobilization and conflict resolutions in case of community conflict that may arise during and after implementation.
However, as per lessons learnt and recommendations from the programme reviews and evaluations, the system needs to be expanded to include outcome and impact level monitoring beyond project level. In JPLG Phase II starting in 2013, baseline assessments are planned to be undertaken to inform an improved social auditing system.
The role of the Community Monitoring Groups was detailed in two stories. In the first story, Mohamed Ali Primary School project Community Monitoring Groups in Burao found that the school roof was poorly constructed as the wood used was not long enough to cover the whole ceiling of the class rooms. The CMG raised this issue through a meeting with the District Mayor and district technical engineer. The district mayor called the contractor for a meeting and finally the wood was changed to the right type for this ceiling. Now the school is operational and was officially handed over to the Ministry of Education.
In the second story in Hargeisa, residents have been holding their leaders accountable. Abdufatah Omar, a youth from Hargeisa agrees that residents have become more informed and therefore can keep their leaders more accountable. He is quoted as asking the former Hargeisa Mayor, Engineer Mohamed Ji-ir why youth have not been allocated recreation space, alleging that this is the main reason why they are involved in drug abuse. In his response the former Mayor said that the municipality had given 17 plots to the Ministry of Youth earmarked for creation of Youth Centers.
Public Reporting Feedback Meetings
Significant support was provided to local governments to enhance and maintain effective dialogue between government and citizens through regular public meetings. The 10 mature districts (6 in Somaliland and 4 in Puntland) were supported to conduct public meetings with their constituencies that enabled local governments to present their achievements and review their progress and proposed plans as well as assess actual expenditures against approved budgets. Notably, these public meetings have been greatly appreciated both by the local government and the public at large “Feedback meetings are giving as they have contributed to local government transparency and accountability hence improved trust an opportunity for the public and relationship with their citizens. In addition, they have provided an opportunity/platform for local to comment on plans and governments interaction and built mutual confidence and cooperation. implementation.”
A respondent from the recent FGD’s done by the Outcome Evaluation noted that “Before JPLG, in all districts, there was very little contact between LGs and their communities. Any meetings were ad hoc and not documented. There was little use of the media – announcements were made by loudspeaker vans. - Feedback is provided now through the annual public meetings and radio announcements”.
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National Guide to Public Participation and Community Engagement in Local Planning and Development
In partnership with LGs and the Ministries of Interior in Puntland and Somaliland, JPLG provided technical support in the development of a draft policy guide (also in Somali language) for community engagement on local planning and social accountability. This provided clear policy direction for the institutionalization of social auditing systems and restructuring of village governance structures to make them more inclusive, legitimate and representative. The goal of the guide is to provide an enabling framework for promoting and ensuring meaningful public participation and community engagement in local governance, planning and development through inclusive, open, accountable and gender sensitive processes. In Puntland, a validation workshop with key stakeholders on the guide was undertaken and recommendations agreed to. In Somaliland, the validation was pushed to early 2013. It is anticipated that the final guide will be approved through ministerial decree by MOI to institutionalize the village governance reforms. The programme from 2013 will move to support local government capacity to implement the guide recommendations including development of by- laws and directives on the same in coordination with CDRD and Governance Peace Building Consortium programmes.
CHAPTER TWO: CAPACITY DEVELOPMENT
JPLG is essentially a capacity development programme with the key intention of establishing systems within the participating local and central governments that will bring improvements in the planning and implementation of service delivery, procurement processes, revenue generation and general financial management at local levels. These systems have all been put in place, even though there are still a number of issues related to harmonization and sustainability remaining. Since the OES Baseline Studies of March/April 2010, there has been a marked shift in the public’s involvement in planning for service delivery improvement, and of the public’s awareness of local government functions and constraints. The consequence of this has been building of a kind of trust in local governments that was clearly lacking before (Outcome Evaluation 2012 Somaliland and Puntland).
Capacity development is a cross cutting priority for the Joint Programme. One of the biggest challenges for JPLG is to strike the right balance between a supply driven approach (that can be justified for implementation purposes) and a demand driven approach that is needed to ensure the relevance, effectiveness and sustainability of JPLG capacity development interventions. As in the last five years, the Joint Programme in 2012 supported a range of stakeholders from communities, women groups, councillors, district departments (i.e. social affairs, public works, administration) and private contractors to line-ministries and central institutions such as road authorities, the LUMI and the Office of the Accountant General. Below is a summary of the JPLG main capacity development interventions and results in 2012.
District Capacity Building for planning and budgeting
In 2012, building on the District Capacity Assessments conducted at the inception of the Joint Programme, JPLG continued to support districts in developing generic ToRs for their core functions. In 2012, District Planning Units were established in the JPLG targeted districts of Somaliland and Puntland and ToRs for these units were developed in close coordination with the Ministries of Planning. The DOPs are mandated to coordinate development planning and data management at the district level with relevant regional and central level counterparts. District Councils in all JPLG target districts passed resolutions approving the new district structure with the Departments in place. Meetings were also organized to facilitate and encourage coordination between the District planning units and the Regional and Central planning departments. In addition, JPLG Partner Agencies continued to support districts by providing direct technical support (see sections below) and through
28 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report local consultants. As in many other countries, JPLG is working to avoid creation of capacity substitution situations.
Spatial Planning
During 2012, the approach to introduce spatial planning in the district planning process was developed and piloted in Gabiley. A conceptual framework was developed and the approach included strategic elements and vital directions to be included at the three planning levels, i.e. national and regional level, local district planning level and district urban area planning. JPLG discussed with district counterparts how spatial analysis and planning tools can be integrated into the districts’ planning processes to ensure coherence in plans and access to services across the country. The introduction of spatial planning in the DDF process will improve the quality of strategic local economic development including cross-sector coordination and will help identify where gaps and overlaps exist so that investments can focus more on specific areas and districts authorities are guided effectively to plan for the future development of their district. The capacity of districts to implement these tools is crucial for sustainable results and the agencies will continue to work together to build district capacity for spatial planning, learning how this can be scaled up in the future.
District Development Frameworks and Annual Workplans and Budgets
JPLG undertook a series of steps to improve and institutionalize District Development Frameworks (DDFs) as the key government framework for development planning and service delivery at the district level. At the beginning of 2012, JPLG conducted field visits in all target districts to see how best to engage districts in this process. In Somaliland, in the third quarter of 2012, JPLG under the leadership of MOI organized 3 DDF Improvement Workshops in Burao (for Burao, Odweine and Sheikh), Berbera (for Berbera and Hargeisa), and Boroma (for Boroma and Gabiley) seeking feedback on how to improve district-sector-central level coordination on development plans and development planning processes. District mayors, councilors and staff, regional Governors, representatives from sector ministries and their regional and district level offices including from the MOP, actively participated in identifying entry points for district plans to feed into sector plans and the National Development Plan (NDP) and vice versa. JPLG will support awareness raising and aid coordination around the DDFs with donors, UN agencies and (I)NGOs in the first quarter of 2013 in Puntland and lessons learned from the experience in Somaliland will be incorporated into the process.
In the last quarter of 2012, JPLG provided technical support to the districts to revise their current DDFs (and in Gabiley, Jariban, Eyl and Bandarbeyla to develop their first DDFs) to reflect recommendations that came out of the DDF Improvement workshops better linking to national and sector priorities and to prioritize projects and prepare District Annual Work Plans for 2013 that for the first time list all district investment and development interventions (not just those funded by JPLG through the LDF) in a unified format drawn from the revised PEM training modules.
Further, JPLG worked with MOI and target districts to help districts adopt the new budget format which clearly distinguishes between recurrent and investment budgets. Through JPLG-funded district capacity development consultants’ support, the districts were actively engaged in data collection, analysis and compilation in the implementation of this new format.
Review of the Public Expenditure Management Training Modules
During 2012, JPLG supported the review, finalization and translation of 5 local (PEM) training modules based on the PEM guidelines that were endorsed by the MOI, in both Puntland and Somaliland. The PEM guidelines as well as the PEM training modules reflect the changes that have been made to the PEM processes, the institutionalization of which JPLG supports in its target
29 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report districts and beyond. The modules were revised, technically reviewed, finalized and translated into Somali. An orientation on the modules will be provided in early 2013 when field testing and training will be done.
Capacity Assessments of the new targeted districts and Induction Training
In the new target districts of Gabiley, Jariban, Eyl and Bandarbeyla, JPLG conducted a capacity assessment to identify the main challenges and provide a baseline for JPLG interventions in the districts. JPLG also administered a 5-day Induction Training on district roles and responsibilities as per the local government law and a 5-day Administration training for district councilors and staff, as well as relevant district and regional sector ministry focal points. IT equipment and office furniture were procured and delivered to the districts. Moreover, as with the other target districts, the 4 new districts received technical support to prepare basic DDFs based on the JPLG supported community consultation leading to prioritization of projects and preparation of the district’s annual work plan for 2013 including for LDF funded projects.
JPLG also facilitated the participation of representatives from 6 target districts in both Somaliland and Puntland for a two-day training on DAD (UN/Government Development Assistance Database). Future support to districts on the implementation and use of DAD to track aid at the district level is in line with JPLG’s overall objectives to improve districts’ data gathering, analysis, management skills and systems.
Capacity Development for Communities
JPLG uses various capacity development strategies in developing the local government and communities’ capacity in planning, budgeting, implementation and monitoring of basic social services. This includes key focused training through developed and adapted training packages, on- job-mentoring, assessments and peer-to-peer support. For example an assessment was conducted in new districts to determine the level of citizen and local government awareness and understanding of their roles and responsibilities. Various strategies were adapted based on the context to build capacity of citizens and local government through the Civic Education Programme including development of local leaders through key stakeholder workshops, community dialogues and outreach programmes.
JPLG provided technical leadership in development of participatory planning (PEM 2) and Participatory Impact Monitoring (PEM 5) modules and rolled out a phased approach of the capacity building package through international and local service providers. This included training of local service providers as TOTs on the relevant skills and competencies on how to conduct participatory planning processes at village level and in turn train the local government and mentor them in undertaking the community consultation processes in targeted districts. The approach was shifted from having local NGOs taking the lead to having the community consultation led and managed by the Districts Administrations (Departments of Planning and Social Affairs) that were trained as TOT’s and supported to recruit district-based facilitators within their locality. Technical support in backstopping and mentoring during the implementation was ensured through the service provider. Establishment of twinning relationships and other formal partnerships was also used in the case of Gabiley district community consultations where the TOTs and facilitators from the JPLG mature districts were used for support and backstopping. An institutional capacity needs assessment for planning and service delivery is the focus in the next phase to be undertaken based on agreed delegated functions to social affairs departments and having a strategy developed to initiate competencies and skills development of districts administration staff.
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Capacity Development for Local Government Associations
In 2012, JPLG continued to provide support to both the Puntland Local Government Association (ALGAPL) and the Somaliland Local Government Association (ALGASL). The identification of core organizational structures and functions of ALGAPL will enhance its support for local authorities in Puntland. For that purpose, the Mayors, key district leaders of Puntland and other relevant stakeholders, as a coherent dynamic interest group for the organizational and functional strengthening of ALGAPL will be mobilized. A draft strategic plan, profile and constitution were prepared in 2012 and these will be reviewed in 2013 through consultative processes (with relevant stakeholders) and with technical support from JPLG and agreed final versions produced.
JPLG supported the ALGASL with its operational cost in 2012. The ALGASL has committed core staff and has been functioning with regard to its envisaged role as the capacity support and advocacy institution for local governments in Somaliland. However, there are still capacity gaps, hence the focus in 2013 will be to support the organizational development and institutionalization of ALGASL, including seeking for opportunities to enter into contractual agreements with international and local development partners, central and local governments, and the civil society to deliver services within its mandate and for peer learning mechanisms between member local governments to support self- sustained capacity building of local authorities. These will form the basis for expansion of ALGASL’s role in Somaliland and financial sustainability and improved service delivery to members.
Training for Districts Councilors (Local Leadership Management, Conflict Management and Gender in Local Governance)
The Local Leadership and Management Skills (LLM), Conflict Management and Gender in Local Governance trainings aimed at effectively increasing the knowledge of local Councilors and Council staff regarding their duties and responsibilities in promoting accountable and transparent governance and peace building, were completed in Gabiley, Bossaso, Jariban and Eyl in 2012. In total, 223 (64 women) local leaders received various trainings, increasing their understanding and knowledge regarding their duties and responsibilities in promoting accountable and transparent governance and peace building. In 2013, the same trainings will be conducted for the newly elected councilors in all JPLG districts in Somaliland. LLM training will be conducted in Bandarbeyla in 2013. Under the Participatory District Rehabilitation in Mogadishu (Phase II), training on Conflict Management, Local Leadership and Gender in Local Governance was provided for the 16 District Councilors and selected community stakeholders in Mogadishu. The training provided a space for district dialogue and improved communications between various stakeholders. The trainings aimed at having at least 30 % women participants; in total 580 people received the training and 44% of the participants were women.
Capacity Development for Public Works
JPLG’s applies a learning-by-doing capacity development approach which involves capacity and training need assessments, the development, adaptation and translation to Somali of training modules, the delivery of theory/classroom based training followed by on-the-job mentoring support provided to various actors in the performance of their roles and responsibilities. In addition to this, learning approaches adopted through 2012 included peer-to-peer learning bringing new and mature districts together in training workshops and facilitating study tours for new districts to mature districts as was the case with the new Puntland Districts Public Works Departments who received training in Garowe which included a study tour to Gardo District. Feedback from the participants indicated that this practical demonstration was found beneficial, helping to anchor theoretical concepts to practical application. Such an approach, involving peer to peer learning, will be encouraged going forward.
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During 2012, rapid assessments were undertaken for the new target districts public works departments, Gabiley in Somaliland; Bandarbeyla, Jariban and Eyl in Puntland, and Adado in South central Somalia. Besides Gabiley where the Department is relatively well established in terms of qualified staff and experience demonstrated from recent portfolio of works undertaken, the districts in Puntland and Adado in South central Somalia were all found to be weak i.e. poorly staffed, equipped and with low implementation capacity. The district public works staff from the new districts was brought together for training on public works project cycle management including procurement and contract management (PEM Module 4). The training enabled peer-to-peer learning and exchange, and included participants from the mature districts.
The district public works departments of the mature districts continued to receive mentoring and technical backstopping in the planning, design, feasibility studies, procurement and contract management for public works projects. In addition, the JPLG introduced basic concepts and simple procedures for road network planning to provide a basis for improved investment prioritization and maintenance planning. In 2013 the districts will be supported to develop basic road network plans which can be the district development plans and allowing priorities to be selected for the annual work plans.
JPLG also took advantage of training institutions in the region – Engineers from Ministry of the Public Works and academic institutions (12) from Somaliland, Puntland and South Central successfully completed a tailored two week intensive course on building and highways technology at the Kenya Highways and Building Institute, Ministry of Public Works, Ngong, Kenya, where they were trained on road sector reforms, road maintenance management systems and alternative technologies for low-cost, low volume road construction. A second batch of nine engineers drawn from Public Works Ministries and academic institutions successfully completed an eight week training course on Labour-based Roadworks Technology at the Appropriate Technology Training Institute, Ministry of Public Works and Transport in Mbeya, Tanzania. A study tour was organized for government and private sector representatives from all three regions to Tanzania to understand and learn from the Tanzanian PPP reform process.
All these capacity development approaches are complemented with wider institutional capacity development including support to the establishment of structures, equipping of departments, development of systems, procedures and guidelines as well as instituting the supportive policy, legal and regulatory reforms necessary.
Capacity Development for Fiscal Transfers
Through JPLG LOAs with the MOF/ MOI in Somaliland and Puntland the Central Government’s capacity was developed to undertake fiscal plans, capture district allocations in the national budget, and make timely transfer funds to the districts. Through the same LOAs, MOI’s coordination and monitoring for effective Implementation of LDF Investment projects was enhanced. JPLG provided support in addressing some of the capacity gaps with the Somaliland and Puntland Ministries of Finance and Interior to increase their commitment to assist them to carry out their mandated functions through improved knowledge, skills and some logistical support.
In 2012, MOI/MOF Somaliland and Puntland carried out a series of Trainings based on the action plan agreed in the LOA’s. In Somaliland, the trainings targeted staff of 7 districts and was implemented by the MoF and MoI, through which 314 participants were trained to improve their performance in core functional areas relevant to fiscal transfers and LDF implementation. Additionally, relevant staff of 6 national institutions benefited, namely MOF, MOI, the Accountant General, Auditor General, Economic and Development Committee of Parliament House and the Economic and Development Committee of Senate House.
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In Puntland, in the 1st quarter of 2012, MOI trained 115 (13 women) participants from Puntland Districts, MOF, Office of the Accountant/Auditor General on the LDF process in general, Financial Requirements, Minimum Conditions/Performance Measurement Process, Local governance and decentralized services and Local Government Rules. These trainings improved overall awareness of the participants in LDF management, accessing the LDF, and Central/Local fiscal planning/transfers which created a conducive environment for the Decentralization process and service delivery. The trainings are normally delivered through local institutions as a sustainability strategy by enhancing their experience in fiscal decentralization support to governments. In Somaliland LDF training and other technical support was provided through the Civil Service Institute (CSI) and in Puntland these were provided through the Puntland Institute for Development and Management (PIDAM). A number of consultants were hired by MoF and MoI to support this process enhancing local capacity while providing technical support to the central government system to pursue fiscal decentralization through LDF implementation. Projects implemented include; water, education, roads, those contributing to socio-economic development, governance and peace.
Districts Capacity Development related to LDF Investments
The LDF modality by design includes a limited capacity development and administration component targeting LDF implementation gaps identified and prioritized by districts. In Somaliland, during 2012 JPLG disbursed the Capacity Building and Administration Fund to Borama, Burao, Sheikh, Odweine, Berbera and Hargeisa districts for identified trainings for their staff to improve district performance and institutionalizing LDF implementation. 120 district staff benefitted from these trainings through on job trainings, couching and technical advice.
In Puntland, in the 2nd and 3rd quarters of the year, Garowe and Gardo District implemented 6 trainings for the district staff in order to reduce district capacity gaps identified in the previous Minimum Conditions and Performance Measurement Assessments. Trainings implemented by Garowe District included Revenue Collection, and Internal Auditing for 14 relevant district staff. Similarly Gardo district implemented 4 trainings namely; Revenue Collection, Auditing, Civic Education and General Sanitation for 63 district staff. These trainings enhanced the districts performance in LDF administration, financial accountability and service delivery.
In other capacity building areas JPLG developed empirical tools (such as payment matrixes, payment tracking sheets, project monitoring sheets, and district capacity gaps assessment tools) with local partners to enhance performance in LDF implementation, financial disbursement and reporting. Also Joint Monitoring was regularly carried in 2012 by JPLG staff and MOF/AG and MOI staff in Puntland and Somaliland which helped districts in their project implementation.
Capacity development through Infrastructure support
UN JPLG couples its capacity building and institutional development support to District Authorities and Ministries with investments in improved office infrastructure, furniture and limited equipment. This creates the required leverage among local counterparts, while also contributing to a generally improved working environment and adequate space to carry out envisaged roles and duties. The provision of meeting halls in some districts are confirmed to have supported the interaction between the councilors and their community with direct effect of improving trust and relationship.
(a) District Office rehabilitation / improvement / new construction The project aims at improving office facilities and creating a better working environment for District Authorities and key Ministerial partners in the UN JPLG Districts. The various initiatives under this project are the construction of: (i) Ministry of Labour & Social Affairs Office (ii) Berbera City Hall, (iii) Galkayo Municipal Office, (iv) Garowe Municipal Office, (v) Ministry of Women Development and Family Affairs office (vi) Office spaces for the Benadir Local Government Registration Department
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(Anagraph), and (vii) Upgrading of Hargeisa 5 District Offices. The constructions are at various stages of completion; full completion of all investments will be achieved in 2013. (b) Participatory District Rehabilitation in Mogadishu – Phase II The project is a continuation of the initial PDR Phase I implemented in 2010/2011, and previous interventions in Mogadishu of similar nature during 2007-2009, implemented under the Somalia Urban Development Programme. The project builds upon the positive district dynamics achieved in previous interventions. The project aims at upgrading priority community and institutional infrastructure, improving access to basic services for both the host community and IDPs, and strengthening local governance and in particular the linkages between the district authorities, key community leaders and the IDP community. The procedures and results of the project aim at increased livelihood opportunities, basic social services and improved public infrastructure.
As of 5 Dec 2012, eight sub-projects were completed in Hodan, Waberi, Shibis, Yaqshid, Abdi-Aziz, Karan and Bondheere districts. Works in the remaining districts have been sub-contracted and are expected to be completed in 2013.
Support to Central Authorities
It is important to note that while directly working with local governments, JPLG in 2012 continued to support central authorities (mainly the Ministries in charge of Interior, Finance, Public Works, Women Affairs, Education, Health, Road Authorities, LUMI, etc.) through Letters of Agreement which provided capacity development support to those ministries (and the districts which they oversee and monitor) as well as funding for the implementation of activities in line with agreed work plans under the respective LOAs. In 2012 JPLG has for instance continued to support MOI to manage, oversee and support districts in line with its mandate and Laws no. 7 and no. 23 as well as to monitor activities which the districts implemented in line with their 2012 annual work plans. At the beginning of the year, JPLG and MOI undertook joint field visits in all target districts to discuss challenges and lessons learned from 2011, key priorities for 2012 and obtain feedback on how best to engage districts in their implementation. The Ministries of Public Works and Transport received technical assistance and material support directed towards developing their capability to perform their regulatory and technical support function to districts for local public works delivery.
CHAPTER THREE: CONFLICT SENSITIVITY AND RISK MANAGEMENT The programme continued to improve the capacities in key districts in Somaliland and Puntland to deliver services to their constituents effectively enhancing positive and sustainable state-society interaction and engagement. The programme’s emphasis on developing quality state-society interaction to jointly plan district development frameworks, annual district workplans and budgets and joint project monitoring, operations and maintenance endures as a fundamental contribution to sustainable peace in Somalia. The increased capacity of local governments, as well as the state level government ministries to delivery service enhances the legitimacy of the government and the state that correspondingly contributes increasingly to a reduction in state-society conflict.
In 2012, JPLG engaged and supported the Somaliland and Puntland Observatories and the Puntland Civil Service Commission to carry out community perception survey that will inform on the programme’s impact on peace and conflict.
Since its inception, JPLG has developed a risk and conflict matrix and Agencies have individually assessed and responded to these threats at the implementation level. With the expansion of the Joint Programme, a more systematic approach is needed to identify risks, anticipate possible conflicts and develop mitigation measures. By the end of 2012, JPLG started a review of these threats and is considering options to improve the way it responds to them in a more coordinated and systematic manner
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In order to assess the programme risk, entry point into a new district includes undertaking an assessment to assess the conflict sensitivity in rolling out a Civic education programme. The assessment looks at the level at which Civic education messages can be pitched, the appropriate approaches and strategies as well as media challenges to ensure the ‘do no harm’ principle is adhered to in project implementation. For example in targeted districts in Mogadishu, from the assessment it was noted that open community outreach still poses a risk for communities to be able to participate and hence JPLG adjusted to having enclosed outreach activities such as drama and community dialogues held in secured district centers. Selection of media channels is also critical to ensure appropriate acceptable channels that have wider reach and are seen as credible when used by the programme.
The community consultation tools also have conflict sensitivity built within the process which includes ensuring the participation of marginalized and vulnerable groups. This starts from the design of the implementation when we look at stakeholder mapping to ensure villages are clustered for consultation within and sensitive to clan dynamics. The use of local facilitators based within the targeted district is also factored in when supporting local government in identification of district- based facilitators so as to mitigate against conflict.
The user guide on project appraisal and feasibility studies JPLG has developed for use by Local Governments ensures risks (technical, social, economic, environmental financial, institutional and management arrangements) pertaining to the different types of projects are assessed to ensure viability and sustainability. It is a requirement that all project investments by the districts, sponsored by the JPLG, go through a project appraisal and in some cases are subject to a full feasibility study prior to approval, a practice JPLG is seeking to institutionalize through the LG public expenditure management procedures.
JPLG developed a manual for a water sector feasibility study and guide for public private participation which includes the types of risks pertaining to public-private partnership (PPP) projects. Sensitivity analysis to the effects of changes in these parameters is important for the determination of project viability. In the case of the Sheikh Water System, a sensitivity analysis was conducted for variations in costs, water quantities supplied and tariff changes.
The introduction of transparent and accountable Public Expenditure Management procedures and establishment of governance structures with clear lines of accountability into the Local Government administration has contributed to mitigating potential risks such as elite capture, unfair practices in procurement, unresponsive and non-accountable LGs.
The LDF as designed and implemented in Puntland and Somaliland has inbuilt incentive mechanisms through the performance evaluation that rewards districts with better adherence to these elements of JPLG intervention, and also provides capacity building support to those with lesser performance. It is notable that the LDF implementation process with its tranche disbursement system is so tightly watched by stakeholders in Puntland that there is very low fiduciary risk to LDF funds even in the relatively weaker districts. The PFM environment in the districts that qualified for JPLG (LDF) support is uniformly weak but considering that these are districts with elected councils, the FRA Team observed that there was substantial and positive enthusiasm for PFM reform and more specifically for the implementation of LDF given the tangible results in form of investments in locally prioritized development projects. The LDF as a district discretionary fund is designed and implemented to be aligned with the local government planning, budgeting and public procurement cycle and processes and is applied within a supported financial management process that JPLG has helped to put in place in the target districts. The identified and highlighted PFM gaps and weaknesses through the FRA provide a menu of areas for attention by JPLG, the government and other players in Somalia. Further JPLG work is targeting improvement in the weaknesses that were highlighted.
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CHAPTER FOUR: VALUE FOR MONEY AND EFFECTIVENESS
To enhance effectiveness and reduce transaction costs, JPLG organized a joint planning workshop with UNDP’s Poverty Reduction and Environmental Protection Programme (PREP) and Community Security projects (CSP) (of which another was held in Puntland with the SIDP programme) which took place in June 2012 in Hargeisa as well as Garowe. The purpose of the workshop was to align the two projects’ work as closely as possible, through creating a shared understanding of the functions, roles and responsibilities of the districts as per Law No. 7 and No. 23, and the current capacities and development planning processes. Areas of cooperation were discussed and concrete interventions identified for implementation. In Somaliland with regards to the CSP project, discussions between District Councils and District Safety Committees (especially in Burao and Odweine) led to the inclusion of security as a key DDF priority and safety projects identified in the District Safety Plans and included into the district’s own annual work plan in Odweine.
Also in 2012, JPLG worked closely with the Somalia Institutional Development Project (SIDP) and the MOPND (Somaliland) which it supports. A JPLG meeting with MOI and MOPIC (Puntland) focusing on the role of line ministries in preparation of the DDF and Districts’ AWPBs and how it could be aligned with the National Development Plan(s) (NDP’s) of Puntland and Somaliland.
Seen from a Value for Money perspective, harmonization of community consultation and planning processes adapted by CDRD programme has ensured efficiency and coherence within JPLG and CDRD targeted locations. Improved coordination with other key sector programmes and advocacy of DDF’s as a planning tool for investment beyond JPLG (e.g. the CDRD programme as well as UNICEF sectorial programme like in Adado) have made a difference and UNICEF WASH section financially supported DDF water identified priorities.
CDRD has also adapted the JPLG supported Civic Education strategy and Resource Pack which has enhanced efficiency and expansion of Civic Education beyond JPLG districts. For example in coordination with CDRD, DRC was able to translate the Resource Pack and financed the training of district facilitators on the pack. Agreement was also reached with DRC to take up Civic Education implementation in Gardo under their dialogue programme to avoid duplication of efforts and ensure efficient usage of resources while JPLG rolled out in the other districts.
In Mogadishu, discussions with CDRD were held to ensure a coordinated and coherent approach in roll out of Civic Education and community consultation. CDRD will cover two districts Abdi-Aziz and Shibis while JPLG will cover the rest of the 14 districts in the Benadir region.
Also JPLG will partner with the World Bank in a social accountability study in Somaliland whose findings will inform improved design of such programmes tools and systems.
The LG procurement and public works departments training and learning by doing approach involving tailored capacity development tools and approaches being nuanced to the level of capacity of individual districts and individuals and specifically on skills and competencies directly applied in the performance of functions and responsibilities, ensuring efficient use of training resources has been lauded and called for as a training tool by the districts. Also their use of peer-to-peer learnings – enabling learning and the transfer of skills from already trained individuals to others performing the same functions from different districts - also provide efficient use of already trained individuals.
In target districts where there are other agencies projects, synergies are built and JPLG seeks to ensure other project interventions are aligned and integrated in the district development frameworks (ie: CDRD, PREP, AVR). Where projects involve public works delivery, JPLG ensures that the district public works departments are involved and the systems and tools developed are utilised in project planning, design, procurement, implementation and contract management.
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Also there will be notable lower unit costs for construction of public works – as contractors become more competitive and improve their delivery. The table below illustrates reduction in unit costs for same type of roadwork in 2011 and 2012.
Comparative Analysis for Value For Money of the JPLG 2011 and 2012 projects – Somaliland
Project Total Project Cost Square meter Cost per m2 or (Unit Cost) (m2) or cubic m3 Somaliland Contractor meter (m3) of estimation Project
Road Improvement Works Projects 2011 and 2012
BERBERA 3 3 2012: Berbera – Tarmac Road project Section-2 (Quarantine- USD 108,453.95 3045 m 35.62$/m New Burao- Sheikh Road (1450 x 7m) 2011: Berbera-Tarmac Road project Section-2 (Quarantine- USD 80,837.70 2100 m3 38.49 $/ m3 New Burao-Sheikh Road (1000 x 7m) ODWEINE 3 3 2012: New construction of Gravel Road (2,850m x 9m) USD 94,702.27 7695 m 12.31$/m 3 3 2011: New construction of Gravel Road (1850m x 6m) USD 45,447.00 3330 m 13.65 $/ m Analysis: Compares two similar road improvement works projects from two districts for sections of the same/similar road. The cost per cubic meter has fallen slightly from 2011 to 2012, suggested reasons being: 1. Contractors received further training and it is believed were better equipped to and better understood how aspects of project design, BOQs, estimating and bidding; resulting in more competitive bids. 2. Contractors through training also improved their contract management skills and managed the implementation of works more efficiently.
Further JPLG played a critical role in negotiating districts and central government to mobilize resources to the Local Development Fund as agreed in the financial arrangement detailed in the Memorandum of Understanding (MOU) which governs LDF administrations and ensures all parties fulfill their obligations in LDF implementation and fiscal transfers. In 2012 JPLG was successful in agreeing on an increase of 2% by the Somaliland Government for the LDF. Funding for investment projects follows an approved process of community project identification and procurement and related accountability aspects to ensure value for money.
CHAPTER FIVE: GENDER MAINSTREAMING
In 2012, JPLG has contributed to Gender Mainstreaming through District Councils in Somaliland by supporting the inclusion of more women in the local elections. This support has been in form of trainings on advocacy, lobbying and management, which will result in an increase in the number of women candidates in the local elections, eventually leading to having more elected women district councillors. Similar support was given in Puntland to help create a pool of women candidates for selection to district councils in the upcoming first local elections planned for in June 2013, taking into account the experience from Somaliland. In addition, feedback received from the district workplans and budgets in JPLG districts have to a large extent provided women with a platform to voice their opinions as has the Civic Education programme and also about 20% of the successful contractors in JPLG projects have been women.
While JPLG partner agencies are systematically addressing gender within their activities, JPLG has also consulted with UN Women to improve participation of women in local planning processes. 37 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
Similarly, at the policy level, gender experts were required to provide comments on the draft Decentralization policy which is being drafted and recommend indicators.
JPLG supported MoLSA (Somaliland) to carry out gender equality workshops for local government officials, elders, religious leaders and civil society stakeholders in Boroma, Hargeisa, Berbera and Burao. JPLG also organized a 3 day gender training for MOLSA staff at the regional and national level focused on transferring skills and knowledge on gender concepts and how to mainstream gender at the district level, with concrete discussions around how to facilitate the establishment of coordination mechanisms among district administrations and regional offices of the ministries to ensure implementation of the national gender policy.
MOLSA had worked on identifying potential women candidates for the local elections. Women in Somaliland have slowly been making inroads into representative politics and since 2002 there have been two women members of the 379 elected district councilors. MOLSA gender unit staff, regional coordinators and JPLG consultants carried out an assessment to list the number of women that wanted to run for the local elections held in November 2012. They met with women groups, political parties and associations in each region and opened a discussion to list all of the women that officially announced their candidacy and any other hopeful candidates. JPLG provided support to MOLSA to carry out advocacy activities to increase the number of women candidates willing to run in the local elections and also conducted trainings on advocacy, lobbying and management for potential women leaders and political parties to increase women memberships. In Puntland, JPLG will utilize the learned experience (in Somaliland) to support MOWDAFA in the upcoming June 2013 local elections. In 2013, the project will continue to collaborate with the UNDP Gender Programme. UN Women presented how to engage in Gender Responsive Planning and Budgeting at the Second Annual Review Workshop in Hargeisa in September 2012 and there will be continued collaboration in the next years.
JPLG’s social accountability efforts ensures a focus on gender which includes facilitating and advocating with local government to ensure women are represented in local decision making structures such as Village Councils, committees and community monitoring groups. The council validation and public feedback reporting meetings are also designed and organized in ways that ensure women participation.
The Civic education programme specifically targets women organizations and in Puntland, the programme partners with MOWDAFA to ensure a coherent and coordinated approach in empowering women on their civic rights and local governance issues.
On the Public Works side women contractors are bidding for works in the open local government procurement system for public works – and about 20% of the successful contractors have been women. Also there are labor clauses in the district public works contracts on non-discrimination and equity in access to work opportunities and in the payment of wages.
Further in Somaliland and Puntland all LDF funded projects were based on equal gender benefits and equality of opportunity for equal participation in planning, implementation and access to community projects which are mainly for Roads, Water, Schools, and Markets.
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CHAPTER SIX: PROGRAMME MANAGEMENT
In addition to the coordination and management activities that were required to deliver the results mentioned in the previous sections, 2012 was a busy year at the programme management level because of the agreement and formulation of JPLG II as well as bringing JPLG I to a close which involved reporting and evaluations to be formulated and carried out.
The formulation of JPLG II
The formulation process for JPLG II (2013-2017) that was conducted by a team of international consultants, involved reviews, analysis and intensive consultations with JPLG stakeholders and beneficiaries across Somalia as well as in Nairobi. As a result a new 5 year (2013 – 2017) Programme Document was developed and costed at USD 145M. The Programme Document (ProDoc) was endorsed in December 2012 by the Federal Government, the central and local governments in Somaliland and Puntland, the five UN participating Agencies as well as by the JPLG donors. As recommended by the ProDoc, the second phase of JPLG will focus on the following, amongst other areas - formulation of decentralization policies and the institutionalization of the local governance systems and tools that were developed in the first phase of the programme. The second phase will also aim at developing and piloting Service Delivery Models (SDM’s) in a number of sectors and enhancing the capacities of districts and the private sector for Local Economic Development and PPPs. In support of the new Federal Government and considering the improving situation in southern and central region of Somalia, JPLG will also expand its activities and work in newly recovered areas together with other governance, capacity development and stabilization programmes.
Planning, Budgeting and M&E
The preparation of the 2013 AWPBs was an opportunity for JPLG to introduce new planning and budgeting processes and continue to enhance Results Based Management (RBM). For instance, annual milestones were agreed, between local and central governments and UN partner Agencies, for each of the nine outputs. For each of the milestones, a baseline and target were identified to track progress and results. In each of the three 2013 AWPBs a hierarchy of results has therefore been used to sequence activities and to determine priorities from an implementation and budgeting perspective. In terms of budgeting, the introduction of a more rigorous and consultative process resulted in the approval of a 2013 AWPB that amounts to USD 25M (for the three zones). It should be noted that USD 4-6M remains unfunded which is significantly lower than the USD 20M that was unfunded under the original 2012 AWPBs.
In respect to M&E, two Somali officers were recruited (Hargeisa and Garowe) to support the collection and analysis of local M&E data. Further they are responsible for monitoring implementation of the regional AWPB’s and follow implementation of activities and milestones. As part of their functions, they also visit districts to assess the impact of the JPLG interventions and put together significant change stories (success stories) and lessons learnt. In 2012 they further collected data according to the JPLG 1 system of indicators (also known as the Management Information System – which can be found attached to this report under Annex 6) and collected training data from the UN participating Agencies to update the JPLG website and provide inputs for the UNSAS Outcome 1 to UNICEF (as the focal point) by region. Under JPLG 1 the Outcome Evaluation System has helped in evaluating the programme, from Baselines in 2010 and annual Outcome Evaluations by region subsequently. It has helped track the results of the programme at outcome level as well as doing Third Party Monitoring for South central Somalia where there was not sufficient access for JPLG staff. A final Outcome Evaluation for the whole duration of JPLG 1 is planned in 2013 and will be finished by June. Further the OES has presented a report on Capacity Development as well as 6- monthly reports to follow up on the annual Outcome Evaluation recommendations. From JPLG 2 a
39 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report new system of Annual Impact Evaluations will replace the OES. Also JPLG will contract an external firm / consultants to carry out a Final Evaluation of JPLG 1 (including on Programme Management)
National Ownership and Relations with Governments (local and central)
JPLG has in 2012 increased relations with central government authorities across Somalia with the aim of enhancing the level of national ownership and have local governance and decentralized service delivery as core elements of the wider Governance and Public Administration reforms. As a result, the Presidents in Puntland and Somaliland nominated their Vice-Presidents as ‘Champions for Local Governance’ and decentralization is now addressed in Cabinet meetings. Similarly the Ministers in charge of planning in Somaliland and Puntland have been increasingly associated with JPLG activities and have for example organized meetings to help align district plans with regional and central ones. In 2012, Sector line Ministries have also shared sector plans with districts and participated in the development of two District Plans. At the local level, relations between JPLG and the Mayors and councilors continued to be nourished through regular interactions between the JPLG teams and their counterparts. Local and regional governments also met with JPLG and donors at the occasion of the Bi-Annual Review Workshops and the Annual Steering Committee meetings (the latter were planned for the first time in Somalia (Mogadishu, Garowe and Hargeisa).
Relation with donors and other institutional partners
In 2012, JPLG aimed and strengthened the level of relations that it enjoys with its donors by having a continuous consultative process that led to the adoption of the JPLG II Programme Document, as well as through a series of meetings organized in Somalia and Nairobi to discuss progress and challenges, review objectives and agree on strategic decisions. These consultations have shown the importance of JPLG (and Government counterparts) to engage more regularly with its donors and to associate them more strategically in support of JPLG’s objectives.
JPLG donors should at this point be acknowledged for the interest and support they provide to the Joint Programme and for increasing their total contribution by 70% from 2012 to 2013. Agreement on common donor recommendations, M&E indicators, report formats and the use of the UN Pass- through mechanism highly contributes to improving the effectiveness of JPLG.
In 2012, JPLG continued to develop partnerships with other progammes operating in the area of governance, capacity development and stabilization/peace building. For instance, CDRD has adopted the JPLG Civic Education strategy and resource pack and is part of a coordination system with JPLG and the TIS programme. Relations were also deepened with Interpeace for the formulation of decentralization policies and for the development of a Local Governance Perception Survey in 2013.
UN coordination and oversight
As a Joint Programme, the Heads (and/or Deputies) of five UN participating Agencies, through the Programme Management Group (PMG) continued to provide oversight and strategic guidance for JPLG. In 2012 three PMG meetings were organized in addition to bilateral meetings that the incoming Senior Programme Manager has had with PMG members. Technical Working Group (TWG) meetings were also regularly conducted between the five Project managers and the PMU team to review progress and challenges and plan for upcoming activities. In 2012, the PMU also introduced monthly VTC meetings between the JPLG Team Leaders (TLs) in Hargeisa and Garowe and the PMU team in Nairobi. These video conferences helped track progress, share information between PMU and the TLs and also amongst the regions. In this context, lessons learnt were shared and one should note that success stories from Puntland and Somaliland are now regularly updated on the JPLG website. In Puntland, the JPLG local coordination meeting that used to be chaired by MoI was re- initiated to strengthen coordination between Government and the JPLG local team (this meeting
40 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report also happens in Somaliland and will need to be established with the Federal Government in Mogadishu in 2013).
Communication and knowledge management
Despite the fact that each UN participating Agency has its own communication system and network, a first batch of seven success stories was posted on the JPLG website. Over twenty articles (incl. TV and Radio reports) were published in local newspapers or aired on TV and radio stations, highlighting JPLG’s work in Somaliland and Puntland. This year, the PMU M&E Specialist attended a DevInfo Gender training in Beirut and the Senior Programme Manager was invited to present JPLG at a UNDP/ UNCDF/ UNV global event on local governance in Ukraine. As earlier reported JPLG counterparts attended trainings in the sub region and the Somaliland Vice-President was invited together with the Chief of Cabinet of the Puntland President and the Mayor of Mogadishu to attend a global event on local governance organized in Senegal.
CHAPTER SEVEN: CHALLENGES AND LESSONS LEARNED
A main challenge to any local governance programme is the limited availability of local resources available including inadequate professional skills and capacity, a high rate of staff turnover and limited or no legal institutional frameworks in place.
Policy
In the absence of a decentralization policy, the framework to underpin and guide sector reforms has been a huge challenge towards keeping the central vertical sector Ministries properly sequenced around the decentralization agenda. A Decentralization Policy Framework needs to be established to prioritize, sequence and foster sub-national delivery systems with a particular focus on clarifying the assignments between the three tiers of administration (central, regional and local). There is also a need to link on-going policy development in the sectors with the decentralization policy. The absence of clear decentralization policy objectives and framework to underpin the sector decentralization dialogue, debate and agreement on reforms necessary has been an obstacle as there is no common vision/overarching objective across central ministries and local governments to work towards.
Elections
Another challenge and lesson learned for JPLG in Somaliland, was the local government elections, which were a great achievement for Somaliland but have brought about large scale changes in mayors and district councilors and potentially also in district administration staff. In JPLG target districts alone, JPLG now works with 6 new mayors and a majority of the councilors are also new (with the mayor of Sheikh being the only mayor to remain in the post). Sensitization and capacity development of the newly elected mayors, councilors as well as of newly recruited district staff remains a key priority and challenge for 2013. It is also a possibility that the new councils will make changes in their executive positions of the district departments. Subsequently, the new staff and the new council members will require training, additional expenditures and these staff changes may initially reduce service delivery efficiency in 2013. In Boroma District, an arrest warrant was issued against numerous district councilors, the former executive secretary, the district engineer and selected district staff on charges of financial mismanagement. This has resulted in dissolution of the council and has negatively impacted on the district’s operations and the support interventions provided under the JPLG including the design and tendering of the 2012 investment projects.
Galkayo District Council
The restoration of the district council of Galkayo remained unresolved preventing JPLG from re- engaging in the district. 41 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
New Districts
JPLG commenced engagement in 4 new districts (Gabiley in Somaliland and Eyl, Bandarbeyla and Jariban in Puntland) which are characterized by significant lack of human and infrastructure capacity and also the central government capacity to assist the districts is low. JPLG thus faces new dynamics that require a new approach.
Capacity Development
The capacity of local governments needs to be built and enhanced based on a clear understanding of minimum core competencies required to meet designated functional assignments. The absence of a decentralization policy hinders a clear framework on which functional assignments can be defined to allow capacity assessments that would inform development of minimum core competencies and skills required on agreed devolved functions to local government. There is also the need to support capacity development both at local and central levels. Institutionalization of the processes introduced in social auditing and for them to be adapted as part of local government procedures and practices remain a challenge with weak district department staff capacity and absence of a legal framework to adapt these principles in local planning and development processes. The draft national policy on public participation and community engagement in local planning and development is aimed to support institutionalization of these processes and support capacity at district level in development of by-laws and regulations on the same. Another challenge is to institutionalize and bring about full ownership of the systems and procedures developed for the management of district public works beyond what is continued to be viewed as JPLG projects. The issues of personnel motivation and remuneration frustrate institutionalization efforts and the absence of a culture of service and professionalism in undertaking ones duties and responsibilities further complicates the operating environment. With limited resources and revenues for recurrent expenditure, districts struggle to retain qualified personnel at the current levels of remuneration. Until such time as districts have the human resource management systems and resources to attract and retain a cadre of professionals or to outsource such professional expertise these issues will remain, and JPLG and other capacity support programmes will continue to be necessary to support district managed service delivery.
Local Economic Development
A number of challenges were faced during the LED process: varying levels of interest, ownership and commitment to the process has been witnessed which slowed initial momentum. The risk of elite capture by a few was a risk mitigated by ensuring broad stakeholder representation. Through the piloting process in 2012, the LED Process Guidelines and toolkit produced by the JPLG to guide this process has been refined and is currently being revised and enhanced taking on board the lessons learned and adapting it to the local context in Somaliland and Puntland.
Service Delivery
The linkage of on-going sector strategy development plans with district development plans is required in the absence of harmonized planning guidelines between the two processes contributing to a challenge in sustainability of service delivery at district levels. For example Hamas, Somaliland and other health facilities constructed under the JPLG remain un-operational. There is also a need to strengthen regulatory oversight of the social sectors to ensure quality service delivery which requires clearly defined sector standards, norms and coordination mechanisms between horizontal and vertical service delivery. To deal with this challenge JPLG needs to work with sector programmes in strengthening institutions at the central, regional and district levels in service delivery and Service Delivery Model pilots would allow such a process as an entry step towards improving coordination in Service Delivery. 42 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
A remaining challenge is delayed payments by the districts to the contractors and it continues to frustrate delivery of public works projects, particularly in Somaliland. The typical delays witnessed occur between the works certification by the district engineers and the submission to the MOI for approval; as well as delay in disbursement from districts and/or delay in central government contributions. However, in Puntland there have been significant improvements in the speed in which payments are processed, this may be attributed to a better sense of ownership and commitment towards these procedures.
Road sector
The road sector there has no clear definition of responsibilities between the various stakeholders, there is neither no mention of roads delegated to districts under Law 23, nor guidance on other aspects of road administration including road safety and axle load control. This fragmentation of responsibility and separation of construction from maintenance has led to confusion and leaves little room to institute commercial-oriented management systems required in modern road management.
Education, Health and WASH sectors
The major challenge has been the lack of a National Decentralization policy. In addition, limited engagement of sector ministries in JPLG 1 also contributed to their lack of support and commitment towards local governance reforms and JPLG phase II has strategically been designed to facilitate this coordination and linkages with sector ministries and programmes.
Natural Resource Management
Some of the key findings and challenges facing the NRM sector were identified as: - Conflicts between sectors: One significant challenge relates to the integration of natural resource management responsibilities across a number of Government Ministries. Parallel policy and legal processes across the environment, agriculture and pastoral development sectors have resulted in complex and overlapping procedures. Currently, there is lack of clarity regarding institutional responsibilities and legal mandate for NRM. This conflict is creating confusion at all levels of government, both central and local, increasing the potential for misuse and abuse by those in dominant political positions. - Poor performance in collecting and reinvesting natural resource revenues: The capture and reinvestment of revenues that are generated through natural resources management are not well recorded or utilized. Collection of revenue from nature based enterprises is the responsibility of the Ministry of Finance and Planning on behalf of the MOE. Despite the modest amounts of revenue collected, little of this finds its way back into promoting and sustaining long-term natural resource management. If natural resource revenue flows are to be mobilized, shared and sustained effectively, mechanisms and incentive structures would be required at community, district and national levels. - Varying levels of performance, commitment and engagement from district councils: At the local level district councils have a role under the Local Councils Law for environmental management. However this is mainly for solid waste management at the municipal level. Urban Land Management Law (2001 which was amended in 2008), provides legal basis for ownership of urban land and confers authority to grant title to urban land and settling of land based issues to urban authorities. It is plausible to state that the complex nature of environmental/NRM responsibilities across a number of Ministries is proving to be a disincentive for district councils to pursue NRM policies and action plans, even as they are mandated to do so.
Limited alignment of externally funded programmes with government: development partners have been supporting efforts to sustainably manage resources through community-based approaches for a number of years. However, to date, these initiatives have tended to operate through parallel delivery mechanisms, as well as supporting particular identified localities, rather than adopting a 43 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report national approach. This has created inefficiencies and has increased transaction costs for development partners and rural communities alike
Local Fiscal Transfers
One of the main lessons learned, is that the LDF as designed and implemented in Somaliland and Puntland has inbuilt incentive mechanisms for encouraging commitment and participation at both central and local government level which is a recipe for decentralized governance and service delivery. LDF has introduced a model of inter-governmental fiscal transfer in Somaliland and Puntland that: - Protects funds from fiduciary risk; - Helps to develop LGs capacity to plan, budget and provide resources to implement real projects and increase basic service delivery; - Brings LGs closer to citizens by listening to their voice and choices and responding to their critical needs and strategic interests; - Enhances government legitimacy and sustains peace; - Strengthens the principle of subsidiary and decentralization process in Somaliland and Puntland.
An important lesson of LDF implementation, has been the opportunity and incentive for dialogue - an interaction between central government and local governments never existed before. By enabling the central government not only to make regular fiscal transfers but also to coordinate district implementation of LDF funded projects, the central government was given a voice it never had before and it provides a basis for decentralization and central coordination. The discretionary nature of the LDF is a strong encouragement for LGs to adopt better planning and budgeting processes and enhances LGs capacity to adopt learning-by-doing approaches while allowing for central government to carry out its coordination role.
In the absence of a strong PFM environment in Somaliland and Puntland, the existing intergovernmental Fiscal Transfer Systems remains unpredictable and controls in budget execution at the central government are generally weak and therefore sometimes affects the timing of transfers to the districts. There are also other aspects of budget execution that are weak such as the domestic revenue administration and internal audit functions. The Office of the Auditor General is mainly experienced in auditing Single Entry accounts and has limited skills for auditing Double Entry accounts that JPLG Target Districts use for AIMS and BIMS. The AG office therefore needs to upgrade its capacity.
The capacity of the central bank of Somaliland is very weak and remains a major challenge. The central bank administers a 3.44% service charge for all deposits and transfers, including transfers of GoSL funds to LGs. This is a very high service charge, especially when the bank is severely capacity constrained and therefore not offering adequate services. Further the central bank does not operate branches and agencies in every district and sub-district locations in Somaliland. The MOF transfers its LDF contributions through the Central Bank and has to pay the service charges.
The current LDF operational manual which was developed in 2010 combines various components such as LDF operation, performance assessment and training delivery but the LDF guidelines need to be reviewed, updated and simplified. The LDF operation manual should be separated from the training manual and performance assessment manual. The LDF Guideline manual should describe the whole LG planning and budgeting cycles, project screening criteria’s, financing systems including grant allocation criteria, contracting process, design and quality assurance process for infrastructures, role of different actors, payment system, reporting system for physical and financial progress, project books, public audit, etc.
Discussions held with MoF’s in Puntland and Somaliland at the end of 2012 indicate that the governments are willing to increase their proportion of contribution to LDF above the current 10% 44 | Page UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report and 12% respectively. These developments provide a firm basis for elaboration on the ongoing fiscal decentralization policy process that will be the focus of 2013. This level of commitment has enhanced local governance and has contributed to better service delivery
The lesson learned is that with more engagement and demonstration, the governments’ ownership and participation grows further enhancing local governance.
The Fiduciary Risk Assessment findings were that the overall assessment is that the Puntland and Somaliland PFM systems place all funds within the public system at high risk at almost all stages of the PFM system but the design and operation of the LDF has safeguards at all stages of the designed and implemented process that rates the fiduciary risk to LDF funds as low. The FRA assessment at the district level gave uniform results mainly because these are districts that were selected for LDF funding after meeting minimum access conditions, with options for capacity building support to ensure adherence and implementation. There is also clear guidance and support to the beneficiary districts through JPLG interventions that cover community mobilization for participation, planning and budgeting, public procurement, monitoring, accountability and reporting (the entire district PEM process developed by JPLG).
Social Auditing
As per lessons learnt and recommended from the programme reviews and evaluations, the system needs to be expanded to include outcome and impact level monitoring beyond project level. In JPLG Phase II, baseline assessments are planned to be undertaken to inform an improved social auditing system. Also there is a need to improve delivery of public meetings in areas such as documentation and prior dissemination of the information and preparatory consultation and advocacy.
45 | Page CHAPTER EIGHT: RESOURCES AND BUDGET DELIVERY AGAINST TARGET
Table 1 JPLG Resources Summary 2012 FUNDING RESOURCES
CARRY OVER FUNDS FROM 2011 TO 2012 UN AGENCY DONOR TOTALS BY SIDA EC DFID DENMARK ITALY USAID NORWAY UNCDF AGENCY UN Habitat 370,800 260,170 140,554 788,448 1,559,972 UNDP 905,400 450,000 1,355,400 UNICEF - ILO 533,298 521,120 1,054,418 UNCDF 55,709 120,794 156,290 332,793 PCU 6,000 8,000 60,803 74,803 TOTAL BY DONOR GRAND TOTAL 432,509 922,262 1,784,167 788,448 450,000 4,377,386
FUNDS RECEIVED IN 2012 TOTALS BY SIDA EC DFID DENMARK ITALY USAID NORWAY UNCDF AGENCY Bilateral to Bilateral to Pass through Hybrid Pass through Pass through Pass through UNHabitat UNDP UN Habitat 431,056 494,853 1,185,232 306,520 2,417,661 UNDP 517,981 567,155 1,358,402 351,305 2,794,843 UNICEF 363,658 421,685 1,009,988 261,199 2,056,530 ILO 324,185 290,287 695,274 179,809 1,489,555 UNCDF 421,188 324,923 778,229 201,263 400,000 2,125,603 PCU 41,573 65,807 157,616 40,762 305,758 GRAND TOTAL US$ 2,099,641 2,164,710 5,184,741 1,340,858 400,000 $11,189,950
TOTAL FUNDS FOR 2012 - carry over and new funds TOTALS BY SIDA EC DFID DENMARK ITALY USAID NORWAY UNCDF AGENCY Hybrid through Bilateral to Pass through Pass through Pass through Bilateral to Pass through UNDP UNDP UN Habitat 801,856 260,170 635,407 1,185,232 788,448 306,520 3,977,633 UNDP 517,981 1,472,555 1,358,402 450,000 351,305 4,150,243 UNICEF 363,658 421,685 1,009,988 261,199 2,056,530 ILO 324,185 533,298 811,407 695,274 179,809 2,543,973 UNCDF 476,897 120,794 481,213 778,229 201,263 400,000 2,458,396 PCU 47,573 8,000 126,610 157,616 40,762 380,561 TOTAL BY DONOR 2,532,150 922,262 3,948,877 5,184,741 788,448 450,000 1,340,858 400,000 15,567,336 GRAND TOTAL46 | Page 15,567,336
UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
CARRY OVER FUNDS FROM 2011 TO 2012 UN AGENCY DONOR TOTALS BY SIDA EC DFID DENMARK ITALY USAID NORWAY UNCDF AGENCY UN Habitat 370,800 260,170 140,554 788,448 1,559,972 UNDP 905,400 450,000 1,355,400 UNICEF - ILO 533,298 521,120 1,054,418 UNCDF 55,709 120,794 156,290 332,793 PCU 6,000 8,000 60,803 74,803 TOTAL BY DONOR GRAND TOTAL 432,509 922,262 1,784,167 788,448 450,000 4,377,386
FUNDS RECEIVED IN 2012 TOTALS BY SIDA EC DFID DENMARK ITALY USAID NORWAY UNCDF AGENCY Bilateral to Bilateral to Pass through Hybrid Pass through Pass through Pass through UNHabitat UNDP UN Habitat 431,056 494,853 1,185,232 306,520 2,417,661 UNDP 517,981 567,155 1,358,402 351,305 2,794,843 UNICEF 363,658 421,685 1,009,988 261,199 2,056,530 ILO 324,185 290,287 695,274 179,809 1,489,555 UNCDF 421,188 324,923 778,229 201,263 400,000 2,125,603 PCU 41,573 65,807 157,616 40,762 305,758 GRAND TOTAL US$ 2,099,641 2,164,710 5,184,741 1,340,858 400,000 $11,189,950
TOTAL FUNDS FOR 2012 - carry over and new funds TOTALS BY SIDA EC DFID DENMARK ITALY USAID NORWAY UNCDF AGENCY Hybrid through Bilateral to Pass through Pass through Pass through Bilateral to Pass through UNDP UNDP UN Habitat 801,856 260,170 635,407 1,185,232 788,448 306,520 3,977,633 UNDP 517,981 1,472,555 1,358,402 450,000 351,305 4,150,243 UNICEF 363,658 421,685 1,009,988 261,199 2,056,530 ILO 324,185 533,298 811,407 695,274 179,809 2,543,973 UNCDF 476,897 120,794 481,213 778,229 201,263 400,000 2,458,396 PCU 47,573 8,000 126,610 157,616 40,762 380,561 TOTAL BY DONOR 2,532,150 922,262 3,948,877 5,184,741 788,448 450,000 1,340,858 400,000 15,567,336 GRAND TOTAL 15,567,336
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8.1 Expenditures cumulative for the year 2012
The following is a summary of expenditures cumulative for the year 2012 by UN Agency and donor and major expenditure categories, both by UNDG and EC expenditure categories.
All figures are in USD and include committed funds.
The cumulative expenditure for 2012 is USD 12,998,464 or 83 % of the 2012 available resources.
Table 2 JPLG Expenditures (EC categories) by UN agency for the year 2012 - all figures are in USD
UNICEF UNDP UN Habitat UNCDF ILO PCU Totals Expenditure Categories 1. HUMAN RESOURCES 1.1 Salaries (gross amounts, local 61,400 335,073 285,307 127,102 151,799 29,433 990,113 staff) 1.1.1 Technical 289,473 142,716 98,335 58,212 588,736
1.1.2 Administrative/ support staff 61,400 45,600 142,591 28,767 93,587 29,433 401,377
1.2 Salaries (gross amounts, 229,153 910,331 805,948 303,603 346,058 179,185 2,801,278 expat/int. staff) 1.3 Per diems for missions/travel 28,922 66,808 109,348 44,120 74,814 33,133 406,915
1.3.1 Abroad (staff assigned to the 17,352 98,614 24,385 35,435 23,607 266,201 Action) 1.3.2 Local (staff assigned to the 11,570 32,400 10,734 18,175 14,397 1,798 89,074 Action) 1.3.3 Seminar/conference 17,370 1,560 24,982 7,728 51,640 participants
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UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
Subtotal Human Resources 319,475 1,361,982 1,200,602 501,825 572,671 241,751 4,198,306
TRAVEL
2.1. International travel 77,238 68,198 60,576 34,503 38,285 26,368 305,168
2.2 Local transportation 65,457 62,000 4,640 870 6,911 10,224 150,102
Subtotal Travel 142,695 130,198 65,216 35,373 45,196 36,592 455,270
EQUIPMENT AND SUPPLIES
3.1 Purchase or rent of vehicles 56,948 30,854 73,768 64,800 226,370
3.2 Furniture, computer 99,843 73,209 6,421 25,842 679 205,994 equipment 3.3 Machines, tools…
3.4 Spare parts/equipment for 193 1,069 1262 machines, tools 3.5 Other (please specify) 9,087 9087
Subtotal Equipment and supplies 156,984 113,150 81,258 90,642 679 442,713
LOCAL OFFICE
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UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
4.1 Vehicle costs 4,239 44,560 18,000 66,799
4.2 Office rent 183,539 48,107 32,786 18,410 282842
4.3 Consumables - office supplies 12,483 8,773 18,730 32,202 11,442 83630
4.4 Other services (tel/fax, 63,582 20,020 16,170 4,145 50,476 3,470 157,863 electricity/heating, maintenance) Subtotal Local office 63,582 220,281 117,610 22,875 133,464 33,322 591,134
OTHER COSTS, SERVICES
5.1 Publications 6,666 6,666
5.2 Studies, research 6,865 6,865
5.3 Auditing costs
5.4 Evaluation costs 4,783 4,783
5.5 Translation, interpreters 2,676 223 2,899
5.6 Financial services (bank 60,528 17,890 31,707 695 110,820 guarantee costs etc.) 5.7 Costs of conferences/seminars 347 738 35,769 10,418 47,272
5.8 Visibility actions 2,816 2,816
Subtotal Other costs, services 63,550 16,570 18,628 72,259 11,113 182,121
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UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
OTHERS: WORKS, CONTRACTS, SUB-GRANTS,TRAINING & CAPACITY BUILDING 6.1 Contracts / Projects 1,394,628 388,943 1,783,571
6.2 Grants and Partnerships 577,637 633,834 1,211,471
6.3 Training & Capacity Building 903,867 129,620 968,547 622,755 724,825 3,293 3,352,907
Subtotal Other works, contracts 903,867 1,524,248 1,935,127 1,256,589 724,825 3,293 6,347,949
Subtotal direct eligible costs of the 1,429,619 3,457,244 3,448,275 1,916,548 1,639,057 326,750 12,217,493 Action (1-6) Provision for contingency reserve 409 409 (maximum 5% of 7, subtotal of direct eligible costs of the Action) Total direct eligible costs of the 1,429,619 3,457,244 3,448,275 1,916,957 1,639,057 326,750 12,217,903 Action (7+ 8) Administrative costs (maximum 219,887 241,380 165,896 112,754 40,645 780,562 7% of 9, total direct eligible costs of the Action) Total eligible costs (9+10) 1,429,619 3,677,131 3,689,655 2,082,853 1,751,811 367,395 12,998,464
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UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
Table 3 JPLG Expenditures (UNDG categories) by UN agency for the year 2012 - all figures are in USD
UNICEF UNDP UN Habitat UNCDF ILO PCU TOTALS
Expenditure Category Supplies, commodities, 4,945 287,182 230,760 104,133 224,107 15,591 866,718 equipment, travel and transport Personnel (staff, 462,170 1,361,982 1,265,819 537,196 617,868 278,343 4,523,378 consultants and travel)
Capacity development 903,867 129,620 1,357,489 622,755 760,594 3,293 3,777,618
Contracts (DC 1,394,629 577,638 633,834 2,606,101 investments)
Other direct costs 58,637 63,550 16,570 1,148 36,490 29,523 205,918
Administrative costs 440,168 241,379 183,787 112,752 40,645 1,018,731 (fees)
TOTAL 1,429,619 3,677,131 3,689,655 2,082,853 1,751,811 367,395 12,998,464
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UN Joint Programme on Local Governance and Decentralized Service Delivery 2012 Annual Report
Table 4 JPLG Expenditures by donor for the year 2012 - all figures are in USD
UNICEF UNDP UN Habitat UNCDF ILO PCU TOTALS
Donor 472,321 476,897 SIDA 363,658 517,982 384,381 47,573 2,262,812 734,986 481,213 DFID 421,685 1,095,766 701,548 126,610 3,561,808 167,670 472,345 120,793 401,046 35,055 1,196,909 EC
678,202 678,202 Italy 492,363 492,363 USAID 215,407 1,053,715 1,136,985 357,115 79,320 117,395 2,959,937 Denmark
166,000 166,000 UNDP (BCPR) 261,199 351,305 194,816 251,298 185,516 40,762 1,284,896 Norway
395,537 395,537 UNCDF 1,429,619 3,677,131 3,689,655 2,082,853 1,751,811 367,395 12,998,464 TOTAL
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