DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

L-R: Ms. Rose Gamwera, Secretary General ULGA; Mr. Ben Kumumanya, PS. MoLG and Dr. Arthur Bainomugisha, Executive Director ACODE in a group photo with award winners at the launch of the 8th Local Government Councils Scorecard Report FY 2018/19 at Hotel Africana in on 10th March 2020

1.2 The Local Government Councils 1.0 Introduction Scorecard Initiative (LGCSCI) This brief was developed from the scorecard The main building blocks in LGCSCI are the report titled, “The Local Government principles and core responsibilities of Local Councils Scorecard FY 2018/19. The Governments as set out in Chapter 11 of the Next Big Steps: Consolidating Gains of Constitution of the Republic of , the Decentralisation and Repositioning the Local Local Governments Act (CAP 243) under Government Sector in Uganda.” The brief Section 10 (c), (d) and (e). The scorecard provides key highlights of the performance comprises of five parameters based on the core of elected leaders and Council of Mbarara responsibilities of the local government Councils, District Local Government during the FY District Chairpersons, Speakers and Individual 2018/19. Councillors. These are classified into five categories: Financial management and oversight; 1.1 Brief about the District Political functions and representation; Legislation and related functions; Development planning and is located in southwestern constituency servicing and Monitoring service Uganda; bordered by district to the delivery. The parameters are broken down into north, to the east, Isingiro quantitative and qualitative indicators. Separate district to the southeast, district scorecards are produced for the Chairperson, to the southwest, to the Speaker, individual Councillors, and the District west and to the northwest. Council as a whole. The district has 11 sub counties, 6 divisions, 61 parishes, 22 wards and 757 villages. The The major rationale of the LGCSCI is to induce district population was estimated at 390,700 elected political leaders and representative people in 2019 (UBOS, 2019). organs to deliver on their electoral promises,

Dr. Arthur Bainomugisha • Geoffrey1 Rukyamuzi • Nuwasasira Edinah MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

improve public service delivery, ensure Figure 1: Performance of Mbarara District accountability and promote good governance Council on Key Parameters Relative to National through periodic assessments. and Regional Average Performances 1.3 Methodology The FY 2018/19 LGCSCI assessment used face-to-face structured interviews, civic engagement meetings, documentary review, key informant interviews, field visits and photography to collect the relevant data. The assessment was conducted between July to September 2019. A total of 35 elected leaders (33 District Councilors, Chairperson and Speaker of Council) and Council were assessed. Source: Local Government Councils Scorecard Assessment FY 2018/19

average score was 15 points. Figure 1 and 2.0 Results of the Assessment Table 1 present further details of summary of This section highlights the performance of the performance of Mbarara District Council. Council, Chairperson, Speaker and Councillors 2.2 Performance of the District of Mbarara District Local Government during Chairperson the FY 2018/19. Hon. J.B. Bamuturaki, the District Chairperson 2.1 Performance of Mbarara of Mbarara District Local Government scored District Council 83 out of 100 points, an improvement of 24 The assessment of the district council was points from the previous assessment. With based on: ability to fulfill the legislative 83 points Hon. JB Bamuturaki was ranked the mandate; political and administrative 5th best chairperson of the 33 Chairpersons accountability; planning and budgeting and covered by this assessment. Hon. Bamuturaki monitoring service delivery. The district council who is a member of the ruling NRM party was scored 65 out of 100 points. This score put serving his first term as a district chairperson. the district council in the 17th position among The Chairperson’s best performance was the 35 councils covered by the assessment. under the parameter of initiation of projects This performance was higher than the regional where he scored all the points unlike his and national averages at 59 and 62 points counterparts who scored an average of 8 out respectively. The best performance registered 10 points at regional and 9 out of 10 points by council was under the parameter of planning at the national level. He also registered an and budgeting where council scored 15 out outstanding performance on the parameter of 20 points. This score was also higher than of political leadership by scoring 18 out of both the national and regional averages which the 20 points. Like the previous assessment, were at 14 out of 20 points and 13 out of 20 points respectively. The next best performed Figure 2: Performance of Mbarara District parameter was the legislative role where Chairperson on Key Parameters Relative to council garnered 17 out of 25 points; two points National and Regional Average Performances higher than the regional average and one point higher than the national average. Under monitoring service delivery, council obtained relatively good performance with 20 out of 30 points. This score was much higher than both the national and regional averages of 17 and 15 points respectively. The worst performance was registered under the accountability to citizens where the district council earned 13 out of the 25 points which was lower than the regional and national average where the Source: Local Government Councils Scorecard Assessment FY 2018/19

2 MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

Chairman Bamuturaki scored highly under the 2.4 Performance of Mbarara District parameter of monitoring development priority Councillors areas.In the year under review he earned 40 Overall, the performance of the District points out of the 45 points and this was quite Councillors was above average with an high compared to the regional and national average score of 55 out of 100 points. This is averages which were just at 30 points. On an improvement of 15 points compared to the legislative role, Hon. Bamuturaki scored 9 out FY 2016/17 assessment. Results also show of the 10 points. This was slightly higher than that the average score for Mbarara District is both the national and regional averages by one above the national and regional performance point. Also, the District Chairperson scored 6 at 43 and 45 points respectively. Councillors out of 10 points, a score lower than the regional registered good performance on contact with (8) and national (9) averages. Table 2 presents the electorate with a score 16 out 20 points a summary of the Chairperson’s performance. just like in the previous assessment. This is 2.3 Performance of the Speaker of partly because councillors were always with Council their electorate as most of them stay in these Hon. Baram Ndyaguma was the speaker of localities. The councillors’ performance on the council of Mbarara District Local Government monitoring of development priority areas was Council. He is a member of the ruling NRM an average of 24 out of 45 points. On the party and was serving his first term as a political legislation, they obtained 13 out of 25 points. leader at Mbarara district. Hon. Ndyaguma This was the same average score at both scored 53 out of 100 points a decline of four (4) the national and regional levels. However, points compared to the previous assessment they performed poorly on attending council in FY 2016/17. The Speaker’s score is below meetings at the lower local government the national average score of 62 points and (LLG) council level. Table 4 further presents the regional average of 58 points. His best a summary of the performance for all district performance like in the previous assessment councillors. was on contact with electorate where he scored 16 out of 20 points. With regard to monitoring Figure 4: Performance of Mbarara District development priority areas, he scored 24 out Councillors on Key Parameters Relative of 45 points, which was slightly more than to National and Regional Average the national average score on monitoring Performances at 23 points. On presiding over council, the speaker was scored 13 out of 25 points. The speaker however scored zero on participation in lower local governments. Table 3 presents a summary of the speaker’s performance.

Figure 3: Speaker of Council’s Performance on Key Parameters Relative to National and Regional Average Performances

Source: Local Government Councils Scorecard Assessment FY 2018/19

3.0 Critical Factors Affecting Performance 3.1 Factors Enabling Performance .. Good working relations between political and technical teams. The council worked as a team with the technical staff in monitoring service delivered in the district. Source: Local Government Councils Scorecard Assessment FY 2018/19 This was very evident in the Chairperson’s

3 MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

communication/ reports especially in .. Poor record keeping and reporting: technical meetings that are always held It was noted that most of the councillors every Monday morning to plan and review did not have adequate documentation the district service delivery issues. of monitoring, meetings held in the .. Learning visit. The Council had learning communities and other activities visit to Buhweju district to benchmark undertaken by virtue of their offices as on the projects of agriculture especially councillors at the district. This was because on planting of tea in the hilly areas of of a poor documentation and record Buhweju. This acted as motivating factor keeping culture. For instance there was no to spur development in the district. evidence that 26 out the 35 councillors had monitored Functional Adult Literacy. .. Capacity building conducted by ACODE: There was induction / training of .. Failure to use skills acquired out of the entire council conducted by ACODE council to inform Council Decisions: on the roles and responsibilities of There was no evidence that councillors councillors, debating in council, reporting had used their other skills in the previous lines and monitoring among other things trades to guide and inform council which equipped councillors with some decisions. As such 30 out of 35 councillors skills to conduct business in council, the covered by the assessment did not score district and their electoral areas. a mark on this indicator. .. Most Councillors are resident in .. Failure to debate issues of service their electoral areas: Councillors had delivery: The results show that 20 out 35 permanent residences in their respective councillors attended council but either did sub counties; which enabled citizens to not attend at least 4 times or those that regularly interact with them and raise attended up to 4 times did not debate on issues affecting them, particularly those issues concerning the delivery of services related to service delivery. in their constituencies. 3.2 Factors Hindering Performance .. Lack of a substantive clerk to council: 4.0 Recommendations The Clerk to Council was not recording the • The Council should introduce a mandatory minutes well. In some cases the first name requirement for councillors to produce of the councillor was recorded. There was individual monitoring reports to committees also lack of detail in the minutes and so it and council. was difficult to follow through the debates. • The district council should identify new .. Laxity among Councillors: Majority sources of local revenue to increase funds of councillors did not produce at least that can be allocated for the facilitation of 2 copies of monitoring reports for all the council operations and monitoring service service delivery points. This was partly delivery. attributed to laxity of councillors and lack of appreciation of the importance of • All political leaders should endeavor to monitoring service delivery. keep records of their activities through the use of diaries and personal files. .. High expectations of local political leaders: Some of the political leaders • The District Executive Committee should joined politics with high expectations which involve district councillors in monitoring were not meet. Therefore, most councillors and supervision visits. invest a lot of time and energies in their • The district council should plan and private businesses instead of the duties of budget for political monitoring activities for a councillor. councillors across the entire district. .. Failure to attend LLG councils: A • The district council should appropriate number of the councillors were not able funds for continuous capacity building of to attend the lower local governments with political leaders especially on developing claims that they were not invited or collision and presenting motions, monitoring, in schedules of meetings at various levels. document and record keeping.

4

MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

Sub Total Sub

Sub Total Sub 40 29 30 20 17

ENR 45

4 4 2 Environment

5 3

FAL 5 4 2 1 FAL

0 2 Agriculture 5

4 2 2 Sources Water 7 4

Roads 7

4 2 2 Roads

7 5 Water 7 Delivery

4 4 2

Schools 7 5

Health 7

Monitoring Service Health 5 3 3

7 5

7 Education Agriculture

7 5 Monitoring Service Delivery 5 3 3 7

Sub Total Sub Sub Total Sub 9

20 15 14 10

10

Local Revenue Local NGOs 5 5

11 6 5

5

District Budget District Communal Projects Communal 2 1

4 4 4

2

Plans, Vision and Mission and Vision Plans, Projects

Budgeting Initiation of Initiated Projects 3 3

Planning and

5 5 5 3 Sub Total Sub

6 8

25 13 15 Total Sub

Accountability 10

Issues by Electorate by Issues Principles of of Principles 2 4

5 with 3 0 0

Contact Electorate Meetings Involvement of CSO of Involvement 4 4 Electorate

5

2 2 2

Sub Total Sub

Accountability 9 9

15

Bills by Executive by Bills Administrative Administrative 3 2

5

8 5 5

Accountability Executive Motions 4 5 Political Accountability Political Role 8

8 3 5

Council 2 2 Fiscal Accountability Fiscal Legislative

2

4 3 3 Sub Total Sub

Sub Total Sub 18 16 20 Central Gov’t Central 4 3

25 17 16

4 Capacity Building Capacity Commissions/Boards

2 2 3 1 2 2

Petitions Servants 2 3

2 1 1 Oversight Civil Civil Oversight

Legislative Resources Legislative 4 4 3 3 Affairs of State

2 2 2 Public Hearings Public Monitoring Admin Monitoring

5 4

2 0 1

5

Political Leadership Political Initiatives DEC

3 2 3 Conflict Resolution Resolution Conflict

1 1 1

83 72 2018/19 Ordinances

100

Legislation

3 1 2

Council

Perfor 2016/17 59 62 mance

Motions Passed by the the by Passed Motions 100

3 3 2 Terms

1 Committees of Council of Committees

3 3 2

Political Party Political Membership to ULGA to Membership

NRM

2 2 1 Rules of Procedure of Rules

2 2 2

2018/19 District Mbarara

100 65 62 Gender

M 2016/17

Identifiers

100 37 51 District Performance Name Tumusiime J.B. J.B. Tumusiime Bamuturaki Score Average Max Score Mbarara Average Table 1: Mbarara District Council Performance FY2018/19 Mbarara District Council Performance 1: Table FY2018/19 Performance Mbarara District Chairperson’s 2: Table

5

MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

Sub Total Sub Sub Total Sub

45 24 24 45

43 30 33 34 34 38 25 29 29 18 24

Environment

5 5 3 ENR 5

4 5 4 5 5 5 4 4 4 4 5 FAL

5 0 1

FAL 5

Roads 4 0 4 0 0 0 0 0 0 1 2

7 7 4 Roads

7

Water 7 5 5 7 7 7 5 5 5 1 1

7 3 4 Water Delivery Agriculture 7

7 5 5 5 7 7 5 5 5 1 5

7 3 3

Agriculture Education 7

7 5 5 7 3 5 5 5 5 1 5 7 3 4

Monitoring Service

Education

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

LLG

Monitoring Service Delivery Health

7 0 4 7 5 5 3 5 7 1 5 5 5 5

Participation in in Participation 10

LLG Meetings

10 Sub Total Sub Sub County County Sub 4 4 0 0 0 4 0 8 2 10 10

LLG

20 16 16

Centre Sub Total Sub

9 9 8 20

15 19 19 19 19 19 19 19 19 19 19

Coordinating Coordinating

Office 9 Electorate 5 9 9 9 9 9 9 9 9 9 9

7 8

Contact Electorate

Meetings Meetings 11

Electorate Contact

Meeting Meeting 11

Electorate 10 10 10 10 10 10 10 10 10 10 10

Sub Total Sub Sub Total Sub

25 25 13 17 21 22 22 22 21 14 22 21 11 23 21

Special Skills Special

Special Skills Special 4

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

Motion

Record of Motions of Record 5 5 5 5 5 5 5 5 5 2 5 5 3 3 2

Records Book Records Committee

8 2 2 2

8 8 8 8 8 8 8 8 8 8 8

Legislation Committee Plenary

3 3 2 8

8 8 8 8 8 1 8 8 1 8 8 Business Business

% Change %

Rules of Procedure of Rules 8

93 80 81 63 45 30 9 2 7 115 106 138 164

Chairing Council Chairing 3 3 3 2018/2019 Presiding over Council Presiding over

83 81 78 75 74 71 70 69 69 68 66

100 % Change %

-7 2016/17 18

2018/19 Performance 43 45 43 46 51 33 34 53 29 63 25 100

53 62 Terms Served Served Terms

1 1 2 2 1 4 3 2 2 2 1 100

2016/17 Gender 57 57 F F F M M M M M M M M

Performance 100 Terms Served Served Terms

1 2 Gender

M

District Constituency

Mbarara Constituency

Rubindi Rwanyamahembe Ndeija Kakiika Mwizi Bukiro Kamukuzi Kagongi Kagongi / Kashara Rubaya Ndeija/ Rugando

Youth Political Political Party Political NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM Identifiers

NRM Name

Identifiers Name Maximum Scores Maximum Baram Ndyaguma Baram Average Scores Maximum Rwankwere Basil Bataringaya Tumuhimbise Patrick Asaph Muhangi Baryomunsi Godfrey Jordan Musinguzi Karuhanga Tom Atuhaire Kamushana Juliet Munannkye Venance Mpumwire Loy Barebire Natukunda Steven Mugisha Alice Nakuya Table 4: Mbarara District Councillors’ Performance FY2018/19 Performance Mbarara District Councillors’ 4: Table Table 3: Speaker of Council’s Performance FY2018/19 Performance Speaker of Council’s 3: Table

6

MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19 Sub Total Sub 4 0

45

29 25 28 30 26 29 25 28 18 28 14 17 26 21 18 20 27 13 12 20 20 15 24 ENR 5 4 4 4 5 5 4 5 5 1 5 1 1 1 2 1 4 2 1 4 4 1 1 0 0

3 FAL 5

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

1 Roads

7

5 4 5 5 6 5 5 5 5 5 1 1 5 4 5 1 5 1 0 5 5 1 0 0 4 Water

7

5 4 4 5 0 5 5 5 5 5 0 0 1 4 1 5 5 1 1 1 1 1 0 0 3 Agriculture

7

5 5 5 5 5 5 0 5 1 1 1 5 5 1 1 0 5 1 5 0 5 5 0 0 4 Education 7

5 4 5 5 5 5 5 4 1 5 5 5 5 5 5 5 5 5 1 5 4 5 4 0

5 Monitoring Service Delivery Health

7

5 0 5 5 5 5 5 4 1 5 5 5 5 5 5 5 5 4 1 5 4 1 0 0 4 Meetings

10 Sub County County Sub 0 6 0 0 0 4 0 4 0 0 0 0 4 0 0 4 4 0 0 4 0 0 10 10

LLG

3 Sub Total Sub 9 9 9 5

20

19 19 19 19 19 19 15 19 12 13 19 12 17 12 12 12 19 12 12 19 16 Office 9

9 9 9 9 9 9 9 9 9 9 9 5 9 9 5 9 9 5 9 9 5 5 9 5

8 Electorate

Contact Meeting Meeting 11 Electorate 6 3 4 7 0 8 7 3 0 7 0 7 7 0

10 10 10 10 10 10 10 10 10 10

8 Sub Total Sub

5 9 9 9 4 3 9 4 4 1 25

14 11 13 11 11 14 11 21 14 11 21 14 10 11 13 Special Skills Special

4

0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 Motion

5

5 2 5 2 2 2 5 2 5 5 2 5 5 0 0 0 2 2 2 0 2 2 2 0 3 Committee

8 8 8 0 8 0 8 8 8 8 8 8 8 8 8 8 8 1 0 0 8 1 1 8 0

6 Legislation Plenary

8

1 1 8 1 3 1 1 1 8 1 1 8 1 1 1 1 1 8 1 1 1 1 1 1 4 % Change % 8 2

77 74 40 88 87 35 88 19

-11 -14 -22 -17 -40 -32 -34 -45 161 136 273 56 2018/2019 6

62 61 60 60 60 59 58 58 55 55 54 50 49 47 43 41 40 39 38 38 36 35 34

100 55 2016/17

Performance 35 35 43 32 23 25 31 43 51 62 63 64 48 25 11 48 65 56 32 53 11

100 41 Terms Served Served Terms

2 1 1 1 3 2 1 1 3 2 1 1 1 1 4 1 1 2 1 1 1 1

Gender

F F F F F F F F F F F F F F

M M M M M M M M M M

Constituency

Nyakayojo Youth Kakoba PWD PWD Bugamba Kakiika / Biharwe Rwanyamahembe/ Bubaare Kashare Kamukuzi/Nyamitanga Bugamba Rugando Bubaare Rubaya Older Persons Nyamitanga Nyakayojo Kakoba Biharwe Workers Mwizi Workers Older Persons Political NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM

Identifiers Name Maximum Scores Maximum Mulongo Prisca Rwakishaija Muganzi Jeninah Kyomuhendo Donah Kyomugisha Michael Mukiiza Jolly Kabwizi Kakyara Justine Joseline Kemirembe Immaculate Muhangi MarkMugisha Annet Arinaitwe Bwongyerwa Annah Tirwakunda Robert Arinanye Bikye Annah Kansiime Rutabanzibwa Natugumya Pheny Baija Jennifer Merian Mutashwera Jumba Erimiya Rukundo Deogratius Bwekwaso Julius Ahmed Mulindwa Kaniga Muhanguzi David Tugumisirize Patience Jesca Mwijuka Bakawonga Twaha Average *Councillors Assessed Using Secondary Data

7 MBARARA DISTRICT LOCAL GOVERNMENT council SCORECARD assessment FY 2018/19

REFERENCES Bainomugisha, A., Mbabazi, J., Muhwezi, W., W., Bogere, G., Atukunda, P., Ssemakula, E.G., Otile, O., M., Kasalirwe, F., Mukwaya, N., R., Akena, W., Ayesigwa, R., The Local Government Councils Scorecard FY 2018/19: The Next Big Steps; Consolidating Gains of Decentralisation and Repositioning the Local Government Sector in Uganda. ACODE Policy Research Paper Series No. 96, 2020. Mbarara DLG (2019), Council Minutes FY 2018/19 (2019), Minutes of Committees of Council FY 2018/19 (2019), Committee Monitoring Reports FY 2018/19 Republic of Uganda (1995), Constitution of the Republic of Uganda (1997), Local Governments Act (CAP 243) as Amended UBOS (2019), District Projected Population

About ACODE: The Advocates Coalition for Development and Environment (ACODE) is an independent public policy research and advocacy Think Tank based in Uganda, working in the East and Southern Africa sub-regions on a wide range of public policy issues. Our core business is policy research and analysis, outreach and capacity building. Since it’s founding 19 years ago, ACODE has emerged as one of the leading regional public policy think tanks in Sub-Saharan Africa. For the last 8 consecutive years, ACODE has been recognized among the Top-100 Think Tanks worldwide by the University of Pennsylvania’s annual Global-Go-To Think Tank Index Reports. About LGCSCI: The Local Government Councils Scorecard Initiative (LGCSCI) is a policy research and capacity building initiative implemented by ACODE and ULGA. The initiative is a strategic social accountability initiative that enables citizens to demand excellence of their local governments and enables local governments to respond effectively and efficiently to those demands with the aim of improving service delivery.

ABOUT THE AUTHORS Dr. Arthur Bainomugisha is the Executive Director of ACODE. He is a Lecturer of Peace and Conflict studies, in the Faculty of Religion and Peace Studies at Makerere University and a senior teaching fellow in the department of Public Administration and Governance at Uganda Christian University Mukono. He formerly worked as a Civil Society Fellow at the International Peace Institute in New York. He has authored various research publications. He holds a PhD and an MA in Peace Studies, a Post Graduate Diploma in Research Methods from the University of Bradford (UK) and a BA in Mass Communication from Makerere University. Geoffrey Rukyamuzi Bagalamuggaga is a Research Fellow at the Institute of Interdisciplinary Training and Research, of Science and Technology. Geoffrey holds a master’s degree in Ethics and Public Management and a Bachelor’s Degree in Arts with education from Makerere University. Nuwasasira Edinah a research assistant for Mbarara District and the coordinator Greater Mbarara Civil Society Organisation Forum an umbrella of CSOs in Greater Mbarara District that provides a platform for people centered advocacy governance and social accountability.

ADVOCATES COALITION FOR DEVELOPMENT AND ENVIRONMENT Plot 96, Kanjokya Street, Kamwokya. P. O. Box 29836, Kampala. Tel: +256 312 812150 Email: [email protected]; [email protected]. Website: www.acode-u.org

WITH SUPPORT FROM:

8