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The Impact of Decentralization and Privatization on Municipal Services

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The Impact of Decentralization and Privatization on Municipal Services JMMS/2001 International Labour Organization Sectoral Activities Programme The Impact of Decentralization and Privatization on Municipal Services Report for discussion at the Joint Meeting on the Impact of Decentralization and Privatization on Municipal Services Geneva, 15-19 October 2001 International Labour Office Geneva Contents Acknowledgements............................................................................................................................ v Introduction........................................................................................................................................ 1 Background to the Meeting...................................................................................................... 1 Background to the report ......................................................................................................... 2 Structure of the report.............................................................................................................. 2 1. Background.............................................................................................................................. 3 1.1. Definitions ..................................................................................................................... 3 1.1.1. Decentralization .............................................................................................................. 3 1.1.2. Privatization .................................................................................................................... 5 1.1.3. Municipal services........................................................................................................... 6 1.2. Scope of the report......................................................................................................... 7 2. Municipal services in various regional contexts...................................................................... 10 2.1. Importance of municipal services worldwide................................................................ 10 2.2. Financing....................................................................................................................... 13 2.3. Importance within the national governmental structure ................................................ 14 3. Trends in decentralization........................................................................................................ 15 3.1. Origins........................................................................................................................... 15 3.2. Forms of decentralization.............................................................................................. 20 3.3. Implications for human resource management.............................................................. 21 3.4. Decentralization of collective bargaining...................................................................... 23 3.5. Consequences of decentralization: Regulation, re-centralization, networks ................. 26 4. Trends in privatization of public services................................................................................ 28 4.1. Variety of approaches and sectors................................................................................. 28 4.2. Ownership and competition........................................................................................... 35 4.3. Contracting out .............................................................................................................. 41 4.4. Partnerships and alternative approaches........................................................................ 43 5. Interlinkage of decentralization and privatization with efficiency, quality and decent work........................................................................................................... 50 5.1. Efficiency and quality.................................................................................................... 50 5.2. Decent work................................................................................................................... 53 5.3. Role of employers’ organizations.................................................................................. 57 5.4. Role of workers’ organizations...................................................................................... 59 6. Approaches to facilitating decentralization from central to local government levels and privatization ...................................................................................................................... 65 6.1. Approaches and impact of social dialogue by sectors and regions................................ 65 JMMS-R-2001-06-0210-1.Doc/v1 iii 6.2. Regulation...................................................................................................................... 71 7. Development of employment................................................................................................... 75 7.1. General trends in public and private employment......................................................... 75 7.2. Education....................................................................................................................... 85 7.3. Health services............................................................................................................... 89 7.4. Transport........................................................................................................................ 90 7.5. Utilities .......................................................................................................................... 93 8. Impact on working conditions and terms of employment in the municipal services............... 95 8.1. Education....................................................................................................................... 96 8.2. Health services............................................................................................................... 99 8.3. Transport........................................................................................................................ 100 8.4. Utilities .......................................................................................................................... 102 9. Summary: Comparative analysis ............................................................................................. 106 10. Suggested points for discussion............................................................................................... 111 Appendices 1. Total employment and public employment by sex .................................................................... 113 2. Public sector employment by economic activity in percentages ............................................... 116 iv JMMS-R-2001-06-0210-1.Doc/v1 Acknowledgements The report was prepared by a group of senior officials in charge of the sectors concerned in the Sectoral Activities Department of the ILO, Gabriele Ullrich (coordination of the report and health services), Hubertus Essenberg (transport and utilities) and William Ratteree (education). Statistical data on employment effects were provided by Eivind Hoffmann and Messaoud Hammouya of the ILO Bureau of Statistics. Furthermore, the report draws extensively on the findings of preparatory research work which had been commissioned by the ILO from Stephen Bach, Brendan Martin, Michael Paddon and Robin Simpson and which are being published in separate working papers. JMMS-R-2001-06-0210-1.Doc/v1 v Introduction This report has been prepared by the International Labour Office as the basis for discussions at the Joint Meeting on the Impact of Decentralization and Privatization on Municipal Services to be held from 15 to 19 October 2001 in Geneva. Background to the Meeting At its 273rd Session (November 1998), the Governing Body of the International Labour Office decided that a meeting on the impact of decentralization and privatization on municipal services would be included in the programme of sectoral meetings for 2000-01. At its 274th Session (March 1999) the Governing Body decided that the purpose of the Meeting would be to exchange views on the impact of decentralization and privatization on municipal services, using a report prepared by the Office as the basis for its discussions; to adopt conclusions that include proposals for action by governments, employers’ and workers’ organizations at the national level and by the ILO; and to adopt a report on its discussions. The Meeting may also adopt resolutions. The Governing Body also decided that the Meeting should be joint (governments as public employers and workers’ representatives) with the participation of some private employers’ representatives. It was decided to invite the following 18 countries: Benin, Chile, Ecuador, Egypt, Finland, Hungary, Italy, Japan, Republic of Korea, Latvia, Namibia, Papua New Guinea, Philippines, Russian Federation, Togo, United Kingdom, Venezuela, Zimbabwe. In the event that a government declines the invitation, an alternate will be invited from the following reserve list which was established at the same time: Albania, Algeria, Cape Verde, Czech Republic, Denmark, Honduras, India, Jordan, Norway, Panama, Poland, Romania, San Marino, South Africa, Spain, Switzerland, Tajikistan, Ukraine, United States. The Governing Body also decided that seven Employers’ representatives from the private sector and 25 Workers’ representatives would be appointed
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