Advocates Coalition for Development and Environment Plot 96, Kanjokya Street, Kamwokya P. O. Box 29836, Tel: +256 312 812150 Email: [email protected]; [email protected] Website: http://www.acode-u.org

LOCAL GOVERNMENT COUNCILS’ PERFORMANCE AND PUBLIC SERVICE DELIVERY IN

Kabarole District Council Score-Card Report FY 2013/2014

Authors: Dr. Winstons Muhwezi, David Mugarra and OVERVIEW OF Samuel Kagaba Kazooba DURING FY2013/14

Kabarole district local government is governed by BACKGROUND AND RATIONALE both political and technical wings. In FY2013/14, the political team was headed by the Chairperson, Hon. This policy brief presents findings from the 2013/14 Richard Rwabuhinga, who was assisted by 35 elected assessment of Kabarole District Local Government councillors (including the Speaker). The technical under the Local Government Councils’ Score-card leadership was headed by Mr. Nicholas Muron Initiative (LGCSCI), an evidence based project Ocakara, as the Chief Administrative Officer, who implemented by ACODE in partnership with ULGA with coordinates and works with heads of departments support from DGF. It seeks to enhance the effectiveness to provide technical guidance and implement lawful of elected leaders in fulfilling their mandate and build council resolutions. the citizens’ capacity to demand better services. The initiative is implemented in 30 districts, including Kabarole district lies along the base of the snow- Kabarole which was being assessed for the third time. capped Mount Rwenzori with the major town, Fort The initiative uses the score-card – an assessment Portal, named after the British special commissioner tool - to facilitate annual performance assessments on to East Africa, Gerald Portal. In addition to Mount the district council, district chairperson, speaker and Rwenzori and the multiple rivers and streams that flow councillors with focus on their roles and responsibilities from it, Kabarole district is home to Kibaale Forest, as stipulated in the Local Government Act CAP 243 (as Semuliki Game Park and two universities, Mountains amended). of the Moon University and Uganda Pentecostal University. The annual assessment process is conducted by teams of researchers across the 30 districts partaking in the Agriculture is the major economic activity for 80 LGCSCI assessment. The research process involves a per cent of the population and additional economic review of key district documents, interviews with key activities include trade and entrepreneurship. As only respondents and consultations with citizens through 20 per cent of the households derive their livelihoods focus group discussions (FGDs). Following the data from formal gainful employment, income generating collection process, data is cleaned and analysed to activities include transport services, brick-making, identify key themes and patterns wherein a district stone quarrying and mining (pozzolana and sand). report detailing the findings is produced for each of Kabarole the assessed districts (full reports are available online; http://www.acode-u.org/). LGCSCI also produces During FY2013/14, Kabarole district realized great and disseminates a ‘National Synthesis Report’ that efforts in improving district water coverage however provides trends analysis for all 30 of the assessed despite advances; the overall quality of service provision districts. Both reports are disseminated nationally across all sectors was below the national standard for with districts receiving copies of both their specific quality service provision. For example, water coverage reports and copies of the National Synthesis Report. improved from 57 per cent in FY2012/13 to 81 per cent in FY2013/14 which was mainly attributed to the projects initiated by the district. Specifically the Maizimarungi Project funded by UNICEF extended water to several rural communities. In terms of

ACODE Public Service Delivery and Accountability Report Series No.63, 2015 1 construction, the district also constructed several FACTORS AFFECTING SERVICE shallow wells in Busoro sub-county, Katebwa sub- county and West Division, among other areas. Notable DELIVERY IN KABAROLE DISTRICT efforts were made in the rehabilitation of water sources in Kicwamba sub-county too. However, in spite of a) Budgetary Constraints: During the fiscal such improvements in the water sector, areas remain year under review, Kabarole District collected without clean and safe drinking water in Kabarole UGX 979,510,000 million from local sources district. Karangura sub-county, with a population of accounting for 4 per cent of its annual budget 18,700 people1 has only one shallow well and the only of UGX 26,867,121,495 billion. Although the regular sources of water are the mountain streams. district significantly increased its local revenue Specific water challenges that faced the district during contributions to the budget over the years, the FY2013/14 included the poor maintenance of water district still relies heavily central government sources by community members, the long distances funding which accounts for over 69 per cent to the water sources and multiple non-functional water of the district budget. Central government sources. disbursements, which form the greatest percentage of the district budget, are mainly in Figure 1: Children fetching water from a tributary river in form of conditional grants which means there Karangura Sub-county was little or no room for the re-allocation of funds by the district local government to other service delivery priorities during the previous FY.

Figure 3: Review of Locally Generated Revenue in Kabarole District

Photo Credit: ACODE Digital Library

In terms of roads, Kabarole district has a total of 295.6 km of feeder roads of which 45km are gravel and 250.6 km are earth roads. The district also has a total length of close to 800km of community access roads. The Source: Kabarole District Local Government Final Accounts Community Agriculture Infrastructure Improvement FY2013/14 Programme (CAIIP) worked on 59.3km of road to ease the transportation of citizens and produce. However, b) Limited Support Supervision and Operations concerns emerged from citizens about the delays in Repairs and Maintenance: Weak supervision work under CAIIP, despite targeted long-term project and inspection support to service delivery planning. The district is also working with an investor, staff and services from both the technical Royal Transporters, to improve the road to Harugongo and political wings was attributed to an over- sub-county. However, despite the achievements in the reliance on insufficient central government sector, the district was still struggling with the poor funds. In addition, central government funds state of roads, especially during the rainy season in were often released late during the previous FY sub-counties including Harugongo, Karangura and which affected the planning and implementation Kasenda. process of political and technical staff to provide support supervision to staff and monitor the Figure 2: Road to Harugongo Sub-county in a poor state repairs and maintenance of service delivery points.

c) Slow Procurement Systems: There were concerns with regard to the slow and bureaucratic system of procurement which led to the delayed delivery of services. Slow procurement systems had impacted negatively on the implementation of key services in FY2013/14 and several public demonstrations were held, especially on issues of delayed engineering and road works. Photo Credit: ACODE Digital Library d) Poor Monitoring and Documentation: Although 1 Uganda Bureau of Statistics, 2012

2 ACODE Public Service Delivery and Accountability Report Series No.63, 2015 councillors are mandated to monitor public Table 1: Kabarole District Council Score-card FY 2013/14 services, insufficient funds were allotted to the exercise which meant that councilors were 2011/12 75 100 not adequately facilitated to carry out their 2012/13 63 100 monitoring roles. In many cases where the councillors claimed to have monitored, there 2013/14 81 100 was often no evidence (such as a monitoring

Trends in Performance % change 29 report) to back up their claims on the monitoring activities they had undertaken. Max Indicator Score Explanatory Remarks e) Limited Contact with Electorate: The failure Score

by the electorate to understand the roles Parameter

and responsibilities of political leaders and Rules of Procedure 2 2 councillors affected the councillors’ contact Membership to ULGA 1 2 The district council with their electorate. The electorate had diverse ensured that standard rules of expectations and often excessive demands, Committees of Council 2 3 procedure were reviewed, adopted particularly in regards to perceived social and Motions passed 2 3 and operationalized financial responsibilities, which discouraged the and were also fully Ordinances 0 3 subscribed to ULGA. councilors from maintaining contact with their Motions on the Conflict Resolution 1 1 procurement of tea electorate. plantlets, the approval of administrative Public Hearings 0 2 units and the annual

LEGISLATIVE ROLE leaders’ forum were Legislative resources 3 4 moved however, there SCORE-CARD PERFORMANCE were no ordinances Petitions 2 2 passed. Meanwhile, the districts of Soroti, Mbarara, Kanungu The score-card parameters are derived from the Capacity building 2 3 visited Kabarole district. mandate of the organs assessed as stipulated in the Sub total 15 25 Local Governments Act. While all the four categories of Kabarole District Local Government political staff are Fiscal Accountability 4 4 The district council approved work evaluated on their legislative and monitoring functions, Political Accountability 7 8 plans and budgets whilst value for the district chairperson, speaker and council are money was ensured Administrative Accountability 8 8 assessed against additional roles. through monitoring and technocrat Involvement of CSO 2 2 oversight. PAC reports As the political head of the district, the district were reviewed Principles of accountability 2 3 and through notice chairperson is also assessed on their political boards, the district council and lower leadership as well as the initiation of and participation local governments, the financial releases in development projects in their electoral area. The were communicated speaker is assessed primarily as a councillor with to citizens. The client charter was drafted an additional scoring requirement of presiding over ACCOUNTABILITY TO CITIZENS Sub total 23 25 in April 2014 and was being implemented and the preservation of order in council. The district whilst there was council, the highest organ in the district, is assessed also evidence of partnerships with against planning and budgeting requirements and in USAID, UNICEF and the providing accountability to citizens. media.

Plans, Vision and Mission 5 5 The district council approved DDP, CBP and District Budget 4 4 work plans. Despite an increase in local Local Revenue 9 11 revenue, there was no evidence of an ordinance on local Sub total 18 20 government financial

PLANNING & BUDGETING autonomy.

Education 5 5

Health 5 5 There was substantial Water and sanitation 3 4 monitoring done by council although sometimes the follow Roads 3 4 up action on the issues emerging from the Agriculture 3 4 monitoring exercise was not done. FAL 3 4

ENR 3 4

MONITORING SERVICE DELIVERY ON NPPAs Sub total 25 30

ACODE Public Service Delivery and Accountability Report Series No.63, 2015 3 Table 2: Chairperson’s Score-card FY2013/14 Table 3: Speaker’s Score-card FY 2013/14

Hon. Richard Rwabuhinga Independent Name Clovis Mugabo

2011/12 80 100 District Kabarole

2012/13 89 100 Political Party NRM

Constituency Mugusu 2013/14 87 100

Gender M % change -2 Trends in Performance Terms 1

2011/12 54 100 Max Indicators Score Explanatory Remarks Score 2012/13 66 100 Parameter 2013/14 72 100 DEC 3 3

Monitoring admin 4 5 % change 9 Trends in Performance State of affairs 2 2 The chairperson chaired all Oversight civil 4 4 meetings and wrote to the servants MoLG on the creation of Town Max Indicator Score Explanatory Remarks boards. He also delivered a Score report on the district state of Commissions/ 2 2 affairs on May 30, 2014. and

Boards Parameter there was evidence of the presentation of PAC reports. Chairing council 3 3 Central gov’t 4 4

Rules of procedure 6 9 The district speaker presided Sub Total 19 20 over five council sessions POLITICAL LEADERSHIP Business Committee 3 3 where the rules of procedure were adopted and enforced. Council 2 2 The records and petitions file Records book 2 2 exists in the Clerk’s office and Motions Executive 6 6 the speaker’s profession as a The chairman attended at least veterinary assistant saw him four council meetings and Bills by Executive 0 7 Record of motions 3 3 guide the council on animal moved a bill on the creation of disease out-breaks like foot Town boards and on hosting a and mouth disease and swine week of accountability. Special skills 2 5 fever. Sub Total 8 15 LEGISLATIVE ROLE Sub Total 19 25 Legislative Function Meetings Electorate 5 5 The chairman availed evidence Meetings Electorate 5 11 Issues by electorate 5 5 of community meetings, radio The speaker attended four talk shows and citizen rallies to meetings with community give feedback to the electorate members in the parishes of Sub Total 10 10 after monitoring exercises coordinating center 9 9 Magunga, Karwoma, Burungu

CONTACT WITH ELECTORATE and Iboroga during the year under review. The speaker Projects Initiated 3 3 also used his small animal Sub Total 14 20 drug shop as his office. The chairman initiated the

Communal Projects 1 2 construction of the Contact with Electorate HC IV under the funding of BAYLOR, Maizi Marungi water NGOs 5 3 The speaker only attended two project funded by UNICEF, and meetings at the LLG where mobilized people to commit a Participation in LLG 4 10 he shared communication on day for community service. Sub Total 9 10 district activities and service

PROJECTS delivery. LLG Agriculture 7 7 Health 7 7 Health 7 7 The chairman monitored 90% of the services - launched Education 7 7 CAIIP roads, commissioned Schools 7 7 community roads, district The speaker monitored a Agriculture 7 7 bridges in Karangura and substantial number of service Roads 7 7 Katebwa, and visited several delivery facilities, made farmer revolutionary groups. Water 3 7 reports and followed up on Water Sources 5 7 He also commissioned a cow the emerging issues in the project and planting Roads 3 7 health, education, agriculture in Karangura and Katebwa. and environment sectors FAL 3 5 Nyakinoni and Butebe sub- FAL 3 5 although his monitoring role counties. He also ensured the was found wanting in water, Environment 5 5 planting of the forest was done roads and FAL. for Nyakigumba and Nyakinoni Environment 5 5 forest reserves. Sub Total 41 45

MONITORING SERVICE DELIVERY ON NATIONAL PRIORITY PROGRAMME AREAS Sub total 35 45 Monitoring NPPAs

4 ACODE Public Service Delivery and Accountability Report Series No.63, 2015 Sub Total Sub

45 40 40 37 37 35 32 29 30 29 35 28 35 38 28 35 29 28 25 31 22 22 29 21 28 15 28 ENR

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

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

7 7 5 7 7 5 7 7 0 7 7 6 7 5 7 7 7 5 7 5 5 7 5 7 7 5 7 Water 7 5 4 7 7 6 5 7 7 7 5 7 7 5 7 0 7 0 7 5 5 7 5 7 0 5 7

Monitoring NPPA Agriculture

7 7 7 7 7 5 5 5 7 7 5 7 7 7 7 7 7 5 7 1 1 7 5 7 1 5 7 Education

7 7 7 7 5 7 5 5 7 7 5 1 7 5 7 7 1 5 7 5 5 7 1 0 1 5 7 Health

7 7 7 7 7 7 5 1 7 7 5 7 7 5 7 7 5 7 1 5 5 1 1 5 1 5 7 Sub county meetings county Sub 8 8

10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10

LLGs Subtotal

9 20 18 18 18 18 18 18 18 18 18 18 18 18 15 18 18 18 18 18 18 18 18 18 18 11 18 Office

9 9 9 9 9 9 9 9 9 9 9 9 6 9 9 9 9 9 9 9 9 9 9 2 9 2 9 Meeting electorate Meeting

9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 7

11 Contact with electorate Sub total Sub

9 9 9 8 8 25 18 17 18 16 17 16 17 16 16 10 17 16 13 13 16 16 16 16 16 18 16 Special skill Special

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

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

8 8 8 8 8 8 8 8 8 5 8 8 8 8 1 8 8 8 0 8 8 0 8 8 8 8 8 Plenary

8 8 8 8 8 8 8 8 8 5 8 1 1 8 8 5 5 8 8 8 8 8 8 8 8 8 8

Legislative role % Change %

0 2 5 53 63 100 -6 25 -12 59 4 4 125 11 27 27 30 -9 10 53 3 5 63 35 9 -23 2013/14

100 86 85 83 81 80 76 74 74 73 73 73 72 72 72 70 70 69 69 67 66 66 65 65 65 61 61 2012/13

100 84 83 79 53 49 38 79 59 83 46 70 69 32 65 55 55 53 76 61 43 64 62 40 48 56 79 2011/12

100 55 68 64 67 39 40 70 72 54 57 78 59 66 60 72 77 67 62 53 63 61 50 81 50 63 Trends in Performance Terms

1 2 1 1 2 1 1 1 1 1 2 1 1 4 1 3 1 1 4 1 1 1 1 3 2 2 Gender F F F F F F M M M M M M M M M M M M M M M M M M M F

Maximum Score Sub-county Sub-county

Hakibale, Busoro Buheesi Kateebwa Karambi East Division Kabonero West Division Hakibale Ruteete Kibiito Kisomoro Kabonera/Kibiito TC Buheesi Rwimi Town Council Katebwa PWD Kibito Kasenda Karangura Rwimi Town Council Youth Busoro Bukuku Bukuku Political Party Political

NRM Ind NRM NRM NRM NRM Ind NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM NRM Ind NRM NRM NRM NRM NRM NRM Name Stella Kyorampe Moses Ikagobya John Manume Joseph Mashuhuko Sylvia Rwabwogo John Kyaligonza Prosper Businge Robertson Monday Richard Tatiina Ambrose Katabazi Joshua Kagaba Patrick Karatunga Patrick Mugenyi Amina Kaija K. Annet Kusemererwa Annah Byabasaija Esther Masika Matsipa Paul Katiisa Amon Rutenta Emmanuel Tugume Stephen Munihira Denis Nkwasibwe Stephen Agaba Richard Nyakana Pascal Kato Byoma Florence Kadoma Identifiers Table 4: Summary performance of Kabarole District Councillors FY 2013/14

ACODE Public Service Delivery and Accountability Report Series No.63, 2015 5 Sub Total Sub

6 0 POLICY RECOMMENDATIONS FOR 13 19 26 18 11 14 40 ENR IMPROVED SERVICE DELIVERY

0 1 1 1 2 0 0 0 2 FAL From the Kabarole District Council Scorecard Report, 0 1 0 0 0 1 0 0 3

it is recommended that: Roads

1 1 3 5 1 1 0 0 7 Water 1. Central Government considers increasing 1 6 7 5 1 1 0 0 7 the budgetary allocation for Kabarole Local

Monitoring NPPA Agriculture Government to meet service delivery priorities.

1 7 7 5 1 1 7 0 7 Education 2. Kabarole District Local Government devises 5 1 7 1 1 1 7 0 7

strategies to increase and effectively collect the Health 5 2 1 1 5 1 0 0

7 local revenue from the available local resources. Sub county meetings county Sub 3. Kabarole District Local Government recognises 0 0 0 0 6 10 10 10 10

LLGs the need to recruit additional staff to fill the Subtotal

9 0 vacant positions in order for the full team of 18 18 16 16 12 18 18

staff to carry out district activities for the Office

9 9 9 9 9 9 9 0

9 effective delivery of services. Meeting electorate Meeting 9 9 0 7 7 3 9 0 9

Contact with electorate 4. Kabarole District Local Government intensifies Sub total Sub monitoring by both political and administrative 2 9 2 2

12 16 16 16 18 leaders to check shoddy works on service Special skill Special

0 0 0 0 0 0 0 0 2 delivery units, especially road works. Motion 0 0 0 0 0 0 0 0 0 5. Kabarole District Local Government

institutionalizes the practice of elected leaders Committee 8 8 8 8 1 8 1 1

8 producing monitoring reports. Plenary 4 8 8 8 1 1 1 1 8

Legislative role 6. Kabarole District Local Government includes % Change % more capacity building initiatives for council

-13 -17 0 -18 26 -8 21 -76 0 members and/or elected leaders in the areas of 2013/14 understanding legislation, drafting motions and 53 53 51 50 39 37 34 8 86 bills, report writing, record keeping and minute

2012/13 taking.

84 61 64 51 61 31 40 28 33 2011/12 56 50 26 70 30 34 52 16 55

Trends in Performance The full report on these findings can be accessed on Terms

1 5 1 1 1 1 3 1 ACODE’s online information center at:

http:www.acode-u.org/ Gender M F F M F F F F

About the Authors Sub-county Sub-county Dr. Wilson Winstons Muhwezi, PhD is a Research Director at ACODE and an Associate Professor at Makerere University College of Health Sciences. Winstons is an accomplished researcher and has Kicwamba South Division Ruteete Kasenda South Division Karambi Youth PWD Western Division published over 20 papers in international peer

reviewed journals about governance issues related to Political Party Political public health, mental health, reproductive health and rural development.

NRM NRM Ind FDC NRM NRM NRM Ind David Mugarra is a Program Officer with Kabarole Research and Resource Center (KRC) under the research and advocacy unit.

Samuel Kazooba Kagaba is a Research Fellow at Pincer Name Training and Research Institute Kampala Uganda. He previously worked as the Academic Registrar at the Institute of Hospice and Palliative Medicine, College of Health Sciences, Makerere University and at The SOS Children’s Villages Uganda as the Education Hon. Rose Monday Byabasaija, was promoted to the post of Byabasaija, Monday during the FY 2013/14 Hon. Rose she completed her tenure RDC before Deputy Director. Charles Rutakirwa Faith Nyakairu Gertrude Bahinda Joram Bintamanya Rose Kajubu Stella Kemigabo Rosemary Kabona Judith Nyakaisiki Average Identifiers NB:

6 ACODE Public Service Delivery and Accountability Report Series No.63, 2015