Reporting Local Government Issues a Manual for Jamaican Journalists

Reporting Local Government Issues A Manual for Jamaican Journalists !e publication of this manual was made possible through the UNDP-supported project Building Civil Society Capacity to Support Good Governance by Local Authorities.

Produced by the Caribbean Institute of Media and Communication, University of the West Indies, Mona Campus, Kingston 7, Jamaica.

Publication team: Kipling Claude Robinson, Fae Ellington, Keith Miller, Olivia Bravo

We also wish to thank the Gleaner Company Limited, Milton Brown, and the Sir Arthur Lewis Institute of Social Science, UWI Mona for permission to use their work in this manual.

!is manual is NOT for sale. #ontents

4.4. Structure, Role and Function of Local !odule "ne: Authorities 20 #emocratic governance 4.5. Legal Framework of Local and journalism values Government Authorities 21 4.6. Executive Arrangement 22 2. Media and Democratic Governance . . . . .4 4.6.1. Policy-making 2.1. Overview 4 4.6.2. Role of Mayor/ Chairman of Council 4.6.3. Role of Council 2.2. Learning Objectives 4 4.6.4. Role and Responsibility of Councillors 2.3. Essentials of Democratic Governance 4 4.6.5. Role of Council Committees 2.4. Role of Media in Democratic Governance 8 4.7. Administrative Framework 25 2.4.1. Factors in!uencing capacity of journalists and media to perform their 4.8. Central Government (Powers of the roles Minister) 25

3. Journalism Values and Media Content . .12 5. Financing Local Authorities ...... 28 3.1. Overview 12 5.1. Overview 28 3.2. Learning Objectives 12 5.2. Learning Objectives 28 3.3. Traditional Core Values of Journalism 12 5.3. Sources of Funds for Local Government Authorities 28 3.3.1. Accuracy 5.4. Financial Planning 30 3.3.2. Impartiality 3.3.3. Balance and Fairness 5.5. Monitoring the "nances 32 3.3.4. Independence 3.3.5. Transparency 3.4. !reats to Traditional Core Values 15 !odule 'ree: 'e reform process !odule $wo: 6. Local Government Reform ...... 36 %tru&ure and fun&ion of 6.1. Learning Objectives 36 local government authorities 6.2. Historical Overview of the Reform Process 36 6.2.1. Problem identi"cation—Studies and Reports 4. Structure, Organisation and Role of Local Authorities ...... 18 6.2.2. Game-changing developments 6.2.3. 1989— New Season of Reform Begins 4.1. Overview 18 6.2.4. Ministry Paper 8/93: New Paradigm Learning Objectives 18 4.2. 6.2.5. Launch of Local Government Reform 4.3. Historical Development of Local Programme Government in Jamaica 18

Reporting Local Government Issues — A Manual for Jamaican Journalists i 6.2.6. Major Early Achievements of the 9.3. Preparation for Election Coverage Programme (Newsroom Readiness) 60 6.2.7. Setbacks 9.4. Establishing an Election Coverage 6.2.8. Resuscitation of the Reform Process Team and Coverage Plan 61 2003-2004 9.5. Achieving Balance and Fairness in 6.3. Highlights of Local Government News Reporting 62 Reform since 1994 42 9.5.1. Cover the Issues Fairly, Factually and 6.3.1. Financial Reforms $oroughly 6.3.2. Legal Reforms 9.6. Election Debates 65 6.3.3. Institutional Capacity Building and 9.7. Election Day (Access to polling places Human Resource Development and candidates) 65 6.3.4. Enhancing Public Education and 9.8. Accessing and Reporting Election Results 66 Participatory Local Governance 6.4. New administration, 2007 45 10. Covering Meetings of Council and Committees of Council ...... 68 7. Advancing the Reform Agenda: 10.1. Overview 68 Challenges and Opportunities ...... 47 10.2. Learning Objectives 68 7.1 Learning Objectives 47 10.3. Media Treatment of Local Government 68 7.2. Decentralization: Deepening Democracy 47 10.4. Newsworthiness and coverage of ‘local’ 7.3. Some Areas of Concern 48 issues 69 7.4. !e Way Forward 50 10.5. Investigative / Enterprise Reporting 71 10.6. Relevance and accountability as an alternative approach to coverage 72 10.6.1. Relevance !odule (our: 10.6.2. Accountability )eporting local government 10.7. !e Councillor’s Perspective 73 10.8. Tips for more e$ective reporting 74 8. Covering Elections: Understanding 10.9. Conclusion: A Framework Integrating the Electoral System ...... 54 Good Journalism and Good 8.1. Overview 54 Governance in Local Government 74 8.2. Learning Objectives 54 11. References ...... 77 8.3. Background 55 8.4. Role and Responsibility of the Electoral O#ce 55 12. Appendices ...... 79 8.5. Eligibility for Election as Councillor 56 12.1. Appendix 1: Who is who in Local Government 79 8.6. Eligibility to vote 57 12.2. Appendix 2: Results of Parish Council 8.7. Calling of Local Government Poll 58 Elections of March 26, 2012. 83

9. Covering the Elections: From Campaigning to Reporting the Results .60 9.1. Overview 60 9.2. Learning Objectives 60

ii Reporting Local Government Issues — A Manual for Jamaican Journalists %oreword !is manual on Reporting Local Government Issues is part of a larger project, Building Civil Society Capacity to Support Good Governance by Local Authorities, funded by the United Nations Development Programme (UNDP) with implementing partners being !e Centre for Leadership and Governance, at !e University of the West Indies and responsible parties being the National Association of Parish Development Committees (NAPDEC) and the Department (Ministry) of Local Government. Among other things, the project “aims to strengthen the capacity of the civil society and public institutions to provide oversight of public expenditure, at the local level.”

An expected output of the project is the improvement of media’s capacity to report on local authorities’ use of public funds. !is will be done through improving local and national media’s understanding of local government reform and devolution as well as increased media coverage of public expenditure at the local level. Increasing understanding and more informed media coverage of local government issues will require more sustained public focus by all the critical stakeholders on the role and work of local authorities than has been evident in the past.

Consequently, this manual is part of a wider project to increase the knowledge base of media workers and journalists and enhance skills and capacity to report and interpret the issues that impact the quality of public debate and service delivery at the local level. !e expectation is that the manual will be used by journalism trainers, journalism students and journalists and will be a training resource for the Caribbean Institute of Media and Communication (CARIMAC).

!e fundamental underlying assumption is the recognition that democracy and the quality of journalism are inextricably linked. An independent media plays a critical role in promoting democratic values, good governance and citizen participation in the democratic process. !is is all the more important precisely because local government deals with issues that touch the lives of people where government matters most. Good governance is at least as important at the local level as it is at the national.

Enhancing good governance at the level of local government will require new skill sets and attitudes by all the major stakeholders: Central governments will have to deliver more of the promised reforms of local government; local administrations will have to deliver better quality and more e#cient services; citizens will have to play closer attention to what gets done (or not done) in their names; and media will have to focus more of their reporting on issues of accountability and transparency. !is manual is o$ered to support media in this task.

Claude Robinson Communication and Media Consultant 16 April, 2012

Reporting Local Government Issues — A Manual for Jamaican Journalists 1 1. Introduction R5 !odule $ree traces the history of the process to reform local government (especially since the 1990s. It highlights achievements and setbacks and outlines the !e Manual is divided into four un"nished agenda as well as the modules which can be adapted for plans by the political administration di$erent occasions depending on the to move the process forward. duration of the workshop or course R5 !odule %our deals with the and the background and preparation issues and skills for covering local of participants. It can be adapted for government elections as well as use in a full credit course over 12 the on-going activities of local weeks or workshop of one to three government authorities. days’ duration. Each chapter ends with a list of R5 !odule "ne covers the principles problematic issues and questions and themes of democratic for the instructor/facilitator to use governance and journalism values. to engage participants. !ere also !e rationale is that participants exercises that can be used to test should begin with a broad the learning and take-ways. Some understanding of these principles exercises are for individuals and others and why they are important. are to be done in groups or by the R5 !odule #wo describes the entire workshop. history, structure and role of local government. It highlights major !e Manual ends with appendices developments over the years from (Who’s Who in Local Government the original ‘vestry system’ of and the 2012 Local Government th the 17 century to the present. Election Results) and references for !is is important because this further reading. sphere of government does not get the same level of attention as central government and thus it is less known and less understood by journalists and the public. Increasing the knowledge base of journalists is a "rst step towards greater public awareness of and support for local government.

2 Reporting Local Government Issues — A Manual for Jamaican Journalists !odule "ne: #emocratic governance and journalism values

Reporting Local Government Issues — A Manual for Jamaican Journalists 3 2. Media and for journalists to think through issues Democratic of professional values and standards. Governance 2.2. Learning Objectives

At the end of this section, participants will be equipped to: ¾ 2.1. Overview State three essential characteristics of democratic governance ¾ “!e will of the people shall be Identify at least three speci"c ways the basis for the authority of in which media contribute to the governance process government; this shall be expressed in periodic and genuine elections ¾ Identify and discuss at least four factors which shall be by universal adult a$ecting the prospects of journalists su"rage and shall be held by secret and media organisations contributing to vote or by equivalent free voting fostering and maintaining a culture of democratic governance. procedures.” - &e Universal Declaration of Human Rights 2.3. Essentials of Democratic Governance “!ere is an ineluctable connection between democracy and the quality of journalism.” A major feature of governance in the 21st century is the growing Report of the Commission on the Media and Democracy in Central America (May 2005) acknowledgement by scholars and practitioners of public policy !is section provides the in developing countries that philosophical context for the more development will be slower and less hands-on development of the sustainable without good governance attitudes and skill sets needed for a policies and practices. ‘Power for the new approach to local government people’ should not be seen as political reporting. It explains the link rhetoric but as an acknowledgement between good governance and quality by the political elite that citizens journalism and provides a framework must have space to participate actively

4 Reporting Local Government Issues — A Manual for Jamaican Journalists in the things that impact their legislative, executive and judiciary— lives most closely. Representative function with reasonable e#ciency; democracy in which elected o#cials the legislative and executive ‘represent’ the needs of the people branches are supported by a public must, essentially, be replaced by bureaucracy broadly committed to the ‘participatory’ democracy in which Westminster tradition of civil service citizens have more than a periodic impartiality; political parties compete say in governance, as guaranteed by openly and e$ectively for power; and regular, scheduled elections. the police are sworn to uphold the law and respect the rights of citizens. Democratic governance is rooted in “the two of the main pillars of the Civil society institutions and a free liberal democratic tradition: citizen press o$er a vibrant public space for participation in the determination of debate and discussion of issues of government itself and in the broader national concern and question the decision-making processes by which actions of those in authority. communities are governed; and a However, there are gaps between the rights ‘platform’ that supports and ideals and actuality. Of particular protects the role of individuals and concern are survey "ndings showing minorities in the governance process.” “pervasive society-wide attitudes (Elements of Democratic Governance, and values” re%ecting a propensity 2006) of majorities of Jamaicans towards !e roots of the "rst pillar seem to political intolerance, low levels of be planted more "rmly than those of trust in each other and in national the second. Since the "rst national institutions, and doubts about the elections under universal adult legitimacy of the system. !ese su$rage, Jamaican democracy has "ndings should be seen in a context been evolving to the point where it where trust, tolerance, and system is generally accepted as a way of life: legitimacy “are critical for the !ere are frequent elections in which maintenance of a stable democracy.” administrations change without chaos (Powell, 2010) as election results are accepted by both !e report added, “It was found winners and losers. !e structures that since 2006 there has been a and forms of democratic government progressive albeit moderate decline in have been well-established: !e the prospects of democratic stability three branches of government—

Reporting Local Government Issues — A Manual for Jamaican Journalists 5 in Jamaica. In 2010, only 29.4 per cent con"dence in institutions like the of the citizenry were categorized to family, church and universities be supportive of a stable democracy, suggests that there is a basis for on the basis of their high support for public-private partnerships (inclusive the system and correspondingly high of the media) to forge national levels of tolerance. !is is compared strategies to build social capital within to 36.2 per cent in 2006. When communities. !is would foster both this is viewed with further "ndings grass roots democracy and lay a of appreciable decline in other key "rmer basis for the kind of sustained democracy indicators, such as support economic development that has been for democracy, institutional trust and missing for most of the period since citizens’ level of con"dence in the way Independence. their democracy works, it is reasonable !e role of local government in this to conclude that the economic crisis process should not be underestimated. might in fact be impacting democratic !ere is a widely accepted notion stability in Jamaica quite negatively.” that there is intrinsic value in local But while Jamaicans have been government because it is close to showing less faith in the integrity the people. (Brown, 2010) (Jones, of the government, private sector 2005) !is idea can be given practical companies, the political parties, e$ect through the decentralization trade unions, and the police force, of certain governmental resources, these same surveys by the Centre for functions and responsibilities. Leadership and Governance have A justi"cation for decentralization or consistently shown that Jamaicans devolution is that it “should promote have “a lot of con"dence in” the family, greater sensitivity, responsiveness and schools, universities and churches as accountability in the delivery of public bedrock institutions undergirding the goods and services” (Powell 2010). society. !e potential bene"ts of devolution !e survey "ndings suggest the urgent have involved an ongoing programme need to shore up the democratic of local government reform aimed on foundations. Among other things, the one hand at the strengthening of public (and private) institutions local capacity at the Parish Council have to demonstrate the types of and municipal levels and on the governance practices that will develop other, facilitating the meaningful public con"dence. !e comparative participation of community members

6 Reporting Local Government Issues — A Manual for Jamaican Journalists in identifying community needs, the services of local authorities and setting priorities, searching for greater citizens’ collaboration with solutions to problems and holding their Parish Council positively impact public o#cials accountable for their system support.” actions. (!is is discussed in detail in !e conclusion is inescapable. First, Chapters 6 and 7.) there is the need to shore up Jamaica’s One of the several reasons o$ered democratic foundations and reverse for the slow pace of reform is that the low trust that citizens have in citizens do not care much about local their institutions. Second, satisfying government (as re%ected, for example, people’s needs is a basic pre-condition in low participation in elections). for strengthening popular support for !is issue was explored in the survey the political system. Achieving these by the Centre for Leadership and goals would, at a minimum, require Governance which reported, “When o#cial commitment to the principles citizens’ level of involvement in and practice of democratic governance the a$airs of their Parish Council along with media and civil society in the form of meeting attendance monitoring of public performance and demand-making was examined, in this area. Following are essential Jamaica fared well both in terms of characteristics of democratic relatively stable levels of participation governance to which governments, at on the basis of these measures and all levels, should subscribe: also its slightly below mid-range i. Transparency: !e decision-making scores on both indicators when process must be open to public ranked among other countries in the scrutiny, assessment, and review. Americas. ii. Accountability: O#cials cannot act with impunity—they must “On the question of citizens’ be subjected to speci"c legal and evaluation of the e$ectiveness of regulatory restraints and/or the Local Government, measured in terms common law that applies equally to everyone without regard to status or of their levels of satisfaction with power. the services provided by their Parish Councils or municipal authorities, it iii. Responsiveness: Public policy must demonstrably be responsive to real was found that Jamaicans are among needs of citizens for equitable to the most dissatis"ed in the Region… public go On the whole, it was found that iv. Devolution of elements of state higher levels of satisfaction with power from central to local authorities

Reporting Local Government Issues — A Manual for Jamaican Journalists 7 and civil society: !e idea that local 2. Identify three essential characteristics government is important must of democratic governance and write a be demonstrated by having local short paragraph on each one. authorities exercise real power. !is requires a clear separation of functions at the central and local levels, with the allocation of "nancial and institutional 2.4. Role of Media in resources to match authority and Democratic Governance capacity. A principal function of the news ISSUES FOR DISCUSSION media in a democratic society, such as Jamaica, is to support and defend 1. What are the main pillars of liberal the public interest. !e (Draft) Code democracy? of Practice of the Press Association 2. What are the main concerns of central of Jamaica o$ers a useful de"nition government towards devolving more of the public interest as “detecting authority to local government? or exposing crime or a serious 3. What are some of the bene"ts to misdemeanour; protecting public democratic society from having e$ective local government? health and safety.” !us, the media have a major role in preventing 4. Why are institutions like the family, deception, fraud and corruption and the church and universities more trustworthy than institutions of the exposing crime and abuse of authority state? especially by public "gures. Of course, 5. What can the state do to increase the role extends to exposure of public con"dence and trust in the decisions and actions by individuals political system? and business corporations that impact people’s lives and the physical environment. Media are essential to holding o#cials EXERCISE accountable and shedding light on public actions, decisions and policies Working individually participants are that o#cials are often tempted to asked to: keep away from the public gaze. 1. List and brie%y discuss at least three Media carry out this function in points to support the view that the several ways: culture of democracy is not as "rmly rooted in Jamaica as the form and i. Provide veri"able information needed structure. to empower citizens to participate

8 Reporting Local Government Issues — A Manual for Jamaican Journalists fully in public life, including elections. The business and economic Information also provides an objective environment basis for the public to evaluate policy decisions and actions taken on their For the most part, media organisations behalf by those in authority. in Jamaica are privately owned and ii. Be a watchdog on the exercise of are operated on the advertising- power by investigating the inner dependent business model. !e basic workings of government to expose graft and corruption, mismanagement feature of this model is that media and mal-administration of public deliver audience/readers to advertisers "nances by public o#cials and public who, in turn, pay for the access. Other bodies. things being equal, the advertising iii. Defend the constitutional protections rate that a media house can charge of freedom of expression guaranteed to an advertiser is determined by the every citizen by being an advocate of freedom of speech. size and composition of the audience. !us, media will structure and present their content in ways that will best 2.4.1. Factors in!uencing capacity deliver large, general audiences or of journalists and media to perform specialised, niche audiences. One their roles of the challenges of advertising- supported media is how to deal with Ownership and control of media the inherent con%ict between pro"t entities and social mission of media.

Many news organisations have rules Editorial Independence or guidelines governing the treatment of stories about the principal owners; Editorial independence is at the very about companies in which they are core of press freedom. !is means involved; and about critical social and that the press must be independent of political issues in the society. Very external control and direction in the often, these guidelines derive from the determination of the reporting and core values and world view as well as writing of stories. the speci"c interests of the owners. !e "ve areas of greatest threat to editorial independence are: 1. Government !e most egregious example of governmental pressure is censorship

Reporting Local Government Issues — A Manual for Jamaican Journalists 9 where government o#cials have social and cultural factors that shape a direct say in what is reported or identities. Hence, the question: Can excluded. Other forms include the journalists be ‘objective’ or ‘neutral’ on granting or withholding of permits or issues a$ecting the society in which licences; and preferential treatment they live and work? Maybe not. in relation to access to o#cial “...Ultimately, reporting is the product information. of the sum total of all [the journalists’] prior experiences, socialisation, beliefs 2. Political parties and political interest and indoctrination — in brief, their groups culture augmented by race, ethnicity, !e primary purpose of political sex and myriad other intervening parties is to win and keep state power. variables,” (Myrick 2002) p. 1. In other Often, they work in tandem with words, journalists are in%uenced by special interest groups. Accordingly, the broader social and moral values they can be expected to present or operating in the society in which they ‘spin’ the news in furtherance of this live and work. objective. Journalists should not, wittingly or unwittingly, be complicit in this e$ort. What happens when Legal and regulatory framework the journalist shares the ideas and objectives of the political party? !e Broadcasting Commission 3. Business and commerce, including regulates the broadcast and cable advertising Journalistic independence can be sector but print and the internet are undermined by the relationship not regulated. Broadcasters and cable between the media and their sources companies have to meet and maintain of economic survival. Demands for favourable treatment in the news in certain content standards especially return for large advertising contracts or in relation to profanity, violence and sponsorship are not uncommon. sexual representation. However, these 4. Friends of journalists regulations do not restrict freedom of Should friends (and relatives) get political speech, except to the extent special treatment? How should the that all media are a$ected by libel and journalist treat with a negative story, on political corruption for example, defamation laws. regarding a friend? Publication of defamatory material 5. Journalists’ personal bias or prejudice exposes media to libel suits and In common with other members potentially large awards for damages. of society journalists are products of the families and communities in In response to lobbying from which they are nurtured as well as media management and journalist other socialisation factors such as organisations, the government has ethnicity, age, gender, income, heritage, nationality, education and other been reviewing the libel laws. !e goal

10 Reporting Local Government Issues — A Manual for Jamaican Journalists is to retain protections of individual ISSUES FOR DISCUSSION rights to privacy while recognising 1. Taking account of the over-riding the public right to know what in%uence of ownership, is it realistic public o#cials do in relation to their to talk of freedom of the press as a public duties. Media interests have societal norm? Or does freedom of the press mean the freedom of the owner argued the present laws and judicial to use the press to promote his/her interpretations are tilted towards interest? privacy and secrecy and constrain 2. Do you think political parties have the ability of media to report and too much (or too little) in%uence over comment on some matters of public political news—especially at the local interest. level? 3. To what extent are coverage decisions Proponents of libel reform say the in%uenced by press releases and other present laws inhibit the practice ‘pointers’ from political parties? of good journalism: !at view is 4. Can you think of any organisational summarised in an Observer editorial standards and behaviours that reduce of May 3, 2005 which said, “We or mitigate personal bias in journalistic believe that the existing laws are too work? narrowly framed and interpreted, 5. Do you think the economic constraints providing too much room for public on the news media in%uence the coverage extended to local authorities? o#cials, as well as persons of in%uence and resources, to make it costly for a press to vigorously pursue its mandate as watchdog”. Opponents say no; there is su#cient latitude for the EXERCISE professional journalist to investigate and comment on policy and actions Journalists Perception of their Role of o#cials without libelling anyone. After the discussion, each participant Further, reform will encourage should be asked to write down the reckless attacks on privacy, both for three most important things that public o#cials as well as private journalism should accomplish in order citizens. to serve the public interest and explain why.

Reporting Local Government Issues — A Manual for Jamaican Journalists 11 3. Journalism Values 3.3. Traditional Core Values of Journalism and Media Content Journalism, as we have sought to practise it in the Caribbean, has been undergirded by some fundamental principles such as freedom of 3.1. Overview expression inclusive of the rights of citizens to receive, impart and exchange information; accuracy, truth !is section of the manual links and fairness; and respect for the right professional values and newsroom of individuals to their privacy and processes; discusses the craft of reputation. journalism and how they can be applied to coverage of local With these rights come certain authorities. obligations that require media organisations and journalists to live by the ethics of the profession; represent 3.2. Learning Objectives and re%ect the public interest at all times; and to perform their At the end of this section, participants professional duties with intelligence, will be equipped to: objectivity, accuracy and fairness. !ey 1. Identify and relate the core values of should also avoid con%icts of interest journalism to day to day newsroom between their professional obligations work and personal interests, be they 2. Name three strategies journalists can "nancial, political or otherwise. use to remain true to their core values. In carrying out their function, 3. Identify the major threats to journalists must seek to gain and professional values and outline how they can be minimised. retain the trust of audiences by constantly upholding core journalistic values. !is is particularly important in the reporting of political news including coverage of elections.

12 Reporting Local Government Issues — A Manual for Jamaican Journalists 3.3.1. Accuracy o#cial statistics. !e report should include both the political claim as well Getting the story right, the "rst as the o#cial data. !is type of fact- time, in all factual details, is one checking is all the more important in of journalism’s most important coverage of election campaigns when professional values. !is means more competing candidates are often given than providing an accurate account of to exaggeration. the facts. More important, a reporter should actively seek to tell the truth !e ‘gatekeeper’ is the layer in the and not deceive audiences by omitting newsroom hierarchy between the relevant factual information, by reporter and publication. Even the including information known to be most experienced reporter needs a false or by misrepresenting the facts. fresh pair of eyes that may be able to Factual accuracy is the building block spot problems before it is too late. of journalistic credibility, without which a news organisation cannot Accuracy is also enhanced when survive. Pre-publication veri"cation, stories reported in clear and precise fact-checking and gate-keeping are language; it avoids ambiguity; and three ways better to ensure accuracy. stories should not be based on Errors will occur, but they must be speculation. corrected promptly and completely. Pre-publication veri"cation involves 3.3.2. Impartiality a number of steps. Some news Actively seek out and weigh the organisations require that investigative relevant arguments on any issue stories be based on at least two and present them fairly and without identi"able sources; (anonymity personal or political bias. !is means should be a last resort). that the reporter should approach the Fact-checking requires the reporter facts without preconceptions. to check factual claims against Reporters, like all other citizens, known data or objective evidence or have a right to political opinions and previous statements. A claim by a to privacy. But these should not be politician, for example, that ‘under displayed neither in news reporting our administration unemployment nor in how reporters comport went down from 17 per cent to 10 themselves. For example, display per cent should be checked against buttons, bumper stickers, %ags etc.

Reporting Local Government Issues — A Manual for Jamaican Journalists 13 that indicate partisan preference in an interview or document? If the should be avoided by reporters. answer is ‘yes’ you have probably been Displaying such images can lead to unfair to the facts. accusations of partiality even where none exists. You should not participate in political events; singing party 3.3.4. Independence songs and applauding party speakers It is normal for authority "gures and are examples of things that reporters interest groups—political, business, should not do on assignment. social, or NGOs—to try to in%uence media coverage in support of their 3.3.3. Balance and Fairness agenda. What is ‘not normal’ is for journalists and media organisations to Balance means getting all sides of give in to these pressures, for whatever the story; it’s not about giving equal reason. In some cases, the agenda time or space to contending views. of the interest group may coincide It means especially getting the views with the biases of the reporter; in of those against whom allegations others, the reporter may fall victim to have been made. It means a fair or economic inducements or threats. In honest representation of the facts; either case, the public interest is not they should not be embellished served. Reporters, with the support or downplayed. However, balance of their news organisations, must be requires more than a perfunctory willing to challenge vested interests; ‘e$orts to reach so and so were they should be wary of giving unsuccessful’. It is better to say, ‘!ree dissidents and groups in opposition calls to a number on which he is to power an easy ride on the basis of normally available went unanswered’; either their presumed ‘righteous’ or or ‘someone who identi"ed herself as ‘underdog’ status. Even those on the his executive assistant said he would side of ‘goodness’ can be manipulative not be available for the rest of the in support of their agenda; a healthy day’. dose of scepticism is also good in a reporter. Interpret the facts fairly. One technique is to ask yourself the question: Would the source of your story be genuinely surprised at your interpretation of the facts given to you

14 Reporting Local Government Issues — A Manual for Jamaican Journalists 3.3.5. Transparency landscape is increasingly characterised by intense competition for audience !e journalist must be prepared to and advertising revenue. !is is a account for what they report. !is global phenomenon that has been means giving the audience as much in%uencing the content and style of information as possible to evaluate the the news product, especially since the story. How did you acquire the facts? middle of the last decade. What can be revealed about source, without damaging the principle of According to the 2005 United States con"dentiality? At a minimum, the State of the Media Report, a key trend reporter must be in a position to identi"ed by the research is that the reveal the source to the editor. What profession is moving more and more e$ort was made to obtain opposing or towards a model of journalism based balancing views? on the concepts of “faster, looser, and cheaper...!e traditional press model Individual news organisations, as well - the journalism of veri"cation - is as professional associations, should one in which journalists are concerned have well-developed and publicised "rst with trying to substantiate facts. complaints and compliance processes It has ceded ground for years on talk that allow audiences to seek redress shows and cable to a new journalism for errors. (!ese are separate and of assertion, where information is apart from legal and regulatory o$ered with little time and little remedies such as libel and defamation attempt to independently verify its laws.) !ese voluntary processes veracity.” are vital to giving and maintaining con"dence in journalism. News To what extent have the urgency to organisations should also encourage be ‘"rst’ and the "nancial imperative rigorous editorial debates to test their to cover the news with as little own procedures and outcomes. expenditure as possible invaded the Jamaican media landscape? Is competition to be "rst a factor 3.4. Threats to Traditional in%uencing whether and how events Core Values are reported?

With the rapid expansion of media— In addition to the competitive particularly electronic and internet- pressure from traditional media, the based media—since the 1990s, the new environment has empowered

Reporting Local Government Issues — A Manual for Jamaican Journalists 15 every citizen to be a publisher once s/he has mobile phone with internet connection. !us, the emergence of the citizen journalist is threatening the traditional values of veri"cation and gate-keeping.

ISSUES FOR DISCUSSION

1. Strategies for separating personal opinions and professional values

2. Citizen journalist and traditional journalist—can the two co-exist?

3. !reats to traditional journalism values.

4. Verifying political or partisan statements

EXERCISES Divide the workshop into small groups (of four or "ve participants). Each group is to do a content analysis of a political story and write and present a report on the extent to which the story upheld or violated the values of accuracy, impartiality, independence and fairness and balance.

16 Reporting Local Government Issues — A Manual for Jamaican Journalists !odule $wo: %tru&ure and fun&ion of local government authorities

Reporting Local Government Issues — A Manual for Jamaican Journalists 17 4. Structure, 2. Identify the cornerstones of the legal foundation of the system Organisation 3. List the tasks that local authorities are and Role of Local mandated to perform 4. Identify the limitations imposed on Authorities the powers of local authorities by central government.

4.3. Historical Development of Local Government in 4.1. Overview Jamaica

!is section provides a short historical Following on English conquest of background of the development of Jamaica in 1655, the new colonial local government in Jamaica from governors established a county and a system dominated by the planter parish system of administration class to its contemporary status as starting shortly after the arrival from part of the system of representative Barbados of Sir !omas Modyford democracy. We trace the major in 1664, accompanied by some 700 developments in the evolution of local planters and their slaves. Local authorities from the ‘vestry’ system to administration was initially seen the current period. We examine the by the authorities as a convenient role the relative authority of Councils framework for grouping sugar estates. versus the Minister responsible for Indeed, the number of parishes into local government in the overall system which the island was divided changed of democratic governance. from time to time depending on the number of active sugar plantations. 4.2. Learning Objectives !e Local Government Act of 1681 formally instituted planter dominance After completing this section, over the system also known as the participants will be able to: vestry system because meetings were held in the vestry of Anglican parish 1. List the critical milestones in the development of local authorities church. !e vestry system lasted from 1664 to 1866 and largely served the interests of the planter class.

18 Reporting Local Government Issues — A Manual for Jamaican Journalists “!e local government system was Council and the St. Andrew Parochial developed primarily to support and Board merged; the number of enhance a plantation economy” that parishes reduced from 14 to 13; and began in Jamaica in 1664 (Bertram, the functions of local authorities 2001:2). expanded further to include responsibility for local planning, local !e ‘vestry system’ served "ve main building and the regulation of the functions: supporting the clergy, physical planning process. maintaining churches, o$ering relief to the poor, maintaining roads and Universal adult su$rage, introduced maintaining public order (Miller in 1944 for electing the national Local government system went legislature, was extended to electing through several changes after the local authorities in 1947 when the 1865 Morant Bay Rebellion. In "rst general local government was 1867 Governor Sir John Peter Grant held to elect Parochial Boards to reduced number of parishes from 22 administer a$airs at the parish level. to 14. Several important developments It was the only election in which occurred between 1866 and 1886, Independent candidates won most of including the establishment of the the seats on local authorities. Parochial Board System in which a !e Parochial Board System was majority of local o#cials were elected, subsequently replaced by Parish though several were still nominated Council system and city status by colonial o#cials. However, the vote granted to parish capitals. Political was limited to the land owning class heads of Parish Councils were styled and persons deemed to be literate. ‘Chairman of the Parish Council and !ere was also expansion of services Mayor of (the capital city). !e new provided by the local authorities. parish council system saw some other Functions and responsibilities were changes including: expanded to include public health, R5 Removal of aldermen and members "re services, public markets, public of parliament from membership of cleansing, street lighting, water the councils supplies, and abattoirs (Miller, 1998: 2). R5 Extension of the term of o#ce of mayors/chairmen and their deputies !e early 20th century saw further from one year to the life of the reforms: In 1923 Kingston City council

Reporting Local Government Issues — A Manual for Jamaican Journalists 19 R5 Establishment in 1956 of the 4.4. Structure, Role and Municipal and Parish Councils Function of Local Authorities Services Commission and a uni"ed service for employment in all the As summarised by the Ministry councils. of Local Government and http:// R5 A fully elected council with all Community Development non-elected members removed "rst, www.localgovjamaica.gov.jm/ localauthorities.aspx?c=function from the KSAC in 1956 and later , from the Parish Councils in 1974. Local Authorities are empowered Since 1995, Councillors have been to make by-laws, regulations and paid a salary as part of reforms rules for the good governance of designed to re%ect the importance of the parishes over which they have the work of Councils and a means of jurisdiction. Speci"c responsibilities of attracting more suitable candidates the Councils include: to serve and put them in a "nancial ¾ Developing, managing and maintaining position to devote more time to their infrastructure and public facilities such public duties. Prior to that, they as parochial roads, water supplies, drains received some allowances as well as and gullies, parks, recreational centres, reimbursement for travelling and markets, abattoirs, pounds, cemeteries, subsistence. It should be noted that transportation centres, public sanitary conveniences and public beaches. Councillors are not allowed to vote on matters in which they “have a ¾ Provision of local services such as poor pecuniary interest.” (KSAC Act) relief, public cleansing, public health, street lighting. !e most recent major milestone ¾ was the creation of the Municipality Regulation powers in respect to building and planning approvals and development of Portmore in 2003 as the "rst and control, licensing of trades and businesses, only authority in which the mayor street parking, control of public vending. is elected at large rather than being ¾ selected by a majority of elected Coordinating inter-agency collaboration councillors among non-governmental organizations (NGOs), community-based organizations (COBs) and government agencies which operate in the parish and are engaged in the delivery of local services or in local development.

20 Reporting Local Government Issues — A Manual for Jamaican Journalists ¾ Support of national policies/development R5 !e Municipalities Act (2003) programmes at the local level. ¾ Among other things, these statutes Spearhead plans and initiatives for and their subsequent amendments the orderly, balanced and sustainable over the years, govern: development of the parish as a whole, and major towns in particular, and for ¾ !e Constitution of the Councils (how the boosting economic activity and local the Council is composed) wealth creation within the parish. ¾ Election of Councillors - procedures, inclusive of those on polling day and 4.5. Legal Framework of subsequent to polling day, administrative Local Government Authorities provisions as to Council elections, o$ences in connection with elections

¾ First meeting of Council, inclusive Despite the broad sweep of of election of Chairman and Vice- responsibilities outlined above, Chairman who are elected by their fellow Jamaica “has no statute that Councillors. (!e Mayor of Portmore clearly spells out the functions is elected directly by the voters in the of local government” although municipality.) an extensive body of laws and ¾ Provisions for the appointment of regulations governing the a$airs of Committees of Council for the e#cient local authorities (Tindigarukayo, and e$ective functioning of Council 2003:35) Nor is the relationship ¾ between central and local government Vacancies in Council, what creates them and procedures for dealing therewith clearly spelled out although in most vital areas, central government, ¾ Powers of Council to undertake certain controls and directs the a$airs of acts, including powers to make bylaws, local government. Structurally, local certain regulations, prepare local schemes government can be described as a ¾ Power and authority of the Minister subsidiary of central government. (with responsibility for local government) Local government legislative framework is contained in three It should be noted that both the principal pieces of legislation: Parish Councils Act and the KSAC Act “are silent on major local R5 !e Parish Councils Act (1901) government functions like road R5 !e Kingston & St. Andrew maintenance, public health, minor Corporation (KSAC) Act (1923) water supplies, and street lighting.

Reporting Local Government Issues — A Manual for Jamaican Journalists 21 ¾ One has to look to some twenty "ve Power to approve licences for Barbers and other acts to discover the functions Hairdressers of local government in Jamaica” ¾ Power to approve licences for Places of (Tindigarukayo, 2003:35). Amusement

A partial listing of these ‘other acts’ ¾ Power to approve licences for Butchers which are critical to the e$ective ¾ Power to approve the construction, functioning of the Councils include: repair and deviation of new and existing ¾ !e Parochial Rates and Finance Act parochial roads ¾ ¾ !e Public Bodies Management Power to establish abattoirs and markets Accountability Act ¾ Power to de"ne town limits for general or ¾ !e Financial Administration and Audit speci"c purposes Act As Councils gradually get more ¾ Town and County Act autonomy there is a corresponding need for greater "nancial ¾ !e Building Act accountability. !e Financial ¾ !e Parochial Roads Act Administration and Audit and the ¾ !e Parochial Markets Law Public Bodies Accountability Act are the main pieces of legislation that ¾ !e Public Health Act detail the requirements regarding procurement procedures, accounting Under the various pieces of and "nancial management. !e legislation Councils exercise a accounts must also be audited and are broad range of powers including: monitored by the Auditor General.

¾ Power to make regulations

¾ Power to make by-laws 4.6. Executive Arrangement

¾ Power to approve the annual budget of the Council 4.6.1. Policy-making ¾ Power to approve adjustments to the budget !e elected Council constitutes the ¾ Power to approve the applications for highest level of policy making and the Development of Subdivisions and programme monitoring. Policymaking Buildings is the process by which a local

22 Reporting Local Government Issues — A Manual for Jamaican Journalists government translates their political things the Mayor must provide vision into programmes and actions leadership and direction to the to attain goals, and deliver outcomes Council, represent and support the or changes in the community. It Council, ensure transparency in involves the identi"cation of di$erent the daily operations of the Council, alternatives, such as programmes or act as a catalyst for change and expenditure priorities, and choosing development. among them on the basis of the impact they are likely to have. Council “should review and amend policies as 4.6.3. Role of Council required, to ensure they continue to Council’s primary role is to ensure meet the goals/ outcomes established services are provided to citizens by Council.” (Councillors Handbook) and taxpayers. !is involves making Programme monitoring is the regular decisions about which programmes review of programmes and services and services are to be delivered o$ered by the Council comparing (policymaking) and ensuring that the the results against Council’s desired Council’s administration provides the objective. Councillors are reminded programmes and services in the most by the Ministry that “it is important e#cient way possible (programme to evaluate programmes to ensure monitoring). they are achieving the desired goals/ outcomes, and are implemented 4.6.4. Role and Responsibility of within time, budget and with Councillors e#ciency.” (Councillors Handbook) !e Handbook advises Councillors that they “must work to improve 4.6.2. Role of Mayor/ Chairman of the lives of all the citizens in the Council Council’s locale – the Parish. !e Mayor provides leadership to !e improvement of the people’s the Council and is often the “face” lives must be achieved through of the community when responding the provision of basic services, to Parish issues, articulating Parish development and growth of the concerns, responding to media economy, recognizing and harnessing inquiries or attending major the skills potential of people living community events. Among other in the Parish, mobilizing the people

Reporting Local Government Issues — A Manual for Jamaican Journalists 23 to make their own contributions to Health, Civic A$airs, Municipal improve their living conditions and and Commercial Services, Physical job creation. “To do this e$ectively, Planning & Environment. you need to have a thorough understanding and knowledge of the Statutory Committees main issues in your constituency and Parish. You are the link between the !e Poor Relief Committee is a public and the Local Authority and Statutory Committee appointed under you owe your primary loyalty to the the provisions of the Poor Relief Act. public.” !is Committee comprises a speci"c number of Councillors, representative 4.6.5. Role of Council Committees of the Board of Supervision and co- opted members. Most Councils establish committees to help Council carry Ad Hoc Committees out its responsibilities. It is a legal requirement to establish a Finance Ad Hoc Committees are created as Committee to manage the "nances of special purpose bodies to investigate the Council. !ere are four types of and report on particular matters. Once committees: the committee has ful"lled its purpose (i.e. reporting to Council), its mandate Standing Committees ceases and it is dissolved. Examples of Ad Hoc Committees include: an Standing committees are delegated Arena Committee (to research a new certain powers and duties to facility) or a Centennial Committee facilitate the administration of the (to plan a centennial celebration for Council. !e committees formulate the community). recommendations on policies and procedures to bring forward External Committees to Council for consideration. Examples of Standing Committees Council will appoint representatives include: Financial Management, to other committees, which are Human Resource/Establishment, deemed ‘external’, and where the Infrastructure/Roads & Works, Trust Council has a vested interest in the & Estates Management, Public committee’s mandate. Examples of

24 Reporting Local Government Issues — A Manual for Jamaican Journalists External Committees include the assigned by Council. !e Financial Library Board and the Regional Administration & Audit Act and the Health Board. Parish Councils Act outline in detail the responsibilities of the Secretary/ Manager and a formal process 4.7. Administrative for Council to conduct periodic Framework performance reviews. !e review process also provides an opportunity !e Council’s administration exists for Council and the Secretary/ to take care of the everyday work of Manager to set objectives for the running the Council. !e Secretary/ coming year. Manager (or Town Clerk in the case of the KSAC) is the Chief Administrative O#cer of the Council. 4.8. Central Government He/she reports to the Mayor and (Powers of the Minister) Council. Department heads and other administrative sta$ members report Despite the powers conferred on local to the Secretary/Manager. !is list government authorities, the law gives includes ‘designated o#cer positions the minister wide ranging authority (for example, Superintendent Roads over many aspects of the structure & Works, (Engineer, in the case of the and operations of parish councils, KSAC), or Building O#cer. the KSAC and the Parish Councils. !e KSAC Act, for example, outlines As the administrative head of the that the minister “can supersede the Council, the Secretary/Manager power of the Corporation” and has (Town Clerk) is responsible for overall “power to dissolve the Council for up administration, "nancial management to two years.” (KSAC Act, Part Xlll) and human resource management. More speci"c responsibilities !e following listing of some of include ensuring that the Council’s the things that the Minister has the programmes and policies are power to do indicates the depths of implemented, advising and informing micromanagement that is allowed, Council on the operation of the even if they are not exercised in every Council, preparing the "nancial plan detail: and establishing "nancial controls, and performing any other duties

Reporting Local Government Issues — A Manual for Jamaican Journalists 25 1. Approve the expenditure for the 13. De"ne limits of Towns or Villages — remuneration of the Secretary and Section 114-115 other o#cers of the Council; 14. Dissolve the Parish Council or 2. Have the "nal say regarding repayment Municipality — Section 116 of expenses for a Councillor’s travel and other related expenses; 15. Determine liability of Councillors for certain expenditure — Section 118 3. Approve the leasing of land by the Parish Council for any public purpose, 16. To order a Parochial Audit — Section for a period of no longer than 21 years; 127-133 4. Approve the acquisition of land for the A study by the Sir Arthur Lewis purpose of a cemetery or for any other Institute of Social and Economic public purpose by the Parish Council; Studies (SALISES) of the UWI 5. Acknowledge the submission of any for the (then) Department of Local Act from the Parish Council and Government in 2010 examined the authorize it, before it is published in the Gazette; performance and perception of the Portmore Municipality six years 6. Modify any local scheme proposed by a Parish Council; after it was established found that a majority of Portmore residents 7. Approve the sale of surplus land were of the view that the municipal owned by the Parish Council; structure performed well enough after 8. Approve the limits of towns, when six years “to be replicated to other made by the Parish Council; parts of Jamaica,” except that certain 9. Dissolve the Council if he believes the institutional amendments have to be Council is not competent to perform, made "rst. persistently defaults in performance of its duties, exceeds or abuses its powers; One signi"cant proposal was that the 10. Amend or revoke any by-laws, rules or institution of Directly Elected Mayor regulations made by a Parish Council, should be made stronger by allowing in the interest of national policy; the occupant the right to exercise a 11. Make regulations a$ecting Parish casting vote in council. Also, like the Councils; Councillors, the Mayor must be given 12. Audit the books of any Parish Council; a development fund since he/she is and acknowledge the submission of the only politician who has to account the Summary of the Accounts of each Parish, as made by the Auditor to all the citizens of Portmore. !is General, at the end of each Financial could be an idea for consideration Year; in the broader reform process going forward.

26 Reporting Local Government Issues — A Manual for Jamaican Journalists ISSUES FOR DISCUSSION

1. Are Councils too weighed down by their historical legacy of being a ‘subsidiary’ of Central Government? 2. Should the Minister continue to have so much control over Councils? 3. Can you think of reasons for keeping the system intact? 4. Are the lines of demarcation between the political and administrative arrangements? 5. Are the programmes/services expected of Council realistic and viable? 6. Is the Parish structure still relevant as the administrative base of local government? 7. Should the Mayor of Portmore have greater executive authority over the a$airs of the PMC? 8. Should all Mayors/Chairmen be elected across the entire parish?

EXERCISES: Describe six of the main tasks and responsibilities of local authorities and discuss whether the Councils are adequately empowered, in terms of legislative authority, to successfully carry out these responsibilities.

Reporting Local Government Issues — A Manual for Jamaican Journalists 27 5. Financing Local 5.3. Sources of Funds for Local Government Authorities Authorities Local government is "nanced through a combination of public funds (taxes) as well as fees and charges for a range of services provided by local 5.1. Overview authorities. !e main funding sources are as follows: ¾ Local authorities are tasked Parochial Revenue Fund to undertake a broad range of ¾ User Fees and Charges services including street lighting, ¾ solid waste management, (some) Commercial Services road maintenance and parks and ¾ Grants (from central government) beauti"cation and others as described in the previous section. !is !e Parochial Revenue Fund (PRF) section will describe the "nancial was established in 1996, as part of a arrangements for carrying out these (then) new arrangement for "nancing responsibilities and examine whether Local Government on a more secure there is an appropriate match between footing with less dependence on two. central government grants. (!e funding mechanism was part of a larger Local Government Reform 5.2. Learning Objectives Programme discussed in Chapter 6.) Under the arrangement, the Councils After completing this section, were entitled to the Property Tax participants will be able to: collected in the respective parishes along with 66.6% of Motor Vehicle 1. Identify the four main areas from which local authorities are funded Licenses Fees paid by motorists in the parish. Ten percent of property 2. Understand the "nancial planning taxes go to an Equalization Fund process (EF), to supplement the income of parishes with a weaker revenue base. Disbursements to parishes come directly from the fund.

28 Reporting Local Government Issues — A Manual for Jamaican Journalists Proceeds from the motor vehicle authorities “still general assistance licenses are intended to go directly grants from central government to to maintaining parochial roads cover expenses like public cleansing, while funds from property taxes are public water, street lighting, retirement intended to "nance street lighting, bene"ts, political directorate, direction garbage collection (solid waste and administration” (Tindigarukayo, management) and beauti"cation of 2003: 29). Speci"c grants are also parks and other public spaces. provided for poor relief services and minor water supplies. Anticipation was that the changes would result in Councils getting 61- Commercial services relate to those 76% of their revenue from their own activities carried out by councils for sources. “!is is a big leap from the businesses or citizens on a commercial original 5% and as such it needs to basis; but this represents a small be emphasised that the government percentage of overall revenue. deserves credit for the achievement” !e following table summarises (Tindigarukayo, 2003: 23). combined major revenue and User Fees and Charges: Under this expenditure headings for all local heading government authorised a full authorities for the period 2007 to cost recovery policy relative to services 2010. and regulatory functions performed by Councils. !is meant that costs for some services were adjusted upwards while some services that used to be provided free began to attract charges. !is resulted increases under this heading. For example, building fees collected by the councils skyrocketed from $250,000 in 1992/93 to over $30 million in 1994-95. (Tindigarukayo, 2003: 29). Central government grants: Grants as a percentage of total revenue has been declining since the reforms started in the 1990s though local

Reporting Local Government Issues — A Manual for Jamaican Journalists 29 Revenue and Expenditure One of the challenges facing councils is to get more parcels of land on Revenue 2007 2010 (‘000,000) (‘000,000) the tax roll. Alternatively, central Parochial Revenue Fund 4,074 12,985 government would have to raise property taxes. Commercial Services 209 754 User Fees and Charges 506 1,608 Grants 1,173 4,350 5.4. Financial Planning TOTAL $5,963 $19,699 Each year, through the "nancial plan, Council is mandated to establish the Expenditures 2007 2010 priorities by setting aside money for (‘000,000) (‘000,000) each programme or service. As stated Street Lighting 1,109 3,458 in the Councillors Handbook, the Solid Waste Management 1,757 5,188 "nancial plan must be adopted by Parks, Beauti!cation 11 70 December 1st each year. !e process General Administration 1,103 3,706 includes: TOTAL $5,887 $19,320 R5 Estimated operating budget: Anticipated revenues and estimated operating expenditures for each programme and service (roads, !e table shows that, over the drainage, beauti"cation projects, period there has been a substantial salaries, etc.) increase in the contribution (as a R5 Estimated capital budget: !is percentage) of the PRF to the revenue is an estimate of expenditures of the Councils and a corresponding the Council will make on "xed decrease in the contribution of assets (buildings, vehicles, water government grants. However, the and sewer facilities, land, etc.) in the current year, including how property tax base has not been the expenditures will be "nanced reviewed since 1993 and so revenue (taxation, reserves, borrowing, etc.) from this source has not kept pace with expenditures. For example, R5 Estimated 5-Year Capital Plan: the 1992/93 property tax revenue An estimate of expenditures the Council anticipates making on was $88 million “while the cost of capital in the "ve years following providing services was $379 million.” the current budgetary year, (Tindigarukayo, 2003: 30).

30 Reporting Local Government Issues — A Manual for Jamaican Journalists including how the expenditures will R5 Are services a$ordable and be "nanced (reserves, borrowing, delivered e#ciently? etc.) - Is the most value being achieved from !e legal authority for the budget tax dollars? preparation exercise is founded in - Are ratepayers getting value for their various pieces of legislation, namely: money?

¾ !e Parochial Rates and Finance Act, - Are there alternative ways to deliver services? Section (6) R5 Are services at this level sustainable ¾ !e Parochial Rates and Finance Rules in the foreseeable future? (1981) (!ese set out the procedures to be followed in the preparation and - Can the type and level of services be presentation of the budget). maintained, in view of the economic and population trends in your ¾ Councils are also governed by the municipality, without unreasonable tax Financial Administration and Audit Act increases? (FAAA) and Public Bodies Management - Are there other ways of doing business and Accountability Act. that could be considered? ¾ !e Councillors’ Handbook contains It is important to remember that detailed instructions on how Councils reducing expenditures has the same should develop their expenditure and revenue priorities and the kinds of e$ect as increasing revenue sources. questions Council should be asking in going through the exercise. Revenues:

Consider the range of revenue sources Expenditures: other than taxation available to Council: In reviewing and setting the expenditures for the year, consider the R5 Fees and charges (user fees, rental following critical budget decisions: fees, licences etc.) should be R5 Do proposed expenditures achieve reviewed to ensure they re%ect Council’s priorities? current costs. - Is the money being spent to achieve R5 Penalties and "nes (interest on Council’s goals and objectives? overdue accounts, enforcement "nes). R5 Does Council know if current spending matches their priorities? R5 Transfers from reserve accounts or nominal surplus.

Reporting Local Government Issues — A Manual for Jamaican Journalists 31 R5 Conditional grants: Funding from contacts with citizens through media the Central government that may such as newsletters, public posters. be utilized by Council.

Prior to adopting of the "nancial 5.5. Monitoring the !nances plan, Council is required to hold a public hearing. !e purpose of the public hearing on the "nancial plan is Council is responsible for e$ective to advise citizens about the "nancial monitoring of the "nances of the situation of the Council and the plans Council. !e Secretary/Manager for provision of goods and services is required to prepare and present in the coming year, and to allow monthly "nancial statements to opportunity for the public to have Council for review and evaluation. input in budget decisions. Section 96 (1) of the Parish Council Act mandates this function to the Public hearings provide opportunity Finance Committee, the report from for public participation and which is presented to the Council. input to the Council’s short- and !e Act requires that the "nance long-term goals; generate public committee should consist of not understanding of the relationship less than one-half the number of between services and taxes, and Councillors. the di#cult decisions that must be made by Council in determining Prepare a COUNCILLOR’S an appropriate balance between HANDBOOK the two; public understanding that requests for services, grants etc. need !e Parish Act requires that the to be presented to Council before Auditor General’s Department audits the annual budget hearing, to ensure the "nancial a$airs of the Council on requests may be properly considered an annual basis. It is also critical for within the larger context. Council to have an e#cient Internal Media can contribute to the success of Audit team which is knowledgeable of the process by encouraging taxpayers "nancial regulations, general Council to attend the "nancial plan public laws and proceedings. Council hearing each year and reporting on may also wish to appoint an audit the hearings. Mass media inputs committee to de"ne the scope of the would be supplemented by direct audits.

32 Reporting Local Government Issues — A Manual for Jamaican Journalists When Council receives the audited 'nancial statement they should advertise that the statement is available in the Council’s o(ce for public inspection. A copy should also be published in the Gazette. Details are spelled out in &e Parish Council Act, Sections 127 – 130.

ISSUES FOR DISCUSSION

1. Arguments for and against raising property taxes to "nance more local activities

2. Councils complain that they do not have enough say over which roads are maintained although they are responsible under the law. Central government (Ministry of Works) decides where allocations are to be directed without discussion with Council.

EXERCISES Describe the three most important areas of generating revenue for Parish Councils and discuss at least three strategies Councils can adopt to increase revenue without further burdening taxpayers.

Reporting Local Government Issues — A Manual for Jamaican Journalists 33 34 Reporting Local Government Issues — A Manual for Jamaican Journalists !odule 'ree: 'e reform process

Reporting Local Government Issues — A Manual for Jamaican Journalists 35 6. Local 6.2. Historical Overview of the Reform Process Government Reform

6.2.1. Problem identi"cation— Studies and Reports

In 1943, as the national movement 6.1. Learning Objectives towards political independence eagerly anticipated Universal Adult At the end of this section, participants Su$rage, the publication of the will be equipped to: Hill Report on Local Government ¾ Sum up in a few sentences, Reform which was based on a study commonalities of the Reports on Local commissioned by the Secretary of Government before 1989 and the State for the Colonies, placed local general fate of recommendations, noting government on the policy agenda. exceptions. ¾ As the need to fashion a more State the major changes that took place e#cient and e$ective system of Local in Local Government over the period Government became increasingly 1984 to 1985 and explain their impact on later developments. obvious, other reports were to follow: !e Brownstone Report (1963); !e ¾ Give three reasons Ministry Paper 8/93 Association of Local Government represented a paradigm shift in Local Authorities (ALGA) Report Government Reform. (1968);!e Rodriguez Report (1970) ¾ Outline the major gains and setbacks up and !e Mills Report (1974). to 2003 and steps taken afterwards to put the programme back on track. All these reports, as well as a Management Audit of the Kingston & St. Andrew Corporation (KSAC) in some way, attempted to examine and analyse the legal, policy and institutional framework for local government. !e over-dependence of local authorities on central government, described by Mills as the “largest single cause of the "nal

36 Reporting Local Government Issues — A Manual for Jamaican Journalists deterioration of the local authorities” assurances to the contrary by those in was a common thread and so was favour of the proposed legislation. the need for decentralization and !is debate was placed on the back autonomy of Local Government. burner when, under a di$erent All reports recommended changes political administration, there considered essential for local was a drastic policy shift in local government to become relevant and government during the 1980s. viable as an institution, but according to the "nal report of the National Advisory Council (NAC), “very little 6.2.2. Game-changing was done to adopt or implement the developments recommendations emanating from these Reports, to any signi"cant In 1984, the government of the degree.” day dissolved the Kingston & St. Andrew Corporation (KSAC) !ere was, however, one development and a Permanent Secretary in the of note. Arising out the Mills report Ministry of Local Government was of 1974 Members of Parliament appointed to administer its operations. were removed as ex-o#cio members !is followed on the report of an of Parish Councils and the terms of Audit of the Council by a team of o#ce of Mayors and Deputy Mayors overseas experts supported by USAID, were extended from one year to the which was critical of the Council’s entire life of the Council. performance. Although the Report A Local Government Reform advised against it, the Council was Implementation Committee was dissolved and most of its functions established; however the work of this were transferred to national agencies Committee and the advancement of or regional bodies created for the the Reform process were a$ected by purpose, on the grounds that this the storm generated when an idea move would improve e#ciency and of giving legal status to Community save costs. Councils came up for discussion. !e primary role of local authorities Some Councillors felt threatened, was no longer delivering services. It believing that Community Councils now became making representation were intended to replace or lessen on behalf of their localities. !e the status of local authorities despite number of Local Government Divisions and therefore the number of

Reporting Local Government Issues — A Manual for Jamaican Journalists 37 Councillors was reduced from 289 to the "ndings of a study to examine the 187 on the grounds that Councillors case for Local Government Reform would have less work. Payment conducted by Trevor Hamilton of a regular monthly stipend to Associates in association with Prof. Councillors was introduced to allow Gladstone Mills and Mr. Keith them more time for representation. Miller. A consultant was engaged Many employees in local authorities and some changes were made based were made redundant; 7,000 persons on the Report, including a revision were estimated to have been a$ected. of fees and increased revenues as !e KSAC workforce of 5,000 was well as the facilitating of meaningful reduced to less than 200. participation by all stakeholders in the reform process. !ese moves were Public reaction to these occurrences, intended to demonstrate the sincerity which were interpreted as an attempt of Government’s commitment. to reduce the authority and power of local authorities, was largely negative and the Administration’s 6.2.4. Ministry Paper 8/93: New handling of local government became Paradigm a polarizing political issue in the 1986 Local Government elections in !e publication of Ministry Paper which the Opposition Party captured 8/93 outlining Government’s o#cial a signi"cant majority of the Parish policy on Local Government reform Councils. heralded a new era. It stated that “…despite the shortcomings of the existing system, a strong and 6.2.3. 1989— New Season of vibrant system of Local Government Reform Begins is essential to the attainment of a society in which all citizens enjoy real In 1989, having campaigned on a opportunities to fully and directly platform of commitment to restoring participate in and contribute to the and fundamentally reforming Local management and development of Government, the Opposition People’s their local communities. Such a National Party was voted into o#ce. society is desirable not only as the Local Government was identi"ed best means of safeguarding/deepening as a major priority in the new democracy and promoting equal Government’s 5-year development rights and social justice, but also as a plan of 1990-95, which was based on framework for releasing the creativity,

38 Reporting Local Government Issues — A Manual for Jamaican Journalists initiative and talents of the total Honourable P. J. Patterson formally Jamaican people, and channelling launched the Local Government these towards the solution of local Reform Programme. problems, as well as those of the nation as a whole.” Expected Outcomes A focal objective of Government then was “to create a decentralized, Among the expected outcomes democratically controlled system of Local Government Reform of local administration” to facilitate was the achievement of a more achievement of development e$ective division of responsibility objectives. In e$ect, the Ministry between Central government and Paper outlined a new paradigm Local Government, with Central of local governance, representing government handling the macro- a radical departure from previous issues (such as policy-making, concepts by setting out a policy planning and establishment of to achieve social transformation national standards) and Local through good local governance. By Government dealing with the micro deepening the democratic process issues. through decentralization, localities !e areas of intervention were given and communities would have greater as: scope for local self management. (1) Restoration of functions and Active, meaningful participation of responsibilities to Local Government civil society in local governance and and rehabilitation of the Councils sustainable development would be (2) Establishment of new arrangements facilitated. for "nancing Local Government to allocate adequate and independent sources of revenue to Local 6.2.5. Launch of Local Government Authorities, giving them e$ective Reform Programme control over these sources of revenue (3) Upgrading of institutional capacity In 1994 the Local Government of Local Authorities to enhance Reform Unit was established e#ciency, cost-e$ectiveness and to proceed with developing and equip them to provide leadership and coordination in the community implementing the Local Government development and empowerment Reform Programme and in November process.. 1995, then Prime Minister, !e Most

Reporting Local Government Issues — A Manual for Jamaican Journalists 39 (4) Comprehensive revision of outdated R5 Several measures to assist Local laws Authorities in boosting source (5) Upgrading quality and level of revenues and using their assets cost-e#ciency in relation to Local Government service and regulatory Amendments to Laws and functions Regulations to improve e$ectiveness (6) Shifting the focus of Local Authorities of Local Authorities and give them to leadership and coordination of more autonomy to adjust fees and the collective e$orts of the people to charges and amend By-laws and manage the a$airs of the Parish and Regulations generate local development (7) Examination of the present Improvement of institutional capacity distribution of service of Local Authorities responsibilities between Central and Local Government, community Creation of the National Advisory organizations, NGOs and the private Council, Parish Advisory Committees sector – and to identify better or more cost-e$ective arrangements for service (PACs) which were to become Parish delivery. Development Committees (PDCs) and other vehicles for increased participation of Civil Society and 6.2.6. Major Early Achievements of the enhancement of accountability, the Programme openness and transparency on the part Initiatives to allow Local Authorities of Local Authorities direct access to "nances: Designing, securing approval and R5 Parochial Revenue Fund (PRF) funding, and/or implementing established in 1996 designed externally funded projects; these to fund rehabilitation of local included Parish Infrastructure infrastructure, e.g. road network, Development Project (PDIP) to minor water supplies, markets, fund the rehabilitation of local administrative o#ces, work depots, infrastructure as well as the UNDP- acquisition of vehicles etc. sponsored Preparatory Assistance R5 Selected Taxes (Property Tax Project (PAP) and the CIDA- and 66 and 2/3% Motor Vehicle sponsored Supporting Local License Fees) designated as Government Reform Project (both dedicated sources of funding for designed to assist Local Authorities Local Authorities prepare themselves to implement the PDIP.

40 Reporting Local Government Issues — A Manual for Jamaican Journalists 6.2.7. Setbacks urban centres; it was under this Act that Portmore was granted municipal status. Despite the early successes of the ¾ Reform process, setbacks were to Ministry Paper 7/03, which rea#rmed come early in the new millennium: and expanded on the policy framework presented in Ministry Paper 8/93 and ¾ !e Local Government Reform Unit included a new implementation strategy was downsized and its responsibilities and action plan. transferred to the Ministry itself; ¾ !e establishment in 2003 of the Joint ¾ !e National Advisory Council Select Committee of Parliament on Local and the Local Government Reform Government was established, and Implementation Committee, which had ¾ facilitated a partnership between the !e restoration of the National Advisory Ministry, Local Authorities and other Council (NAC) in 2004. stakeholders in propelling the reform process, were disbanded; Revival of the National Advisory ¾ A proposal to regionalize Local Council Government by consolidating the existing 13 authorities into four Regional !e NAC reconstituted in 2004 and, Authorities was opposed by some chaired by the late Prof. the Hon. stakeholders. An alternative proposal to Rex Nettleford, O.M. was asked to create joint parish Authorities similar to undertake an in-depth examination the Kingston & St. Andrew Corporation and analysis of the existing system was similarly opposed. and functioning of local government in Jamaica. !e committee was to 6.2.8. Resuscitation of the Reform evaluate the reform proposals and Process 2003-2004 initiatives so far and propose further reform of the system. With a new Minister in place, measures were introduced to Four task forces were established, recon"rm Government’s commitment representing the four aspects of to the Local Government Reform Local Government to be studied: Programme and revive the process as Finance and Funding; Legal and envisaged in the earlier days. Major Policy; Structure, and Functions; new developments included: and Democracy, Accountability and Participation. ¾ !e Municipalities Act of 2003, enabling granting of municipal status to major

Reporting Local Government Issues — A Manual for Jamaican Journalists 41 Previous Reports of Studies recommendations. One strategy was on Local Government Reform to use the Interim Report to request from 1943 to 1984 as well as the a "nal response from stakeholders on Programme implemented since 1994 Local Government Reform in order were reviewed. Input was sought to ensure that the "nal report would from stakeholders and general truly represent a broad consensus. public. Research was done on local governance and reform and best practices from other countries studied 6.3. Highlights of Local and documented. Special research Government Reform since projects were commissioned through 1994 the Sir Arthur Lewis Institute for Social and Economic Studies (UWI) to inform the task forces. Learning Objectives

A National Consultation was At the end of this section, participants organized in collaboration with Local will be equipped to: Authorities, Parish Development Committees (PDCs), and other R5 List some of the signi"cant milestones of the Local agencies to establish relationships Government Reform Programme with key partners and access their in each of the 4 categories: (i) views, perspectives and expectations. Financial, (ii) Legal, (iii) Capacity Consultations were held in all parishes Building and Human Resource in partnership with ALGA, Social Development and (iv) Enhancing Development Commission, Local Public Education and Participatory Authorities and PDCs. !rough Local Governance a process of research, review and R5 As mentioned earlier, highlights of consultations with all stakeholders the achievements during the earliest Council evaluated reform proposals years of Local Government and initiatives and presented "ndings Reform included the Local and recommendations in an Interim Government Reform Unit, July Repo 1994, and the institution of the Parish Infrastructure Development Given the fate of previous reports Project (PDIP), the Preparatory and recommendations, the NAC Assistance Programme (PAP) and presented approaches and strategies the Supporting Local Government Programme (SLGP). !ere were to ensure e$ective action on its

42 Reporting Local Government Issues — A Manual for Jamaican Journalists several other signi"cant reform R5 Chapter on Local Governance milestones, some of which are drafted for inclusion in the outlined below. Constitution, following on recommendations from the Joint Select Committee of Parliament to 6.3.1. Financial Reforms entrench Local Government in the Constitution. Financial Reforms which have increased revenues substantially R5 Legislation passed to enable the "nancial reforms and amendment and reduced dependency on central of several Acts to give greater government, have led to improved autonomy to Councils to set or performance. Among the most amend fees and user charges, and signi"cant were: to make Regulations within their jurisdiction. (For example, Councils R5 Establishment of the Parochial no longer need approval from the Revenue Fund (PRF) in 1996, a Minister of Local Government for major feature of new arrangements adjustments to fees or regulations; for "nancing Local Government they need to notify Minister and by which Property Tax payments persons who will be a$ected of and 66 and 2/3 percent of proposed changes and the Minister Motor Vehicle Licenses Fees are has 30 days to respond). designated as dedicated revenue for Local Authorities. Ten R5 !e Municipalities Act (described percent of Property taxes goes to above) an Equalization Fund (EF), to supplement the income of Parishes R5 !e National Solid Waste with a weak revenue base. Management Act to establish that body. R5 Introduction of a full cost recovery policy relative to services and R5 Revisions to the Pound Act and regulatory functions performed by the Keeping of Animals Act to give Councils as well as assistance to Local Authorities to deal with stray boost revenue yield from traditional animals sources and to identify new R5 Building By-Laws amendments opportunities to earn e.g. Building/ to increase fees and extend the Sub-Division Fees jurisdiction to entire parish, not just Parish Capitals; part of the of comprehensive revision of Local 6.3.2. Legal Reforms Government Laws instituted under !ese include:

Reporting Local Government Issues — A Manual for Jamaican Journalists 43 ¾ Legal and Institutional Reform Road repair/maintenance programme Steering Committee (LIRSC). (including drain cleaning), road infrastructure R5 Initiation of a process to establish ¾ a modern local governance Streetlight data base systems developed in framework through the enactment the Councils of strategic legislation – the Local ¾ Bringing civic order to major urban Government Reform Act, Local centres and enforcing compliance with Government Finance and Financial laws and regulations Management Act, and the Local Government (Uni"ed Services) ¾ Inventory and Condition survey of infrastructure in all parishes, listing roads, drains, water supplies, urban facilities, 6.3.3. Institutional Capacity vehicle and equipment requirements, Building and Human Resource administrative buildings and workshop Development facilities, with results published in a manual for each Parish. Conducting of organization reviews regarding the structure and sta#ng of Local Authorities 6.3.4. Enhancing Public Education and Participatory Local Governance Current Reality Assessments of Local Authorities conducted R5 Establishment of NAC at the national level and PACs at the local New Pay Plan for mayors and level as primary mechanism for councillors increasing their enabling participation remuneration. R5 Adoption by most parishes of new Extensive training and development participatory governance structures programmes – Parish Development Committees, Development Area Committees Services Upgrading Component and Community Development covering areas such as: Committees in a model that ¾ facilitates the empowerment of Streamlining the processing of building/ communities and emphasizes subdivision applications; partnerships among all stakeholders ¾ Capacity of Local Authorities to prepare in the local governance process. Local Sustainable Development Plans R5 Public Education Programmes R5 A Local Public Accounts Committee established in each

44 Reporting Local Government Issues — A Manual for Jamaican Journalists Local Authority to assist the met with great success, as all major development of a transparent, open political parties and all of the major and accountable local government sectoral and other interest groups system that facilitates citizen had endorsed the Local Government involvement. Reform Programme, and expressed R5 Development of mechanisms their recognition of the importance of by individual parishes to having strong and autonomous Local facilitate participation, e.g. co- Government. opting members of PDCs and Civil Society to sit on Council committees and broadcasting ISSUES FOR DISCUSSION proceedings of Council Meetings on local cable TV ¾ Is Local Government Reform worth the e$ort? Would it not be cheaper and R5 Councils presenting of draft more e$ective to demolish the present budgets to citizens and inviting system of Local Government altogether their inputs and invest resources in meaningful urban renewal and development and e#cient city management, without the Party 6.4. New administration, politics. 2007 ¾ Looking at the partial list of major achievements of the Local Government !e new administration, which came Reform programme since 1994, to what into o#ce in 2007 accepted the extent has the implementation been recommendations of the NAC and successful matched against the objectives? committed to their implementation. Can it succeed? !e Minister of State reconvened the NAC and requested its members to continue their work and produce the "nal report. By means of the NAC EXERCISE consultations and the work of the Joint Select Committee of Parliament, Break into small groups for the a broad national consensus on Local following exercise: Government Reform had been R5 In relation to objectives, areas achieved. !e "nal report of the of intervention and the major NAC presented in 2009 concluded achievements of the Local that the e$ort to build consensus has Government Reform Programme

Reporting Local Government Issues — A Manual for Jamaican Journalists 45 so far, choose one of the following stakeholder groups and list the costs, bene"ts, and threats of the Programme from its perspective:

¾ Local Government Authorities; People in their Communities

¾ Civil Society; Central Government

46 Reporting Local Government Issues — A Manual for Jamaican Journalists 7. Advancing the opportunities are presented for social transformation and economic Reform Agenda: development. Decentralization, as Challenges and stated in the NAC Final Report, is to: Opportunities R5 Empower citizens and communities to have a real say in decisions a$ecting the quality their lives; R5 Allow for channelling more of the energy, talent and creativity residing in the Jamaican people into nation 7.1 Learning Objectives building, and away from anti-social pursuits; At the end of this chapter, participants R5 Address needs of a more informed, will be equipped to: educated and assertive citizenry resulting from the information, ¾ List 4 opportunities for social communication and technology transformation with a decentralized revolution; they are more Local Government. demanding and expect higher ¾ State some lingering areas of concern standards in the conduct of public about Local Government Reform on the a$airs, and part of the public, the Local Authorities R5 Facilitate satisfying demands and and Central Government. expectations of the citizenry and ¾ Give some examples of what could reconciling of demands to available be done to speed up the reform resources, which can only be implementation process achieved by full partnership with civil society in a local governance model de"ned by the NAC as being 7.2. Decentralization: based on: inclusiveness; openness; Deepening Democracy transparency; participation; accountability; equity, and high ethical standards in the conduct of !e Local Government Reform public a$airs Programme is designed to produce !e assurance is given that “the a democratic, decentralized Local autonomy being advocated is of Government system. With the limited nature and is not supposed to devolution of power reaching down be a weakening of the state.” At the to the grassroots level, many real

Reporting Local Government Issues — A Manual for Jamaican Journalists 47 same time, the point is made that, waste and general ine#ciency and “Recognition of local government ine$ectiveness in responding to local as a distinct sphere of government problems. does not preclude an oversight role !ere is inadequate understanding for central government in regard to of how Local Government Reform the operations of local government. would a$ect people’s lives at the What it suggests is that the exercise local and national levels in a positive of such a role should not be arbitrary way. !e “what’s in it for me” and take place within clearly de"ned question has not been answered in constitutional guidelines.” a satisfactory manner. Furthermore, there is a view in some quarters that 7.3. Some Areas of Concern local government is an expensive, malfunctioning albatross that should be discarded in favour of an e$ective, Despite consensus achieved by major depoliticised management system political parties and stakeholders for urban areas. Media institutions, and assurances of bene"ts to all which could help to shape public stakeholders, some areas of concern opinion, have tended to be guided by about the implementation of the apathy of the public in tracking the Local Government Reform the Local Government Reform Programme remain at various levels: programme rather than proactively focusing public attention on the The Public issues, outside of election time.

Lack of public interest and caring Civil society, the other great about the Local Government system mobilizing force in relation to public is a major obstacle to progress, opinion, is just now beginning because public interest is a powerful to become aware of its potential motivating force for governments to power as a watchdog for democracy act. !e low level of interest in local and integrity in the conduct of government a$airs, evidenced by low public a$airs as well as a catalyst voter turnout for parochial elections, for action. Decentralization, (See Appendix 2) is based on the participation, governance as distinct public perception of local government from government, accountability, as being tainted by corruption (“pork transparency, e#ciency, e$ectiveness barrel” politics), mismanagement, and responsiveness are concepts

48 Reporting Local Government Issues — A Manual for Jamaican Journalists beginning to gain real currency in the to improve service delivery and other public domain. functions and make a signi"cant impact on the economic development Slow implementation of reform and social transformation of their measures, caused in part by changes localities. Under the present system in administrations, policy shifts and characterized by over-dependence ministerial portfolios, have not helped on Central Government, inadequate to build trust and con"dence in the "nancial resources and technical sincerity of Government to carry capacity and generally having forward the Reform programme with responsibility without commensurate enthusiasm. power, Local Authorities are vulnerable and insecure. !ere Local Authorities is recognition of the need for change; however, there is still some !ere is ambivalence about Local uncertainty about what the change Government reform, among the could bring.. One of the questions is very persons who ought to be what impact will Local Government leading the charge for accelerating Reform a$ect political relationships implementation of the programme, especially the one between the “ruling the Local Authorities. Suspicion Party” and the people’s representatives about the e$ect the Reform measures at the local level? will have on the status and power of Local Authorities still exists, Central Government mainly arising from the emphasis on greater and more direct participation On the part of Central Government, of communities and civil society in there is still inadequate understanding local governance, which is linked of the indispensable, powerful role of a to ensuring a greater level of truly democratised, decentralized, and accountability, transparency, e#ciency e$ective Local Government System and e$ectiveness. Nagging questions in fast-tracking the achievement remain about where e$ective control of national objectives. Such an will eventually reside. understanding would be a motivating !ere is need for a greater factor for timely action on the Reform appreciation of how good governance, Programme. by broadening the participation by citizens can help Local Authorities

Reporting Local Government Issues — A Manual for Jamaican Journalists 49 !e ingrained culture of over- 7.4. The Way Forward bureaucratisation based on what Edwin Jones describes as “strong With all the misgivings, as indicated centralizing impulses in Public in Chapter 6, progress has been Administration”, leading to made in pursuing Local Government indi$erence and resistance to change, Reform as evidenced by the list is an obstacle to progress. !ere is also of achievements. Going forward, the question of political usefulness of however, there are several issues that the Local Government system as is, will a$ect the nature, timing and to political parties. For some in the quality of service delivered by local leadership class, Councillors are foot authorities in the areas of "nance soldiers in the political competition and funding, the legal framework, that the parties wage at the national and capacity-building to be fully level, As stated by former Mayor of equipped to deliver the services to May Pen and Chairman of ALGA, carry out their regulatory roles and in a Gleaner article some in%uential functions and accommodate the voices in politics and the media still level of participation required as the regard councillors “the drivers or yard decentralization process unfolds. boys of members of parliament (MPs) and elected to o#ce on the MP’s Accelerating the Programme party ticket. !at might have been so in the past; we insist that it is no Following on the General Elections longer so.” of 2011 a new Government was !e apparent tardiness in installed. !e ruling party went on to implementation of measures has win a landslide victory in the Local raised the question: does the political Government elections of March will exist to move forward quickly 26, 2012 a little less than three with the process? Proceeding with months later. Accelerating the Local entrenching Local Government in Government Reform process was a the constitution and passing the major campaign platform. major pieces of legislation required to !e Prime Minister, who re- establish the legal framework would established the Ministry of Local help to allay fears. Government and Community Development as a full Ministry, has pledged to begin the entrenchment

50 Reporting Local Government Issues — A Manual for Jamaican Journalists process in this the 50th year of take the decisions they need to take Independence. “Our commitment to and to raise the money they need to local government is unquestionable raise in order to do the work. !e door and we are here to ensure that we will be pushed wide open to allow for advance the process. We are doing a optimal participation of citizens as series of consultations and we intend major actors in governance. to carry the process further than it has !ere is no need for further delay. !e ever been, ” said the new Minister of National Advisory Council on Local Local Government and Community Government Reform (NAC) has Development (at the "rst consultation done its work. !ere is broad national at the St. Ann Parish Council, consensus on the Reform initiatives. on February. 8, 2012). !e Prime !e implementation programme Minister reinforced the commitment can now go forward quickly in order at the function celebrating the victory to give Local Government greater of her Party in the local government "scal independence and consequently elections of March 2012. greater operational autonomy in Entrenchment of Local Government managing a$airs at the local level. in the constitution and the passing !e question for the media and civil of strategic legislation relating to society as a whole is what needs to Local Governance, Finance and be done to ensure that the Local Accountability and Human Resource Government Reform, as mandated Management head the list of activities by all stakeholders, proceed full speed to be undertaken as part of the current ahead. agenda.

ISSUES FOR DISCUSSION Expectations 1. Do you think that the current Local Hope lies in the promise that the Government Reform Programme is energizing of Local Government will the de"nitive answer to the challenges put an end to the piecemeal, uneven of ensuring good governance at the local level?. approach to implementation of the Reform programme. Expectations 2. How could the major stakeholders in Local Government play a larger are that Central Government will act part in ensuring that the Reform with dispatch and Local Authorities programme is implemented in a timely will be empowered constitutionally to manner?

Reporting Local Government Issues — A Manual for Jamaican Journalists 51 EXERCISES Working in small groups prepare and make a group presentation on one of the following: 1) A news commentary for the print or electronic media on “!e Way Forward for Local Government in Jamaica 2) A presentation to Editors on the media’s role in local government reform.

52 Reporting Local Government Issues — A Manual for Jamaican Journalists !odule (our: )eporting local government

Reporting Local Government Issues — A Manual for Jamaican Journalists 53 8. Covering policies and procedures for covering elections, whether national or local. Elections: !ese would be speci"c to the peculiar Understanding the needs, resources and orientation of each news organisation. For instance Electoral System newspapers, radio and television stations will have di$erent priorities and needs. Within the radio genre, for instance, a general interest or a news “All broadcast outlets, large or small, rich or station would devote more time and poor, have a public service duty to contribute to free and fair elections in any way they resources to election coverage than a can. Radio and TV create and foster the music station. democratic environment by telling the truth, by investigating the hidden, by explaining the However, there are general principles background, by presenting the facts so that a that apply across all media and it well informed electorate can make reasoned is important that these are fully choices” understood by all reporters. !ese will (Commonwealth Broadcasting be explored in this section. Guidelines)

8.2. Learning Objectives 8.1. Overview At the end of this section, participants Elections do not democracy make. will be able to: However, regularly scheduled, free 1. Describe the fundamentals of Jamaica’s and fair elections are essential to electoral system, particularly the democratic governance. Losers must role of the Electoral O#ce and the have con"dence in the integrity of the Electoral Commission Know the rules regarding eligibility of candidates to process in order to willingly accept contest local government elections the results as the true expression of 2. Identify legal responsibility for calling the will of the people. !e media play local government elections a very important role in the ultimate determination of whether an election 3. Understand the strategies used by governments to set the dates for local will be free and fair. elections. All the major news organisations in Jamaica have their own internal

54 Reporting Local Government Issues — A Manual for Jamaican Journalists 8.3. Background independent Electoral Commission of Jamaica. In 1944, Jamaica adopted a Starting with the election of 1944, new constitution under which there has been 16 parliamentary representative Government replaced elections which have been dominated Crown Colony Government. Instead by the two major political parties, of a semi-representative, single the People’s National Party winning chamber legislature there were two nine and the Jamaica Labour Party chambers, one elected and one winning seven of the contests. !e nominated. !e Constitution provided "rst local government election, for an executive council of "ve under the new system was conducted nominated members and "ve elected in 1947 to elect Parochial Boards members. It provided for greater on a parish basis. !is was won by representation of the people’s interest independent candidates. Since then by their elected representatives. For there have been 15 local elections, the the "rst time in the history of Jamaica, most recent being that of March 26, the franchise was extended to all 2012. adults of twenty-one years old and over. Over time, the age limit has been lowered to 18, re%ecting the current 8.4. Role and Responsibility de"nition of ‘adult’. of the Electoral O"ce !e abolition of Crown Colony Government and the adoption of Authority for the conduct of elections Universal Adult Su$rage necessitated now resides in the Electoral O#ce of the creation of a government body Jamaica, responsible to the Electoral mandated to administer subsequent Commission of Jamaica, a body elections. !us, the Electoral O#ce established as a Commission of of Jamaica was established in 1943 to Parliament with wide powers over all administer Parliamentary and Local major aspects of the electoral system. Government Elections. !e EOJ !e senate passed the Electoral has been through several changes Commission (Interim) Act 2006 including removal of control by the on October 20th, 2006, clearing the minister responsible for electoral way for the creation of the Electoral matters to the current status in which Commission of Jamaica (E.C.J.). the EOJ is under the direction of the According to the description on

Reporting Local Government Issues — A Manual for Jamaican Journalists 55 www.eoj.com.jm its website, ( ) the by the Prime Minister and two Commission’s responsibility “is to nominated by the Leader of the potect the electoral process from the Opposition—that is two persons immediate direction, in%uence and from each of the major parties—and control of the Government, which the ninth member is the Director of may in%uence its functioning to the Elections.. detriment of persons with opposing views who may wish to participate in the process. 8.5. Eligibility for Election as Councillor “In addition to conducting general elections, by-elections or referenda, A Councillor in a parish is elected the Commission is responsible on a divisional basis, primarily to for compiling and maintaining represent the needs and interests the register of eligible electors; of all citizens in the division while, verifying the identity of every eligible simultaneously, taking account of elector; approving political parties the broader interests of the parish. eligible to receive state funding; and Following the changes in electoral administering electoral funding and boundaries for the General Election "nancial disclosure requirements.” of 29 December 2011 which increased !e Commission is responsible for the the number of constituencies from delimitation of electoral boundaries, 60 to 63 there were consequential known as constituencies for changes in some divisional boundaries. parliamentary elections, and divisions As a result, there were 228 divisions for local authorities; nomination of for the Local Government Elections candidates contesting the election; of 26 March 2012. (See Appendix 2 hiring and training of electoral sta$ for the names of the electoral divisions to carry out all election operations; and results of the March poll.) conduct of polling; counting of the !e laws relating to electing and votes and declaration of the "nal holding o#ce in Local Government results are the Parish Council Act (1901), !e 9-member Commission the Municipalities Act (2003) comprises four selected (independent) and the Kingston and St. Andrew members, four nominated members Corporation Act. !e law states that which include two persons nominated no individual shall be quali"ed to be

56 Reporting Local Government Issues — A Manual for Jamaican Journalists elected or, take o#ce, or have the right electoral process. Among other things, to vote as a member of the Parish a candidate is entitled to the o#cial Council in any Parish IF: list of electors who are eligible to vote 1. !e individual is less than 18 years in the upcoming election; a certi"ed old or is not able to read and write list of all the names of candidates English; or nominated. A candidate can withdraw 2. !e individual is not registered from the election at anytime; and not in the Parish she/he is seeking less than 96 hours before the polls representation; or open on Election Day - as long as the 3. !e individual is bankrupt and has laws are followed. A candidate has a not been discharged by the Courts or right to be present and if necessary, creditors of these debts; or with representatives, at the Polling 4. !e individual is subject to the Civil Station; but for no more than 5 Service Establishment Act; or continuous minutes. 5. !e individual is promoting his/her "nancial interest in business deals with any Parish Council; or 8.6. Eligibility to vote 6. !e individual is a member of the House of Representatives Section 111 (3) of the Representation 7. Kingston and St. Andrew Corporation of the People Act has the following Act requires that the person must provision regarding eligibility of have established residence for twelve months immediately before the day voters: of the election, (Section 12 (2) of the ¾ “No person shall be entitled to vote in any KSAC Act). polling division if- Persons elected as Councillors to the (a) He is under the age of eighteen years; Portmore Municipality must also or report to the St. Catherine Parish (b) He is not a Commonwealth citizen Council and attend its Committee resident in Jamaica; or meetings. (c) He is a person who is disquali'ed from voting under Subsection (3) of A candidate (for Councillor) in Section 5.” Local Government Election enjoys ¾ several rights that reporters should be !ose disquali"ed under (c) include familiar with because infringement people under a death sentence and those who are insane. of these rights could lead to disputes or allegations of impropriety in the

Reporting Local Government Issues — A Manual for Jamaican Journalists 57 !ese are the same criteria for March 26, 2012 would be the most eligibility to vote in a general election, recent example of this approach. hence it is not necessary for the EOJ Occasionally, however, the strategy to compiles separate electoral lists does not work as intended by the from scratch. party in government. In 2003, for example, the ruling People’s National 8.7. Calling of Local Party called and lost the local Government Poll government poll called within months after winning the 2002 general parliamentary election, By law, there should be a Local Government Election in every third !ere has been much discussion year, not earlier than a day in March about the present arrangements. One or later than a day in June, as the argument is that by giving central Governor General may order. In government so much power in relation practice, however, governments have to setting the date for election, the frequently exercised the right of the system reinforces the notion of local Minister to postpone the elections to government as a subsidiary of central meet the political convenience of the government and that councillors are party forming the government. ‘troops on the ground’ for members of parliament and the constituency On some occasions elections are called machine of the major parties. within months of a party winning a general election and forming the One alternative approach, suggested government. !is strategy allows by both parties in the lead up to the the government to retain and use March 26 election, would be to extend the party machinery in place for the the life of a council from three to general election, thus avoiding the four years, bringing it closer in line cost and time for re-mobilizing the to the "ve year term of parliament. campaign team. Further, the goodwill !is could help to reduce the long and popularity that caused victory postponements because both central in the general election is likely to and local government would be up for carry over into the local election. !e re-election in close proximity. general election of December 29, 2011 and the local government election of A variation on this idea would be to have the same term of o#ce for both levels of government and hold

58 Reporting Local Government Issues — A Manual for Jamaican Journalists elections for both at the same time. WORKSHOP EXERCISES !is could either be on a "xed date 1. Name three responsibilities of the or a date set by the government. electoral o#ce in the conduct of According to the Electoral O#ce, elections. holding the two elections on the same 2. Give six reasons why persons may day would save that O#ce at least be deemed ineligible to become one billion dollars the average cost of candidates in local government conducting a national poll—local or elections. parliamentary. Other state agencies 3. List three points in favour and like the Constabulary and the security three against changing the present arrangements for setting the dates for forces would also save. local elections. It has also been suggested that having the two elections at the same time would help to deal with the problem of low turnout and lack of interest in local government. A counter argument is that joint voting would further reduce the visibility and relevance of local authorities as their issues and personalities would be overwhelmed by the parliamentary contests.

ISSUES FOR DISCUSSION

1. Con"dence in the electoral system and the EOJ: Are elections considered free and fair? 2. How can the media generate more interest in the issue of setting the date for election?

Reporting Local Government Issues — A Manual for Jamaican Journalists 59 9. Covering the 1) Identify the steps in getting a newsroom and reporters and other Elections: From team members ready cover an election, Campaigning to general or local 2) Describe and apply the principles Reporting the Results of fairness and balance in election reporting 3) Identify and follow guidelines for reporters covering election campaigns.

A basic test of a media organisation’s commitment to impartiality is in the 9.3. Preparation for way it reports election campaigns Election Coverage (Newsroom and issues related to the free and Readiness) fair election of a government in a democratic society. In this section, Jamaica does not have "xed election we will look at some of the key issues dates. !e Prime Minister of the involved day has the sole authority to choose the election date within broad limits spelled out in the Representation 9.1. Overview of the People Act (ROPA). In consequence, newsrooms encounter In this section of the manual we serious problems in getting ready. discuss newsroom preparation for However, by paying close attention covering an election including to political developments, including composition and function of election organising and candidate selection by coverage teams; guidelines for the major parties, newsrooms can get reporting campaign, polling and a head start in the planning process vote-counting activities; guidelines ahead of the o#cial setting of the to ensure personal safety and protect election date. !e extent of planning professional integrity. and subsequent coverage will depend on several factors including availability of "nancial resources and the editorial 9.2. Learning Objectives policy of the news organisation.

At the end of this section, participants will be able to:

60 Reporting Local Government Issues — A Manual for Jamaican Journalists 9.4. Establishing an Election composition of a team would depend Coverage Team and Coverage on the nature and pro"le of the news Plan media, budgetary constraints and the lead time between campaigning and E$ective coverage of any election— polling. parliamentary or local government— !e coverage plan would state, in a has certain minimum requirements: fair amount of detail, how the election establishing of a planning team to will be covered; assign responsibilities identify and manage the requisite and instructions to team members; human and material resources; and have a system of accountability developing and implementing and reporting relationships among a coverage plan; monitor members. In that way, each team implementation of the plan to ensure member will know exactly what is that the agreed journalistic goals are expected of him/her and have a basis met or take corrective action where for performance evaluation. Ideally, they are not. one unit should be assigned to each Composition of the team: leader of a major political party while other units would be assigned on the R5 Team Leader (A senior journalist, probably the news director of basis of newsworthy considerations. managing editor !e size and scope of the plan would R5 Logistics manager/coordinator also depend on it was a general or (transport, food, subsistence) a local government election. In the case of the latter, there would be R5 Liaison with political parties 228 electoral divisions (as against 63 R5 Reporters/producers constituencies); and the Municipality R5 Photo-journalist, viedographers of Portmore would have to be given special consideration because the R5 Research and data gathering mayor is elected directly by the R5 Opinion polling electorate. We also know that issues like candidate selection and the R5 Commentators, opinion journalists overall direction of the campaign are R5 Finance/budget controlled from party headquarters in Kingston. !e above is an illustrative rather than an exhaustive list as the actual

Reporting Local Government Issues — A Manual for Jamaican Journalists 61 In these circumstances, team members including food, transportation and would have to be assigned to party equipment. headquarters to understand the overall direction of the campaign as well as to the parishes to know the 9.5. Achieving Balance and candidates and understand the local Fairness in News Reporting issues and %avour of the campaign. Research and planning would be Fair and balanced reporting is a critical to success and to maximising fundamental principle of journalism; "nancial and human resources. At the it has special signi"cance in the earliest stage (after the announcement coverage of elections because media of election day) the research team coverage of elections has a direct would identify the critical parish/ bearing on the quality of a country’s divisional races; the most important democracy. !e public should be issues at the local level; disputes able to rely on reporters for a fair about candidate selection etc. !e assessment of the issues and the team leader would deploy resources intense rivalries that are part and accordingly, taking account also of parcel of competitive politics. At stake reader/audience interest. !e exercise are not just the credibility individual may require temporary recruitment of journalists and media organizations additional sta$ (especially reporters but the democratic process itself. and videographers) in rural divisions Some news organisations get into to extend the reach of the Kingston- election coverage mode even before based permanent sta$. the prime minister announces the Journalists have a earned a reputation election date; but the period between of paying little or no attention Nomination Day and Election Day to budgets and "nancial matters. (16-23 days) has more sustained and However, it is very important to intense coverage of the issues and develop accurate costs for the various candidates as well as “the drama, activities to be undertaken and discuss colour and feel of the campaign”. them with the "nancial managers (ACM, 2009) On election day, the in the organisation so that adequate focus is on the actual polling and arrangements can be made for "nally, the vote count and results. funding. Sta$ will be disgruntled if While there is broad acceptance of they do not have necessary resources the principle of balance and fairness,

62 Reporting Local Government Issues — A Manual for Jamaican Journalists the challenge is how to put it in back for accuracy and resolve claims practice in the heat of the campaign. of inaccuracy or unfair reporting. Following are some guidelines and R5 Separate fact from opinion in key areas that journalists must pay your reporting; opinions must be attention to because the answers could clearly attributed to the opinion- determine whether the elections are maker. !e personal opinion of seen as free and fair. the reporter has no place in a news story. R5 Do not report rumours and 9.5.1. Cover the Issues Fairly, Factually and Thoroughly unsubstantiated allegations as fact; these take a life of their own at R5 Assign teams to cover the leaders election time. and major spokespersons of the R5 Do not treat party surrogates or main parties. Continuity and a#liates as independent voices; consistence are often enhanced where their views are reported, their if the same team remains with a a#liation must be clearly identi"ed party leader for the duration of the for audiences. campaign. However, editors must watch for, and take appropriate R5 Political commentators can add remedial action, where reporters context to election coverage; become too cosy with the campaign however care should be to which they are assigned. exercised especially where these commentators have a#liations with R5 Treat minority parties with respect. one party or another. It is not necessary to provide national treatment to third parties R5 Information from public opinion and candidates. However, they polls should be carefully reported. must not be dismissed on the Readers should know the pollster, presumption that they will not win the sponsor of the research, the seats. sample size and communities polled, the date of the poll etc. In R5 Use party manifestoes and o#cial reporting, care should be taken statements to re%ect party positions. to avoid confusion between the Inconsistencies between platform research data (that is, the actual rhetoric and manifesto statements "ndings) and any interpretation should be pointed out. placed on the data by the pollster or R5 Record (audio/video) speeches so the news media/reporter. that the recordings can be played R5 Estimating size of crowd is a hazard that can get news

Reporting Local Government Issues — A Manual for Jamaican Journalists 63 ¾ organisations in trouble. Here, some Do not be intimidated or give the observations of the Association of impression that you are Caribbean Media Workers (ACM) ¾ For as much as you can, continue your in their election handbook are work of taking notes or recording sound worth repeating: or images. If necessary, call the attention R5 Size of crowd: Avoid estimates of security or police to the fact that you of crowd size, unless you have a are being deliberately prevented from reliable means of ascertaining size, doTake careful note of your surroundings for example, the known number of and the people nearby seats in an auditorium or a stadium ¾ Have your media pass with you, if Avoid giving "gures. necessary, wearing it so it can be seen R5 Also refrain from saying “large”, ¾ Take no unnecessary risks with your “huge”, “massive”, “gigantic”, and personal safety.” “small”, “disappointing”, “paltry” or any term that suggests expression We know from experience in of opinion rather than factual Jamaica that reporters sometimes reporting. come under attack from political R5 Under attack: !e media platform by politicians who in general, speci"c media allege bias and partisanship in organizations, and even individual the coverage they receive. Such journalists, are sometimes attacked attacks should be reported to by political platform speakers. senior newsroom managers, to Such statements are capable of inciting supporters to intimidate, professional organisations like the threaten or attempt physical assault Press Association and watch dog on media representatives. Again, bodies like the O#ce of the Political the following tip from the ACM Ombudsman, charged with the handbook is useful: responsibility of promoting free and fair elections. !e attacks must also be “If any of this happens, or looks like it included in the coverage of meetings is going to happen, at an event you are and occasions where such attacks take covering: place. Equally important, reporters ¾ Stay calm must ensure that there is no factual basis for such allegations by the ¾ Avoid shouting matches with "red-up supporters quality of their reporting.

64 Reporting Local Government Issues — A Manual for Jamaican Journalists 9.6. Election Debates Research conducted for the Debates Commission after the 2007 general Election debates are becoming a election, found that some 60% of standard feature of the Jamaican persons who voted said they watched political landscape. Since, the 1990s, the debate between PNP leader Portia the Jamaica Debates Commission Simpson Miller and JLP leader Bruce (an initiative of the Jamaica Chamber Golding. Of those who watched, of Commerce and the Media 23% said the debate in%uenced their Association of Jamaica) has partnered "nal voting decision. Similar results with national and international were found in 2012 with respect to organisations to stage nationally- the 2011 general election. Hence, the televised debates among the major data is clear evidence that debates parties and party leaders. !e practice matter and must be taken seriously by was introduced at the local level for political parties and journalists. the March 26 Local Government After, the 2011 debate between Election when two three-member Simpson Miller and the new JLP teams from the JLP and the PNP leader Andrew Holness some debated each other. media houses began to ‘fact-check’ Debates have also been organised at statements made under the pressure the constituency and parish levels by and glare of a live debate. !e exercise civic groups, small cable operators and found several errors which then educational institutions like Northern became the sources of new news Caribbean University. !ese debates stories. !e take-away here is that sometimes take the form of town hall debates can be mined for stories other meetings, and are particularly useful in than the obvious ‘he said, she said’. generating interest in local candidates and issues. 9.7. Election Day (Access to !e proliferation of regional radio and polling places and candidates) cable stations as well as community- based newspapers o$ers a good basis !e focus of coverage is the actual for increasing interest in, and support voting between the opening of for, expanding debates at the local polling stations at 7:00 a.m. and level. the close at 5:00 p.m. !e coverage plan, developed in advance of formal

Reporting Local Government Issues — A Manual for Jamaican Journalists 65 campaigning, must include speci"c b. Are some candidates denied their approaches to election day. right to observe what is going on at polling stations for a maximum of 5 Journalists need to pay special continuous minutes? attention to rules and regulations c. Is the restriction impartially relating to three main issues: implemented? 1. !e rights of voters Reporters should be aware of these issues before election day so that when a) !e right to vote sits at the centre of the democratic process; hence they hit the streets, they have a basis reporters should pay close attention to for knowing what stories to look for. whether arrangements are in place for the easy exercise of that right. b) Do voters know where they are to cast 9.8. Accessing and their vote? Reporting Election Results

2. !e election process R5 !e climactic point of any election a. How is the process being managed by is the tallying, the counting, and the entire system from the presiding announcement of the "nal results. o#cer and his/her sta$ to the It is the moment when all the returning o#cer at the constituency or division level up to the Director of political charges and counter- Elections at the apex of the system? charges made by the contesting candidates-- all the sound and fury b. Are polling stations adequately sta$ed of the electoral campaign —are and supplied with necessary material "nally settled by the public will. like ballot paper, ink, electronic voter identi"cation machinery where Reporters covering election results appropriate? should be wary of projections or even the actual announcement c. Are polling stations opened on time? of results from any or all of the If not, why not? contesting parties. d. Are there long lines and delays? How are voters behaving on line? R5 Results are collected and distributed by the EOJ through e. Is there intimidation of voters or a sophisticated data management election day workers? system. News organisations must be familiar with the system and 3. Restrictions on campaigning make prior arrangements to access a. Are the laws governing restrictions on the results and relay them to their campaigning at polling stations being audiences on a timely basis. Results observed? from polling stations and divisions

66 Reporting Local Government Issues — A Manual for Jamaican Journalists closest to the EOJ’s o#ce in each EXERCISES constituency are available before those further away. By knowing Simulation: Divide participants into the historical patterns, experienced two groups and assign the groups to reporters and analysts can begin form themselves into teams to cover to assess trends early. Typically, all an election. One team would develop results are available within four a plan for a local and the other for hours of the close of poll. a general election. !e teams would R5 !e two main parties, through report back to the entire workshop. their election day machinery on !e team building should re%ect the the ground, are able to get a good learning in this section. feel of the likely outcome. Hence, reporters must develop contacts and remain in touch with them throughout the day and as results become available. Separate teams must also be assigned to party headquarters to report on the di$erent moods, depending on the results. Reporters should be careful not to be seen as personally re%ecting the respective moods of jubilation or depression. !is will be interpreted as partisan. Keep your reports professional and impartial even in the face of provocation or entreaties by partisans.

ISSUES FOR DISCUSSION

1) Professional preparation to cover a campaign—some dos and don’ts.

2) Accessing election results from the EOJ

3) Why are debates important?

Reporting Local Government Issues — A Manual for Jamaican Journalists 67 10. Covering 2) Be equipped to identify and use some of the skills for investigative reporting Meetings of Council 3) Understand the principle of relevance and Committees of and accountability as alternative frames for covering local government Council issues 4) Have the attitudes and skills better cover to local government activities.

10.3. Media Treatment of 10.1. Overview Local Government

!is section of the module provides Following the lead of the political details for covering local government establishment to treat local in action with speci"c reference to government as a lower rather than formal meetings of Council and another form of government, media Committees. !e section provides have covered local government with background information on the scant regard. Few examples will criteria for making decisions about illustrate the point. newsworthiness; discusses relevance ¾ Council meetings, especially outside and accountability as appropriate the Kingston Metropolitan Area, are values within which to frame news not routinely covered as happens in stories; o$ers guidelines for reporters Parliament and its committees. assigned to covering the day to day ¾ Centralisation of newsroom decision- activities of local government between making and news gathering resources in elections. Kingston favour the deployment of these resources in the city. 10.2. Learning Objectives ¾ !e criteria for determining newsworthiness favour coverage of central government. At the end of this section participants will: 1) Be able to identify the main criteria for determining ‘newsworthiness’ and apply them to coverage of local government

68 Reporting Local Government Issues — A Manual for Jamaican Journalists 10.4. Newsworthiness and Timeliness coverage of ‘local’ issues News is what is new. Events must be reported as quickly as possible after What makes an event or issue they have occurred and, indeed, most newsworthy? We know that not news media place a high value on every important event that occurs being ‘"rst’. Accordingly, an event on any given day gets reported in or issue emanating from action the major news organisations even or inaction by local government when reporters and editors are aware authority may, occasionally, make of them. !e decision about which ‘news’ only because the newsroom is events will make the news is usually able to report it within a short time made by reporters, editors and other of its occurrence. !e same event gatekeepers in the newsroom using may be of no value in a matter of criteria like newsworthiness of a hours and, certainly days, unless new particular event, the cost-e$ectiveness information is available to update the of the event and audience story. Timeliness and being ‘"rst’ are expectations. particularly crucial to 24-hour news In most media and journalistic operations or those with frequent settings around the world there bulletins throughout the day. a number standard factors for determining newsworthiness. !ese Proximity include timeliness or immediacy, proximity, prominence, con%ict, An event that is near usually takes consequence, impact. precedence over one that is far from Not all of these criteria will apply to the geography and experience of the every story although most stories will audience. A regular meeting of the contain several elements. !e extent KSAC is more likely to be reported to which some criteria are emphasised than a similar event in Trelawny and others are downplayed would because all the national media depend on the core values of the organisations are based in Kingston organisation as well as the values and where resources and decision-making attitudes of the particular reporter or are concentrated. Do the Kingston- editor or the particular event. based news media deploy enough resources to parish capitals to cover local authorities on a regular basis?

Reporting Local Government Issues — A Manual for Jamaican Journalists 69 !e concept of ‘proximity’ refers central and local authorities over to the geographic and conceptual jurisdiction, rivalry among political nearness of an event to the primary partisans. audience/reader/market of the news organisation. Sensationalism

Prominence Con%ict provides a frame for ‘sensationalising’ a story and there Issues or events a$ecting or is a strong body of empirical data involving prominent personalities con"rming the market appeal of are newsworthy because of sensational stories. (Care should the expectation of readers and be taken not to confuse sensational audiences. Local o#cials may with ‘fantasy’.) Sensational may be not have the prominence of their described as the choice of subject or national counterparts but they issue and the use of language and do hold prominent positions in image to cause or create excitement their communities and are, indeed, and appeal in the audience. newsworthy. But in our political scheme of arrangements, they do Consequence not enjoy nearly the same status as their counterparts in the national Street lights not functioning or legislature. garbage piling up are just two examples of local issues with major Con!ict consequences for safety and public health. Hence, reporters need to Con%ict is one of the most frequently consider the consequence of an action used values to frame news stories. In — or inaction — in determining the Jamaican context the con%ict may newsworthiness. be between citizens and the police or between political parties or candidates. Impact In terms of local government coverage in Jamaica frequent con%ict frames for What are the likely impacts of the stories include allegations of improper story on the primary audience? Local allocation and use of public funds government stories are more likely and other resources, disputes between to have a greater impact on the local

70 Reporting Local Government Issues — A Manual for Jamaican Journalists community. However, reporters Further, the ATIA provides for can frame the stories in ways that access to Council records while at the audiences outside the immediate same time protecting the privacy of locality can relate to the issues and personal information. Council does events. not have any discretion to withhold information that must be disclosed under the ATIA. !e head of Council 10.5. Investigative / is responsible for all Council decisions Enterprise Reporting and actions regarding ATIA. !is responsibility can be delegated to a Investigative or enterprise reporting senior sta$ person. !e fundamental has been a fairly recent development principles underlying the Access to in Jamaican journalism which has Information Act are: had a long tradition of chronicling a) Governmental accountability the statements of high o#cials and business and community leaders. b) Transparency Progress in this area will depend, c) Public participation in national substantially, on the extent to which decision making. journalists learn and use the tools of E$ective use of the provisions of the investigative reporting. Act is a crucial contributor to open One of the tools available to and transparent governance. Hence, journalists to ferret out information reporters must familiarise themselves from governmental and other with the Act and develop skills and state agencies is Jamaica’s Access techniques to use it to enhance their to Information Act (2002) which reporting of local government issues. requires public o#cials, in both Reporters should note that there central and local government, to is a statutory lead time between provide information on a wide range requesting information and when of issues. !e ATIA attempts to strike agencies are required to provide it. a balance between the public’s right !e process is not the same as calling to know and the individual’s right up a ‘source’ for a quick comment to privacy, as those rights relate to on a breaking story. It can best be information held by public bodies in used to investigate long term local Jamaica. government issues such as tracking expenditure, award of contracts and granting of building approvals.

Reporting Local Government Issues — A Manual for Jamaican Journalists 71 10.6. Relevance and 10.6.2. Accountability accountability as an alternative approach to Jamaicans, in common with citizens coverage all over the world, are increasingly demanding that governments be held accountable. !is must also be true at !e frequency and prominence the local level. Parish Councils must of local government stories in the be held to greater account, especially media can change for the better in the area of "nancial management. if the concepts of relevance and An issue that contributes to delays accountability become the central in empowering local authorities has frames for the news: been concern about their capacity for e$ective "nancial administration and 10.6.1. Relevance to minimize corruption.

It is obvious that what happens at !e matter of improper "nancial the local level is relevant to the daily administration was highlighted in lives of the people. As (then) Mayor the 2011 annual report of Auditor Milton Brown of May Pen said in General Pamela Monroe Ellis Gleaner article, “We can say, without which, among other things stated doubt, that local government is where that the audit of the accounting real governance takes place, where the records and "nancial transactions people’s needs are readily addressed. of six Parish Councils “… revealed We invite some of our objective systemic weaknesses in the controls journalists to investigate and report on governing the management of the activities of an average councillor their resources. !ese weaknesses and council. We admit that there are resulted in unsupported transactions, areas in which we need to improve, theft of cash, and bank overdraft and we have failed to communicate charges totalling $4M, $243,000 and our doings to the wider society. !ese $395,766 respectively.” we vow to change.” !e Auditor General said that the (then) Department of Local Government “must play a more proactive role in monitoring the operations of the Councils to ensure that there is consistency

72 Reporting Local Government Issues — A Manual for Jamaican Journalists in the standards of operation and 10.7. The Councillor’s adherence to stipulated legislation and Perspective guidelines.” !e Councillors handbook warns With respect to the KSAC, the new Councillors that they may be accounting records and "nancial asked to speak to the media on behalf transactions “revealed several of the Council about local issues. “You weaknesses in the internal controls should therefore be on your guard surrounding the payment process, for journalists who will come to you control over motor vehicles, because you are a new Councillor, in procurement and revenue collections. the hope that you will make some !is contributed to unsupported unguarded comment. Your Council payments, overpayments, nugatory should have guidelines on who talks (worthless, useless or invalid) and what to say to the Media. !e expenditure, non-competitive quotes Handbook provides an advisory list of and short lodgements.” dos and don’ts: !ese "ndings cannot be ignored, but R5 Have something to say. Carefully they also raise an interesting question: consider what you want to say and Could the situation be di$erent if do not focus on what it is they are media paid systematic attention to the going to ask you. "nancial administration of Councils? R5 Do not clash with the Council’s So, what do we do? !e answer is not policies. Seek policy direction as you to run away from empowering local speak for the Council. authorities. Government must set and enforce standards by enabling public R5 Understand the interview process. Be as clear as you can about where institutions to catch and punish those you stand. who corruptly abuse the public trust for personal gain or who mismanage R5 Be careful about being quoted! public resources because they are R5 Be upfront. !e media can be not held accountable. !at’s where a a useful tool in achieving the di$erent media approach is required. objective of being seen as an active Councillor

Reporting Local Government Issues — A Manual for Jamaican Journalists 73 10.8. Tips for more e#ective R5 Use the Access to Information reporting Act to request information about contracts, expenditure R5 Develop and maintain contacts R5 Use the Financial Administration with key newsmakers in the Act to generate stories about Council—the Mayor, deputy mayor, the extent to which Councils are Committee chairmen, Town Clerk, adhering to laws and the process for City Engineer etc. Maintaining developing the budgets of Councils. contacts is important; you can’t just Are procedures being followed? call out of the blue when a story breaks. R5 Maintain contacts with persons who are mostly a$ected by Council R5 Understand and familiarise yourself decisions and actions such as with the routine of Council and developers, environmental lobby Committees—dates and times of groups, transport associations meetings, agenda items, reports to whose members use bus parks central government agencies such as the Ministry or the O#ce of R5 Develop ways to empower Contractor General. Check ahead people and bring into the news to "nd out if the report will be mainstream, voices other than ready on the due date—there is those of people with power. NGOs usually a good story behind every and citizens’ organisations are delay. usually good sources especially regarding the activities of Parish R5 Understand and familiarise yourself Development Committees. with the legal and regulatory requirements for certain actions by Council and Committees 10.9. Conclusion: A especially those that set standards for accountability. Pay particular Framework Integrating attention to the "nance committee Good Journalism and which also discusses human Good Governance in Local resource matters. Some Council try Government to keep the press out of sessions where human resource matters are !e March 2012 Local Government under consideration. Make sure election has installed new local you are not denied access to these meetings; there’s usually a story authorities across the country. All behind the denial. things being equal, they should remain in o#ce for at least three years. At the same time, the reform agenda

74 Reporting Local Government Issues — A Manual for Jamaican Journalists has taken on new urgency. !ere are ISSUES FOR DISCUSSION some speci"c things that need to 1) Ideas for transforming newsroom be done to create public con"dence culture from con%ict and sensation in the system of local government to relevance and accountability as and give greater autonomy to local approach to covering local government authorities. !ese include measures to: 2) Strategies for local authorities to improve public awareness of the role R5 Entrench Local Government in and importance of local government the Constitution so its continued existence is not subject to the 3) Prospects of central government devolving more autonomy to local government in power; administrations R5 Realign the structure and function of local authorities so that there is a match between what they are supposed to do and their "nancial base; EXERCISES R5 Rationalise the legal framework Simulation Press Conference: with three pieces of legislation to Divide the class into two teams; replace the dozens that now exist. one team would constitute the R5 Strengthen the institutional Mayor and supporting political and capacity in line with their administrative sta$; the second team responsibilities. would be a managing editor and reporting sta$. !ese proposals coincide with the public demands of the present !e workshop instructor would period for greater accountability and select a current topic in the news (rat transparency as essentials of good infestation, garbage pile up, theft of governance. Civil society and media funds, foul-up of a civic ceremony institutions have a new opportunity etc). Team ‘A’ would prepare itself and responsibility to align good for addressing the issue at the press governance and good governance. conference while team B would do the questioning. !is "nal workshop assignment could be discussed at the start of the workshop so that participants would be ‘thinking’ about it. !e press conference should be

Reporting Local Government Issues — A Manual for Jamaican Journalists 75 taped and played back as part of the learning.

76 Reporting Local Government Issues — A Manual for Jamaican Journalists 11. References Duncan, Neville (1998). “Caribbean Local Government: Development and Economic Issues.” In “Local Government, Communitarianism and the Citizen—Opportunities and Association of Caribbean Media Challenges: Report of the Workshop Workers (2009) An Election held in Kingston, Jamaica, June 8-9, Handbook for Caribbean Journalists, 1998.” Port of Spain, Trinidad and Tobago Elements of Democratic Governance Bertram, Arnold (1999). Reforming (Canadian Discussion Paper) 2006 Local Government. Presentation in www.international.gc/development Sectoral Debate on Human Resource institute.org Development 1999/2000, 8 June 1999, Kingston, Ministry of Local Government of Jamaica (1993). Government Reform of Local Government. Ministry Paper No 8/93. Kingston: Brown, Milton “Who trusts a parish Ministry of Local Government, Youth council?” Daily Gleaner October 10, and Community Development 2010 Jones, Edwin, (2005) Background Commonwealth Secretariat Discussion Paper: “Caribbean Local (2005) Local Democracy and Good www. Governance: Re-examining the Governance in the Caribbean thecommonwealth.org Building Blocks” Commonwealth Conference Local Democracy and Department of Local Government, Good Governance in the Caribbean, (2009) Final Report of the Montego Bay National Advisory Council on Local Local Government Reform Unit Government Reform, Kingston (1997) Status Report on the Local Department of Local Government, Government Reform Programme and (2009) &e Councillor’s Handbook: the Parish Infrastructure Development A Guide for Jamaican Councillors, Project, Kingston: Ministry of Local Kingston Government, Youth and Community Development

Reporting Local Government Issues — A Manual for Jamaican Journalists 77 Miller, Keith (1998) Local Government Reform in Jamaica: As a contribution to CAFFE’s Report on Local Government Elections.” (Unpublished Paper) Miller, K (1996).“Historical and Contemporary Perspectives on Local Government Reform in Jamaica.” Prepared for the Ministry of Local Government, Youth and Community Development Ministry of Local Government, Youth and Community Development (1998) Status Report on Local Government Reform, Kingston

Powell, Lawrence (2010) Political Culture of Democracy in Jamaica, 2010 Promoting Democratic Governance www.usaid.gov.fani.ch01 (USAID) Tindigarukayo, Jimmy (2003) Local Government Reform in Jamaica (1993-2000) SALISES, Kingtson

78 Reporting Local Government Issues — A Manual for Jamaican Journalists 12. Appendices ST ANN PARISH COUNCIL Mayor of St. Ann’s Bay, Councillor Desmond Gilmore

St. Ann Parish Council Main Street, St. Anns Bay, St. Ann

12.1. Appendix 1: Who is who Tel : 972-2362; 972-2615 in Local Government Fax : 972-2617 Secretary/Managers/Town Clerk/ Chief Administrative O"cer (Key personnel in parish Clinton Gordon administrations after March 26, 2012 Secretary/Manager local government election) Tel : 972-2927 420-8885 [email protected]

MANCHESTER PARISH COUNCIL The Mayor Councillor Brenda Ramsey [email protected]

Manchester Parish Council Lot 19 Caledonia Mall, Mandeville, Manchester

Tel : 962-2843 383-7886 Fax : 962-0611

Secretary/Managers/Town Clerk/ Chief Administrative O"cer Mr. Michael Morris Secretary/Manager Tel : 962-2326 715-5389 [email protected]

Reporting Local Government Issues — A Manual for Jamaican Journalists 79 CLARENDON PARISH COUNCIL PORTLAND PARISH COUNCIL Mayor Mayor of Port Antonio; Scean Barnswell Councillor Benny White

Clarendon Parish Council [email protected] Sevens Road, May Pen, Clarendon Portland Parish Council Tel : 986-2403 342-3516 859-0025 1 Gideon Avenue, Port Antonio, Portland Fax : 986-9583 Tel : 993-2866 715-2866 Secretary/Managers/Town Clerk/ Chief Administrative O"cer Fax : 993-3188 Mrs. Judy Lawrence Secretary/Manager Secretary/Managers/Town Clerk/ Chief Administrative O"cer Tel : 986-2403 384-2395 Miss Joan Thomas [email protected] Secretary Manager [email protected] Tel : 715-5389; 421-3341; 815-9085 [email protected] [email protected]

ST. JAMES PARISH COUNCIL Mayor, WESTMORELAND PARISH COUNCIL Councillor Glendon Harris [email protected] Mayor, Councillor Bertel Moore St. James Parish Council [email protected] 19 Union Street, Montego Bay, St. James Westmoreland Parish Council Tel : 979-3943 387-0600 Great George Street, Sav-La-Mar, Westmoreland Fax : 952-4066

Secretary/Managers/Town Clerk/ Chief Administrative O"cer Tel : 955-2647 Winston Palmer Fax : 955-2797 Secretary/Manager Secretary/Managers/Town Clerk/ Chief Administrative O"cer Tel : 979-3945 Mrs. Opal Beharie [email protected] Secretary/Manager [email protected] Tel :918-3005 793-8756 [email protected]

80 Reporting Local Government Issues — A Manual for Jamaican Journalists TRELAWNY PARISH COUNCIL ST. ELIZABETH PARISH COUNCIL Mayor of Falmouth, Mayor of Black River, Councillor Garth Wilkinson Councillor Everton Fisher [email protected] St. Elizabeth Parish Council Trelawny Parish Council 58 High Street, Black River, St. Elizabeth Water Square, Falmouth, Trelawny Tel : 965-2038 427-5954 Tel : 954-3339 Fax : 965-2776 Fax : 954-5592 Secretary/Managers/Town Clerk/ Chief Administrative O"cer Secretary/Managers/Town Clerk/ Chief Administrative O"cer Mr. David Parkes Secretary/Manager Mr. Gerald Lee Tel : 965-9397; 361-4229; 634-4112 Tel : 954-4713; 464-5833 [email protected] [email protected] [email protected]

ST THOMAS PARISH COUNCIL KINGSTON AND ST. ANDREW Mayor of Morant Bay, CORPORATION Cllr. Marsha Francis Mayor, [email protected] Councillor Angella Brown-Burke [email protected] St. Thomas Parish Council 11 Church Street, Morant Bay, Kingston & St. Andrew Corporation St. Thomas 24 Church Street, Kingston

Tel : 982-2276 Tel : 948-6337 Fax : 982-2513 Fax : 924-9608 Secretary/Managers/Town Clerk/ Chief Administrative O"cer Secretary/Managers/Town Clerk/ Chief Administrative O"cer Fay Neufville Errol Greene Secretary/Manager Town Clerk Tel : 982-2513 360-7386 Tel : 922-0254 819-9273 [email protected] [email protected]

Reporting Local Government Issues — A Manual for Jamaican Journalists 81 HANOVER PARISH COUNCIL ST. MARY PARISH COUNCIL Mayor of Lucea, Mayor of Port Maria, Councillor Shernet Haughton Councillor Levan Freeman [email protected] [email protected] St. Mary Parish Council Hodgston Street, Port Maria, St. Mary Hanover Parish Council Church Street, Lucea, Hanover Tel : 994-2644 Fax : 994-2372 Tel : 956-9824 Fax : 956-2958 Secretary/Managers/Town Clerk/ Chief Administrative O"cer Miss Kerry Chambers Secretary/Managers/Town Clerk/ Chief Administrative O"cer Acting Secretary/Manager Mr. Alfred Graham Tel : 994-9671 Secretary/Manager [email protected] Tel : 956-2173; 956-2173 [email protected] [email protected]

MUNICIPALITY OF PORTMORE Mayor of Portmore, ST. CATHERINE PARISH COUNCIL Councillor George Lee Mayor of Spanish Town, Municipal O#ce of Portmore Councillor Norman Scott 82-85 Portmore Pines Plaza, Greater Portmore, St.Catherine Emancipation Square, Spanish Town, St. Catherine Tel : 740-7440-1 Fax : 740-7521 Tel : 984-3150 328-2864 388-8439 Fax : 984-2528 Secretary/Managers/Town Clerk/ Chief Administrative O"cer Mr. David Gardner Secretary/Managers/Town Clerk/ Chief Administrative O"cer Chief Administrative Officer Mr. Christopher Powell Tel :740-7440-1 Secretary/Manager [email protected] Tel :984-9713 855-0419 [email protected]

82 Reporting Local Government Issues — A Manual for Jamaican Journalists 12.2. Appendix 2: Results of Parish Council Elections of March 26, 2012.

Reporting Local Government Issues — A Manual for Jamaican Journalists 83 PARISH COUNCIL ELECTION 2012 PRELIMINARY SUMMARY OF RESULTS

# OF # ELECTORS % CONSTITUENCY ELECTORAL DIVISION JLP PNP IND OTHER VOTERS ON LIST TURNOUT KINGSTON WESTERN DENHAM TOWN 2429 614 0 13 3056 9851 31.0% TIVOLI GARDENS 2904 446 486 0 3836 10354 37.0% KINGSTON CENTRAL ALLMAN TOWN 529 2008 8 0 2545 10200 25.0% RAE TOWN 1696 1984 10 0 3690 9118 40.5% KINGSTON EAST & PORT ROYAL NORMAN GARDENS 197 2408 0 0 2605 11376 22.9% SPRINGFIELD 251 2241 0 0 2492 10325 24.1% ST. ANDREW WEST RURAL LAWRENCE TAVERN 1038 931 0 0 1969 7214 27.3% BRANDON HILL 867 1398 0 0 2265 6723 33.7% STONY HILL 1444 995 0 0 2439 8697 28.0% RED HILLS 1044 1589 0 0 2633 10342 25.5% ST. ANDREW WESTERN DUHANEY PARK 596 1512 0 0 2108 11395 18.5% WATERHOUSE 185 1652 0 0 1837 10369 17.7% SEAVIEW GARDENS 750 1527 0 0 2277 8629 26.4% ST. ANDREW WEST CENTRAL MOLYNES GARDENS 867 2289 0 0 3156 9851 32.0% OLYMPIC GARDENS 2212 874 0 0 3086 8949 34.5% SEIVWRIGHT GARDENS 1361 535 16 136 2048 7525 27.2% ST. ANDREW EAST CENTRAL CASSIA PARK 999 1094 0 0 2093 10129 20.7% HAGLEY PARK 788 1101 0 0 1889 7609 24.8% MAXFIELD PARK 147 1610 0 0 1757 8915 19.7% ST. ANDREW SOUTH WESTERN WHITFIELD TOWN 28 1892 0 0 1920 6938 27.7% PAYNE LANDS 29 2303 0 0 2332 6719 34.7% GREENWICH TOWN 101 2188 0 0 2289 8569 26.7% ST. ANDREW SOUTHERN TRENCH TOWN 202 2542 0 0 2744 10080 27.2% ADMIRAL TOWN 96 2845 0 0 2941 10377 28.3% ST. ANDREW SOUTH EASTERN TRAFALGAR 1117 1582 28 0 2727 7788 35.0% VINEYARD TOWN 781 2546 0 0 3327 11732 28.4% ST. ANDREW EASTERN MONA 1932 2280 0 0 4212 12527 33.6% PAPINE 1269 2081 0 0 3350 10473 32.0% ST. ANDREW NORTH EASTERN BARBICAN 1587 1144 0 0 2731 9092 30.0% WATERLOO 1182 861 0 0 2043 8605 23.7% ST. ANDREW NORTH CENTRAL WHITEHALL 1736 1075 0 0 2811 9617 29.2% NORBROOK 1588 1311 0 0 2899 11431 25.4% ST. ANDREW NORTH WESTERN HAVENDALE 1050 708 0 0 1758 7316 24.0% HUGHENDEN 1304 1543 0 0 2847 10237 27.8% CHANCERY HALL 1144 794 0 0 1938 8480 22.9% ST. ANDREW EAST RURAL GORDON TOWN 1464 1252 0 0 2716 6223 43.6% MAVIS BANK 1132 1126 0 0 2258 5495 41.1% DALLAS 1276 1537 0 0 2813 7990 35.2% HARBOUR VIEW 334 1357 0 0 1691 7052 24.0% KINTYRE 1091 1483 0 0 2574 6103 42.2% ST. THOMAS WESTERN CEDAR VALLEY 679 903 0 0 1582 3314 47.7% LLANDEWEY 1054 1389 0 0 2443 7437 32.8% YALLAHS 1124 1442 0 0 2566 7982 32.1% TRINITYVILLE 1100 1056 0 0 2156 5072 42.5% SEAFORTH 1292 938 0 0 2230 5658 39.4% WHITE HORSES 1067 1433 0 0 2500 5450 45.9% ST. THOMAS EASTERN BATH 727 1373 0 0 2100 5237 40.1% DALVEY 1603 1585 0 0 3188 6153 51.8% PORT MORANT 1517 1720 0 0 3237 7657 42.3% MORANT BAY 1728 2236 0 0 3964 9317 42.5% PORTLAND EASTERN PORT ANTONIO 659 1470 0 0 2129 7237 29.4% PROSPECT 672 1588 0 0 2260 7062 32.0% FAIRY HILL 1232 984 0 0 2216 5946 37.3% MANCHIONEAL 1256 1514 0 0 2770 5712 48.5% FELLOWSHIP 702 1334 48 0 2084 5853 35.6% PORTLAND WESTERN ST. MARGARET'S BAY 1318 1303 0 0 2621 4426 59.2% HOPE BAY 1579 1398 0 0 2977 5006 59.5% BUFF BAY 1795 1618 0 0 3413 6542 52.2% BALCARRES 1360 1454 0 0 2814 4922 57.2% ST. MARY SOUTH EASTERN RICHMOND 1503 1289 0 0 2792 4973 56.1% CASTLETON 1131 949 0 0 2080 4812 43.2% BELFIELD 647 1472 0 0 2119 4776 44.4% ANNOTTO BAY 2110 2712 0 0 4822 8312 58.0% ST. MARY CENTRAL ISLINGTON 1116 1800 0 0 2916 6371 45.8% PORT MARIA 1442 2017 0 0 3459 6451 53.6% HAMPSTEAD 1426 1401 0 0 2827 5600 50.5% HIGHGATE 343 1871 0 0 2214 5486 40.4% ST. MARY WESTERN CARRON HALL 1333 1202 0 0 2535 5250 48.3% GAYLE 1649 1516 0 0 3165 6063 52.2% ORACABESSA 948 2085 0 0 3033 7416 40.9% BOSCOBEL 1668 1776 0 0 3444 7122 48.4% RETREAT 1083 1743 0 0 2826 6454 43.8% ST. ANN SOUTH EASTERN MONEAGUE 556 1676 0 0 2232 7283 30.6% BENSONTON 238 1373 0 0 1611 5153 31.3% CLAREMONT 432 1916 0 0 2348 8101 29.0% BEECHER TOWN 766 1320 0 0 2086 6490 32.1% ST. ANN NORTH EASTERN EXCHANGE 1423 942 0 0 2365 7287 32.5% OCHO RIOS 1317 1695 0 0 3012 8613 35.0% LIME HALL 1622 1872 0 0 3494 9504 36.8% ST. ANN'S BAY 1873 1840 0 0 3713 8949 41.5% ST. ANN NORTH WESTERN BAMBOO 1451 1338 0 0 2789 7636 36.5% STURGE TOWN 1268 1372 0 0 2640 7591 34.8% DRY HARBOUR 1496 1757 0 0 3253 9117 35.7% BROWN'S TOWN 583 1093 249 0 1925 6904 27.9% ST. ANN SOUTH WESTERN GIBRALTAR 1229 800 0 0 2029 6134 33.1% ALEXANDRIA 1120 1074 0 0 2194 5900 37.2% CALDERWOOD 521 1154 0 0 1675 4388 38.2% BOROBRIDGE 1268 1878 0 0 3146 6406 49.1% TRELAWNY NORTHERN MARTHA BRAE 768 1190 10 0 1968 5771 34.1% FALMOUTH 231 1903 0 0 2134 5721 37.3% DUNCANS 1658 1644 0 0 3302 7377 44.8% SHERWOOD CONTENT 1500 1687 0 0 3187 6592 48.3% WAKEFIELD 1568 1521 0 0 3089 7568 40.8% TRELAWNY SOUTHERN LORRIMERS 908 366 1526 0 2800 6030 46.4% WARSOP 1173 1127 0 0 2300 4417 52.1% ALBERT TOWN 1285 630 0 0 1915 4113 46.6% ULSTER SPRING 882 931 0 0 1813 3393 53.4% ST. JAMES EAST CENTRAL ROSE HALL 1411 1427 0 0 2838 9155 31.0% SOMERTON 1212 1555 0 0 2767 7973 34.7% SPRING MOUNT 1120 1269 0 0 2389 7697 31.0% ST. JAMES NORTH WESTERN MONTEGO BAY NORTH EASTERN 1564 1062 0 0 2626 6966 37.7% MONTEGO BAY CENTRAL 1150 1257 0 0 2407 9628 25.0% MONTEGO BAY NORTH 803 767 0 0 1570 5729 27.4% MONTEGO BAY WEST 400 406 0 0 806 2364 34.1% ST. JAMES CENTRAL MONTEGO BAY SOUTH 1224 1254 25 0 2503 8601 29.1% MONTEGO BAY SOUTH EAST 1328 1328 0 0 2656 8565 31.0% SALT SPRING 815 1173 0 0 1988 7825 25.4% ST. JAMES WEST CENTRAL MOUNT SALEM 597 1231 0 6 1834 7637 24.0% GRANVILLE 953 1663 0 0 2616 7786 33.6% SPRING GARDEN 1334 1194 0 0 2528 8736 28.9% ST. JAMES SOUTHERN CAMBRIDGE 1630 1452 0 0 3082 8295 37.2% WELCOME HALL 631 1056 0 9 1696 4529 37.4% MAROON TOWN 723 1077 0 0 1800 4325 41.6% CATADUPA 759 1377 0 0 2136 6201 34.4% HANOVER EASTERN CHESTER CASTLE 1375 1494 0 0 2869 5992 47.9% HOPEWELL 2103 1818 0 0 3921 8558 45.8% SANDY BAY 1288 1663 0 0 2951 7149 41.3% HANOVER WESTERN LUCEA 1078 1495 0 0 2573 9090 28.3% RIVERSIDE 750 NO CANDIDATE 1186 0 1936 4925 39.3% CAULDWELL 795 1239 0 0 2034 6022 33.8% GREEN ISLAND 677 1968 0 0 2645 7946 33.3% WESTMORELAND WESTERN NEGRIL 476 1084 0 0 1560 6269 24.9% SHEFFIELD 447 904 0 0 1351 5683 23.8% LITTLE LONDON 414 999 0 0 1413 6372 22.2% GRANGE HILL 400 1141 0 0 1541 6195 24.9% FRIENDSHIP 512 1159 0 0 1671 5360 31.2% WESTMORELAND CENTRAL PETERSFIELD 916 1496 0 0 2412 7446 32.4% FROME 927 1422 0 0 2349 6395 36.7% SAVANNA-LA-MAR NORTH 587 1569 0 0 2156 8558 25.2% SAVANNA-LA-MAR 710 1401 0 0 2111 7124 29.6% CORNWALL MOUNTAIN 1097 1413 0 0 2510 8021 31.3% WESTMORELAND EASTERN BETHEL TOWN 619 1205 0 0 1824 5577 32.7% LEAMINGTON 507 1103 0 0 1610 4824 33.4% DARLISTON 342 1042 0 0 1384 5871 23.6% WHITEHOUSE 877 1695 51 0 2623 8557 30.7% ST. ELIZABETH NORTH WESTERN NEW MARKET 1083 1086 0 0 2169 7724 28.1% IPSWICH 983 1321 0 0 2304 5300 43.5% LACOVIA 1446 1130 0 0 2576 7236 35.6% ST. ELIZABETH NORTH EASTERN BALACLAVA 447 1288 0 0 1735 4260 40.7% SILOAH 104 1482 0 0 1586 4913 32.3% BRAES RIVER 456 1676 0 0 2132 7915 26.9% SANTA CRUZ 1924 1855 0 0 3779 11831 31.9% ST. ELIZABETH SOUTH WESTERN BROMPTON 1359 1728 0 0 3087 6348 48.6% BLACK RIVER 1352 1766 0 0 3118 6087 51.2% MOUNTAINSIDE 2161 1683 0 0 3844 7051 54.5% PEDRO PLAINS 2582 2022 0 0 4604 8224 56.0% ST. ELIZABETH SOUTH EASTERN MALVERN 1326 1687 0 0 3013 5439 55.4% MYERSVILLE 1066 2483 0 0 3549 8459 42.0% SOUTHFIELD 1827 1509 0 0 3336 6580 50.7% JUNCTION 2154 1819 0 0 3973 7139 55.7% MANCHESTER SOUTHERN PORUS 1096 1490 0 0 2586 6312 41.0% GROVE TOWN 1929 1522 0 0 3451 7684 44.9% ALLIGATOR POND 967 1692 0 0 2659 6911 38.5% NEWPORT 734 1781 0 0 2515 7592 33.1% MANCHESTER CENTRAL KNOCKPATRICK 2018 1861 0 0 3879 8657 44.8% MANDEVILLE 1144 1566 0 0 2710 9615 28.2% ROYAL FLAT 1606 2105 0 0 3711 9325 39.8% BELLEFIELD 599 1846 0 0 2445 5976 40.9% MANCHESTER NORTH WESTERN SPUR TREE 811 1107 0 0 1918 6080 31.5% NEW GREEN 851 1243 0 0 2094 6784 30.9% JOHNS HALL 834 1279 0 0 2113 5859 36.1% MILE GULLY 1244 1532 0 0 2776 5698 48.7% MANCHESTER NORTH EASTERN CRAIGHEAD 2075 1686 0 0 3761 8233 45.7% CHRISTIANA 2000 1890 0 0 3890 9500 40.9% WALDERSTON 1729 1816 0 0 3545 8061 44.0% CLARENDON NORTH WESTERN SPALDING 1032 1749 0 0 2781 6309 44.1% RITCHIES 980 1671 0 0 2651 6155 43.1% FRANKFIELD 1417 1415 0 0 2832 6824 41.5% THOMPSON TOWN 863 1388 0 0 2251 5207 43.2% CLARENDON NORTHERN AENON TOWN 914 1881 0 0 2795 5971 46.8% KELLITS 1642 2141 0 0 3783 8750 43.2% CROFTS HILL 970 2001 0 0 2971 6483 45.8% CLARENDON NORTH CENTRAL CHAPELTON 1571 1472 0 0 3043 8861 34.3% ROCK RIVER 1204 1010 0 0 2214 6498 34.1% MOCHO 1012 936 0 0 1948 5272 36.9% CLARENDON CENTRAL MAY PEN NORTH 1380 380 0 0 1760 6840 25.7% DENBIGH 1170 617 0 0 1787 6280 28.5% MAY PEN EAST 1286 624 0 0 1910 7212 26.5% MAY PEN WEST 924 1150 0 0 2074 6639 31.2% CLARENDON SOUTH WESTERN TOLL GATE 1386 1631 0 0 3017 7950 37.9% YORK TOWN 737 1122 0 0 1859 6354 29.3% MILK RIVER 333 1103 0 0 1436 4491 32.0% RACE COURSE 1462 1412 0 0 2874 5448 52.8% CLARENDON SOUTH EASTERN PALMERS CROSS 1156 1183 0 0 2339 8693 26.9% MINERAL HEIGHTS 1513 1191 0 0 2704 9624 28.1% HAYES 774 1968 0 0 2742 7318 37.5% ROCKY POINT 2167 1387 0 0 3554 9461 37.6% ST. CATHERINE NORTH WESTERN LLUIDAS VALE 374 1328 0 0 1702 6591 25.8% EWARTON 583 1253 0 0 1836 7311 25.1% TREADWAYS 468 1126 0 0 1594 7991 19.9% LINSTEAD 362 1147 201 0 1710 7812 21.9% ST. CATHERINE SOUTH WESTERN OLD HARBOUR NORTH 1709 1944 0 0 3653 9183 39.8% OLD HARBOUR CENTRAL 1663 1293 0 0 2956 7512 39.4% OLD HARBOUR SOUTH 1563 1699 0 6 3268 6090 53.7% CHURCH PEN 1832 1609 0 0 3441 9309 37.0% ST. CATHERINE SOUTHERN GREATER PORTMORE NORTH 753 1836 0 0 2589 8538 30.3% BRAETON 699 1265 0 0 1964 6997 28.1% GREATER PORTMORE EAST 592 1480 0 0 2072 7902 26.2% HELLSHIRE 513 1779 0 0 2292 7328 31.3% ST. CATHERINE CENTRAL ENSOM CITY 1102 669 31 0 1802 11236 16.0% HAMPTON GREEN 1115 169 147 0 1431 8618 16.6% SPANISH TOWN 1211 151 0 0 1362 5283 25.8% ST. CATHERINE SOUTH EASTERN WATERFORD 625 1356 0 0 1981 7722 25.7% INDEPENDENCE CITY 890 863 0 0 1753 5439 32.2% WESTCHESTER 1036 1362 0 110 2508 6937 36.2% EDGEWATER 749 1232 0 0 1981 7186 27.6% BRIDGEPORT 412 887 0 0 1299 4808 27.0% ST. CATHERINE NORTH CENTRAL BOG WALK 2330 1949 0 0 4279 11146 38.4% SLIGOVILLE 167 866 0 0 1033 4348 23.8% ABOVE ROCKS 612 833 0 0 1445 3543 40.8% ANGELS 614 1048 0 0 1662 6105 27.2% ST. CATHERINE WEST CENTRAL GINGER RIDGE 987 1178 0 0 2165 4748 45.6% POINT HILL 1199 831 0 0 2030 5955 34.1% RED HILLS 1312 1061 0 0 2373 7181 33.0% BELLEVUE 779 669 0 0 1448 6440 22.5% ST. CATHERINE NORTH EASTERN GUYS HILL 1311 1027 0 0 2338 8276 28.3% TROJA 1021 1272 0 0 2293 6290 36.5% MOUNT INDUSTRY 1153 1345 25 0 2523 7395 34.1% ST. CATHERINE EASTERN GREENDALE 475 1773 0 0 2248 9157 24.5% LAURISTON 453 1205 0 0 1658 6932 23.9% DE LA VEGA CITY 18 1866 0 0 1884 5070 37.2% TWICKENHAM PARK 1279 490 0 0 1769 6539 27.1% ST. CATHERINE SOUTH CENTRAL HOMESTEAD 1366 525 0 0 1891 7628 24.8% SYDENHAM 1162 745 0 0 1907 7367 25.9% HORIZON PARK 1360 695 0 0 2055 7370 27.9% ST. CATHERINE EAST CENTRAL GREGORY PARK 1277 1324 0 0 2601 7277 35.7% SOUTHBORO 806 1224 0 0 2030 6053 33.5% PORTMORE PINES 698 1558 0 0 2256 8106 27.8% TOTAL 245727 318101 4047 280 568155 1648020 34.5% 88 Reporting Local Government Issues — A Manual for Jamaican Journalists