KWAME NKRUMAH UNIVERSITY OF SCIENCE AND TECHNOLOGY
KUMASI
DECENTRALISATION A TOOL FOR GRASSROOT DEVELOPMENT
A CASE STUDY OF ASUTIFI DISTRICT
By
Emmanuel Kwadwo Antwi B.A (IRAI )
A Thesis submitted to the Institute of Distance Learning, Kwame Nkrumah University of Science and Technology
In Partial Fulfilment of the Requirements for the Degree
Of
COMMONWEALTH EXECUTIVE MASTER OF PUBLIC ADMINISTRATION, Institute of Distance Learning
July 2011
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CERTIFICATION
I hereby declare that this submission is my own work towards CEMPA and that, to the best of my knowledge , it contains no material previously published by another person nor materials which has been accepted for the award of any other degree of the
University, except where due acknowledgement has been made in the text.
...... Student Name Signature Date
Certified by:
…………………………..……………….. …………………… ………………….. Supervisor name Signature Date
Certified by:
……………………………………………… …………….. …..………… Head of Dept. Name Signature Date
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ABSTRACT
Various initiatives designed to put in place decentralized mechanisms for rural development offer possibilities for building on the essential principles of integrated rural development while avoiding problems associated with an over-centralization of government functions and responsibilities. This thesis examines the role of decentralization as a tool for grassroot development in Asutifi District as a case study. A comprehensive review of various literature in connection with the study was done based on the objectives of the study one of which is understanding decentralisation and how it has been used as a tool for grassroot development in Asutifi district. Both questionnaires and personal interviews were used to solicit responses from respondents and also employed purposive and convenience methods of sampling in the execution of the work.
The study has a research population of 75 who responded to issues raised in the study.
Some of the major findings of this work were the fact that for decentralisation to benefit the local people in terms of grassroot development, government should not only have an ideological commitment to develop the local level but be prepare to engage actively, with local to challenge local elite resistance and Government must ensure implementation of policies which support grassroot development.
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TABLE OF CONTENT
TITLE PAGE
CERTIFICATION...... ii ABSTRACT………………………………………………………………………….….iii TABLE OF CONTENT…………………………………………………………...... …iv LIST OF TABLE……………………………………………………..………………...vii ACKNOWLEDGEMENT...... viii
CHAPTER ONE 1.0.Background to the study……………………………………………………………...1 1.1 Statement of the problem………………………………………………………..……9 1.2 Objective of the study……………………………………………………...……..…10 1.3 Specific Objective………………………………………………………………...... 10 1.4 Research Question………………………………………………………………...... 10 1.5 Methodology………………………………………………………………...…...... 10 1.6 Scope of the study…………………………………………………………..…...... 11 1.7 Significant of the study…………………………………………………………...... 11 1.8 Organisation of the study……………………………………………………..……..11
CHAPTER TWO 2.1 Introduction…………………………………………………………………...…….13 2.2 Definition of decentralization……………………………………………..………...14 2.3 Types of decentralization…………………………………………………………...15 2.4 The role of decentralisation in grassroot development……………………………...18 2.5 Effect of decentralisation on the development of Asutifi District…………………..21 2.6 District development goals and objectives………………………………………….21 2.7 District development goal……………………………………………………….…..21 2.8 District development objectives…………………………………………………….22 2.10 Policies and practices of decentralization in Ghana…………………………….....28 2.11 History Decentralisation in Ghana……………………………………………..….29
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2.12 Legal framework…..……………………………….………………………...……30 2.13 Sub-National Government structures………………………………………….…..33 2.14 District Assemblies…………………………………………………………….….33 2.15 Regional Co-ordinating Councils…………………………………………….…...34 2.16 Sub-District Structures………………………………………………………….....34 2.17 National Co-ordinating Institutions……………………………………………..…35 2.18 Powers and functions of District Assemblies………………………………….….36 2.19 Powers of District Assemblies…………………………………………...……..…37 2.20 Functions of District Assemblies……………………………………...………..…37
CHAPTER THREE 3.0 Introduction...... 39 3.1 Study Design...... 39 3.2 Research Population...... 39 3.3 Sampling Size...... 40 3.4 Sampling Procedure...... 40 3.5 Decentralised Department...... 41 3.6 Assembly Members...... 41 3.7 Opinion Leaders...... 41 3.8 Data Collection Instrument...... 42 3.9 Sources of data...... 42 3.10 Data Presentation...... 43 3.11 The Asutifi District...... 43 3.12 Population size and growth rates...... 44 3.13 Population by settlement-rural urban split...... 44 3.14 Health facilities...... 44 3.15 Water...... 45 3.16 Electricity...... 45 3.17 Post and Telecommunication...... 45 3.18 Roads...... 46 3.19 Schools...... 46
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3.20 Occupational distribution...... 46 3.21 Vegetation...... 47 3.22 Agriculture...... 47 3.23 Animal production...... 48 3.24 Geology and mineral available...... 48 3.25 Mining...... 49
CHAPTER FOUR 4.0 Introduction…………………………………………………………………....……50 4.1 Presentation of findings………………………..……………………………...……50 4.2 Responses from Assembly Members and departmental Heads………………...... 50 4.13 Responses from Opinion Leaders and Community Members…………………..…57 4.25 Discussion……………………………………………………………………..…...63
CHAPTER FIVE 5.0 Introduction………………………………………………………………………....66 5.1 Summary ……………………………………………………………………………66 5.2. Conclusion………………………………………………….……………………....67 5.3 Recommendations…………………………………………………………...…...…68 References Appendix
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LIST OF TABLE Table 2.1 Project by Sectors in Asutifi………………………………………….….….25 Table 4.4 Understanding decentralization………………………………………………53 Table 4.5 Functions of the district assembly……………………………………..…..…54 Table 4.6 Activities of the decentralized departments…………………………….……54 Table 4.7 Degree of responsiveness by the Assembly………………………….……...55 Table 4.8 Policy making at the district assembly……………………………….………56 Table 4.9 Capacity for development…………………………………………….……...56 Table 4.10 Distributed of Resources at the District………………………………….…57 Table 4.11 Results of decentralization in development…………………………….…...58 Table 4.12 Project embarked on by the Assembly ……………..…………………...….58 Table 4.15 Understanding decentralisation……………………….………………..…...59 Table 4.2.3 Functions of the district assembly…………………………………….…...60 Table 4.2.4 District Assembly Election…………………………………………………61 Table 4.2.5 Dissemination of Information………………………………………….…..62 Table 4.19 Understanding of Responsiveness…………………………………………..62 Table 4.20 Understanding Development………………………………………….….....63 Table 4.21 Capacity to ensure Massive Development…………………………….…....63 Table 4.22 Levy of Local Taxes……………………………………………………...... 64 Table 4.23 Decentralisation and grassroot development………………………………..65 Table 4.24 Disadvantages of decentralisation concept……………………..…………...65
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ACKNOWLEDGEMENT
This research was undertaken with support from my family especially my late senior brother Isaac Owusu Ansah, Very Rev. Daniel Owusu Ansah of Anglican
Diocese of Sunyani, Mrs.Felecia Owusu Ansah, Adu Boahen, Jennifer Owusu
Ansah, the people of Asutifi District and staff of the District Assembly and finally to my supervisor Mrs. Vida Korang for her time and encouragement she gave me during the period of the work, may God almighty richly bless them all.
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CHAPTER ONE
INTRODUCTION
1.0 BACKGROUND TO THE STUDY
The framers of the 1992 Ghana‟s constitution in the true sense of democracy in chapter
20, Article 240 -256 dealt with Decentralization and local Government. This is an
Administration that brings government and governance closer to the people. The District
Assemblies in the constitution was seen as a laboratory of democracy and also the principal agent for advancing the cause of equal opportunity, redistribution of wealth and poverty reduction among other things. It was thus the vehicle for decentralization.
Again, the District Assemblies were viewed by the framers of the 1992 constitution to be the primary service delivery arm of national government and, in fact, public services are fundamental to social and economic development. The 1992 constitution therefore made provision to ensure that the District Assemblies would have a strong financial capacity to perform effectively and efficiently function assigned to them. Indeed, those who stood for the Assembly concept managed to obtain five per cent (5%) and now seven and half per cent (7.5%) of the national budget and its allocation to the Districts has been on quarterly installments as the constitution guarantee for the survival of the Assemblies
Under the District Assemblies Common Fund (Act 455 of 1993).
Today the District Assemblies have been engaged in several rural developmental projects which have been unprecedented in the annals of Ghana‟s developmental history.
Ghana‟s form of decentralization has the characteristics of all the types, political, administrative, fiscal, and market decentralization. In Ghana, the urban population is
9 about 50% and its annual rate of growth is above 4% (NDPC, 2000). Decentralization reforms despite several years of its existence have substantial challenges confronting it.
Between 1957 and 1988, attempts were made by successive governments to decentralize authorities to the local level in the form of regional devolution and districts focusing on public administration. The result was a four-tier structure consisting of Regional,
District, local councils and towns and villages development committees. However, in
1988, the Local Government Law was enacted and major features of the policy included the shift from command approach to consultative processes which has contributed to the development at the various Districts in the country. District Assemblies were given more responsibilities and power as the higher political administration. This also led to the promulgation of the PNDC Law 207, which gave legal backing to the creation of district assemblies. The main objectives of decentralization as found in the constitution in this vine, include empowerment, participation, accountability, effectiveness inter-alia and the stemming of rural-urban drift. The Constitution showed specifically that decentralization sought to promote participatory democracy empower district assemblies introduce an effective system create access to the resources of the country and promote transparency and accountability. (1992,Constitution).
Until the mid 1980s in Africa, there was not any clear cut distinction between the State
(the various sectors that constitute it) and its political structure. The deterioration of public utilities especially in the areas of health, water, education and transport exposed the limitations of the centralized form of government. The redistribution of public monies was done in the urban centers to the neglect of the rural areas which were deprived of the national resources and foreign support (Adamolekun et al., 1988).
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Again, Decentralization, since the 1980‟s has transformed the structure of governance in Africa since most countries have started transforming power, resources and responsibilities to their sub national governments. The introduction of decentralization democracy is the most important determinant of decentralization in Africa. Most citizens and donor organizations consider decentralization a practical way of hiring services to neglected peripheries, obtaining more equitable distribution of public services and increasing popular participation.
Community participation approaches developed in the areas of health, water, education and other sectors incited the creation of numerous civil associations which champions the grassroots initiative. Villages began to constitute territorial and socio-economic labour units. External partners invested at the local level and the most popular discourse dwelt on direct development at the grassroots without passing through the State. A typical example is the rapid development of community schools as far as the education the strategic repositioning of external partners are concerned (Bossert, 2002).
Most government and some proponents of decentralization in Africa are of the view that local governments may be responsible for poverty alleviation policies, such as distribution of basic food and implementing growth inducing policies. Decentralization exercises superiority over a centralized system because from superior information and increased participation decision making, local information makes identification of more effective ways easier and increases government awareness of local needs. It would also be of much help if local monitoring ensures that officials perform their work well. This view on decentralization is supported by (Owusu et al. 2005) who indicated that there is
11 a close correlation between decentralization and poverty reduction as the local people are empowered and given the resources and capacity to perform the function of developing their localities.
A number of poverty reduction projects like the Program of Actions to Mitigate the
Social Cost of Adjustment (PAMSCAD), Strengthening Community Management of
Programs (SCMP), Enhancing Opportunities for Women in Development (ENOWID) and The Social Investment Fund (SIF) have been implemented through the decentralized local government structures over the years (Owusu et al., 2005).
More so, the institution of Ghana Poverty Reduction Strategy (GPRS) and the debt collation agreements initiated by Highly Indebted Poor Countries (HIPC) have opened the way of sector-based policies to benefit the less privileged populace. The GPRS focused on the reduction of poverty and creation of wealth. It involves among other things the rehabilitation of feeder roads, rural markets, primary education, provision of rural micro finance, provision of water and sanitation facilities, provision of health centers and health insurance. According to
Owusu et al.(2005), the GPRS does not sufficiently take into account what the poor themselves see or define as poverty. So the National Decentralization Action Plan
(NDAP) has been drawn up to systematically harmonise and coordinate the process of implementing decentralization.
Decentralization is a vital tool in governance and because of this the government of
Ghana in 1988 introduced a decentralization programme based on governmental values such as empowerment, equity, stability, accountability and checking of rural-urban drift
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(Aryee,1994a). This programme was designed to accelerate growth and equitable spread of development in rural communities as well as urge these communities to participate in decision making that relate to the overall management of development in their districts
(Republic of Ghana, 1993). Based on its establishment, the decentralization programme revived the support of voluntarism and community efforts. Both government and non- governmental agencies and so on undertook most projects such as rural electrification and construction of markets. This is because most district assemblies (DAs) lacked the financial resources, thus doubting the competence of the programme.
Decentralization may not always be efficient, especially for standardized, routine, network-based services. Looking at what is happening, it has resulted in the loss of economies of scale and control over scarce financial resources by the central government. Weak administrative or technical capacity at local levels may result in services being delivered less efficiently and effectively in some areas of the country.
Administrative responsibilities may be transferred to local levels without adequate financial resources and make equitable distribution or provision of services more difficult. Centralization and decentralization are not "either-or" conditions. In most countries an appropriate balance of centralization and decentralization is essential to the effective and efficient functioning of government. The success of decentralization frequently depends heavily on training for both national and local officials in decentralized administration. Technical assistance is often required for local governments, private enterprises and local non-governmental groups in the planning, financing, and management of decentralized functions (Rondinelli 1981).
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According to (Owusu et al.2005), the analysis of the achievements and challenges of decentralization in strengthening local governance in Ghana in terms of its various forms discussed, a „reasonable success has been chalked‟. However, a lot remains to be done with respect to integrating the sectors at the district level to provide the required technical expertise to the local governments. Rivalry between the various sectors has been noted. There is also the question of recruiting and retaining adequate personnel at the district level. Good infrastructural and basic service is not available in the districts.
The sectors at the district level still look up to their national offices for budgetary funds and direction
Advocates of decentralization maintain that it brings about increase opportunities for people to participate in public decision-making from which they are generally excluded in a highly centralized government system World Bank 2001, World Development;
Attacking Poverty). Through the practice of decentralization, full participation by citizens in the policy making process from issue search through to implementation and even monitoring have made it possible and has brought about development that is representative with input from the local People at the grassroot.
An extensive studies on the effectiveness of decentralization policy in Ghana, Egbenya
(2009) looked at formulation and implementation of decentralisation policies and how they relate to health, education and water sectors in the country and how effective are its policy in Ghanaian context.
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The study of decentralization as a tool, for grass root development, looks at the policies of decentralisation, how they have helped to bring development at the local level and what can be done to improve on the development of the local indigenes.
1.1. STATEMENT OF THE PROBLEM
In many countries with centralized systems, the pursuit of good governance has neglected the local level of government and development. Despite numerous reforms and spent resources, many central governments have failed to provide local services with the quality and consistency required to significantly improve the standard of living of the majority of the population. This failure is often not so much due to a lack of resource as it is to the inefficient use of available resources and the inherent difficulties posed by governing from a geographic and psychological distance from most of the citizens. The geographic distance of central governments, for instance, very often leads to a lack of information about local needs and local problems. Even if the individual government employee within the central government is interested in helping the local level, he or she generally lacks information about the specific requirements of the community needing assistance. Officials who work for centralized governments do not have the necessary knowledge of local conditions to provide efficient government services because this knowledge is dispersed among the millions of people who comprise society, and cannot be transmitted to a central planning board. (Kandall 1991)
Even the best organized central administration is unable to really determine whether, in a specific rural village, expanding the school or improving irrigation is more important at a particular moment. Only local authorities can make such determinations. The
15 psychological distance of central government officials from the people they govern is another reason for the failure of central governments to provide services at the local level. Too often, the central government‟s activities at the local level are not driven by demand from the local citizens, but rather are imposed on them by agencies that have developed ideologies within the context of the interests of the central government. The people at the local level do not feel any ownership of the activities and may even reject the “gifts” imposed on them. Such lack of responsiveness by the population may come less from the activity itself and more from the way it is imposed. The failure of centralized governments to perform properly at the local level affects the entire local population, including the poor, women and children. (Kandall, 1991).
It is against this backdrop, the Government of Ghana reactivated the policy of decentralization in 1988 with the aim of promoting popular participation in decision making; good governance at the local level; enhancing efficiency and effectiveness in
Government machinery in order to alleviate rural poverty and ensure representation at all levels.
Decentralisation brings about increase opportunities for people to participate in public decision-making, from which they are generally excluded in a highly centralized government system World Bank 2001, (World Development; Attacking Poverty). This in itself represents a form of achievements in developmental projects and a means for poverty alleviation as people are given voice and thus power, given citizens‟ voice are heard(Goetz et al, 2001.). Participation has increase the supervisory power of local people and this in turn has lead to higher accountability of public officers. Due to the
16 greater proximity, citizens can easily monitor and thus influence government actions at the local level (Grote, 2002, Asante 2003), and this has again affected the political and possibly socio-economic situation of the local area. Among several possible accountability mechanisms, officials‟ are assumed to be held accountable through local election which serve as a means to evaluate officials‟ past performance.
In environments with poor traditions of citizen participation, decentralization has been an important first step in creating regular, predictable opportunities for citizen-state interaction which leads to development at the local level.
It is against this backdrop that this pepper seeks to examine the effect of decentralisation on grassroot development and how decentralisation can serve as a tool for grassroot development in Asutifi District as a case study. There is an urgent need for reforms which support the implementation of decentralization to help meet the needs of local people with respect to development at the grassroot level.
1.2. OBJECTIVE OF THE STUDY
The purpose of the study is to examine how Asutifi District Assembly is using decentralization as a tool for grass root development.
1.3. SPECIFIC OBJECTIVE
. to analyze the role of decentralization as a tool for grassroot development
. to understand the practices of decentralisation in Ghana.
. to examine the advantage of decentralisation over centralization
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. to examine the various source of funds available for grassroot development at
Asutifi District
. to analyze the effect of decentralisation on the development of Asutifi District
1.4. RESEARCH QUESTION
i. In what way has decentralisation promoted grassroot development at the local
level in Ghana.
ii. To what extent has the District Assemble been responsive to the local people?
iii. In what way has decentralisation helped in ensuring grassroot development
iv. What are some of the challenges in the practice of decentralisation in Ghana.
1.5. METHODOLOGY
A descriptive method was employed in this study. This approach appeared the most suitable regarding the objectives of the study. The method involves procedures and techniques of investigation based on intensive interviewing. Its aim is to enable the investigator to understand an individual, group, community or an issue in order to take decisions. It is a method of careful and critical inquiry and examination seeking the facts of a case, problem or an issue and following events from beginning through to the end
(Kumekpor, 2002).
The study was based on primary and secondary data with both close and open ended question.
In carrying out this research, a purposive sample technique was use to help determine the category of people to be involved in the study.
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Interviews and questionnaires was used among Assembly Members, Staff of
Decentralised Departments, Chiefs, Opinion Leaders and other local bureaucrats who have workable understanding of Assembly issues
1.6. SCOPE OF THE STUDY
The study basically seeks to examine decentralisation as a tool for grass root development using Asutifi District in the Brong Ahafo Region as a case for evidence.
The study was confined to Kenyasi which is the district capital of Asutifi District due to the vas nature of the district.
1.7. SIGNIFICANT OF THE STUDY
It is believed that the study would provide very useful research information that would help management of Asutifi District Assembly to formulate and implement policies to encourage grassroot development while this, research would increase the knowledge base of the researcher in the practice of decentralization in Ghana.
Again, the University can add to its stock of documents at the library for reference purposes and finally the Government can draw use the recommendation and suggestion in it to help develop the nation.
1.8. ORGANISATION OF THE STUDY
The study is in five parts. Chapter one is the introduction. It covers the background of the study, statement of the research problem, research objectives, research questions, and, methodology, scope of the study, limitations and organization of the study. chapter two looks at the literature review; this chapter considers the theoretical framework of the
19 research. chapter three is research methodology and data analysis while chapter four covers discussion of findings and finally chapter five consist of conclusions and recommendations.
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CHAPTER TWO
LITERATURE REVIEW
2.1. INTRODUCTION
Meaningful research can only be conducted by studying the existing knowledge,
Strydon (2002) States that a literature reviews is important for the clear formation of problem, as well as the execution of the planning and the actual implementation of an investigation.
In a study of this nature, it is pertinent to situate the key concept that features in it within the context of the subject, as well as identify the potential linkages between them by way of defining those concepts. It is also relevant to explore previous studies that have been undertaken on the subject so as to serve as a guide to establish the necessary linkage that current study seek to complete.
This chapter reviews existing literature on decentralisation and attempt to look at various authors‟ views on the issue of decentralisation and how it has helped to develop the socio-economic and political system in Ghana, the effect of decentralization on the development of Asutifi District and Ghana in General.
It is against this backdrop that this chapter is devoted to the definition of key words and the review of relevant literature to facilitate the identification of potential linkages between decentralisation and development at the grassroot level.
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2.2. DEFINITION OF DECENTRALIZATION
Most people misinterpret the term „decentralization‟ and because of its global importance, political economists have devoted increasing attention to the causes and consequences of decentralisation. Many people see decentralization as having either a static or dynamic interpretation as well as its usages, implying that the systems are either
„centralized‟ or „decentralized‟ among others. Decentralization can therefore be seen as a system, that is to say, in a governmental system the legislative, executive and judicial bodies together accomplish the task of governing (Tresiman, 2002). Thus, power is distributed equally among them for the governance of a country.
Decentralisation is defined as any act in which a central government formally cedes powers to actors and institutions at lower levels in a political-administrative and territorial hierarchy (Ribot, 2001, citing Mawhood, 1983 and Smith, 1985), Cistulli,
(2002) also define decentralization as a process through which authority and responsibility for some functions are transferred from the central government to local governments, communities and the private sector. This process he explains involves that decentralized institutions, either local offices of central government or local private and civil organizations (entrepreneurs, farmers, communities, associations, etc.) be provided with higher power in decision taking while Rondinelli (1981) defines decentralization as the transfer of authority to plan, make decisions, and manage public functions from a higher level of government to any individual, organization, or agency at a lower level.
To Blair (1996), decentralization means reversing the concentration of administration at a single centre and conferring powers on local government. He noted that decentralization is considered the opposite of centralization or concentration of power
22 and involves delegation of power or authority from the central government to periphery involving local communities (participation).
Admittedly all these authors assert to the fact that decentralisation has to do with the transfer of authority/power from a higher level of government to a lower level for the development of their community. The definition of all these authors cited in this review have common concept about decentralisation and that is transfer of power from higher level to lower level run through it all. Cistulli (2002), looks at the transfer as a „process‟ which is done gradually and must tow a lay down structure and has to follow a certain format before full transfer of authority is ceded to the lower authority while Ribot
(2001), looks at the transfer as „any act‟ which means any action deem necessary to relinquish power/authority to the lower level for the development of their community.
The emphasis is on any act Ribot (2001),
2.3 TYPES OF DECENTRALIZATION
Rondineli(1984 ) cited by Ayee (2001 ) distinguished four forms of decentralization.
These he noted primarily determined by the extent to which the authority to plan, decide and manage is transferred from the central government to other institution and the amount of autonomy the centralized institution adhere in pursuing their duties The four forms of decentralisation identified are: Political, Administrative, Fiscal and Economical
Decentralisation.
Political decentralisation which gives local citizens and their representatives more power in planning, decision making including setting standards and legal frameworks.
In Ghana, political decentralization took the form of creating District Assemblies and sub-district structures such as urban, town, area councils and unit committees which
23 provided a platform at the local level for the people to deliberate, legislate and execute actions necessary for the development of their areas, which (Owusu et al.,2005), also allude to.
Administrative decentralization deals with the transfer of responsibility for the planning, financing and management of certain public functions from the central government and its agencies to field units of government agencies, subordinate units or levels of government. In practice in Ghana this was carried out by decentralizing twenty-two central government agencies to the district level and the district staffs of the sector departments take up the functions previously performed by the twenty-two central government agencies. The three major forms of administrative decentralization according to (Owusu et al.,2005), are deconcentration, delegation, and devolution. An important distinction concerns the administrative deconcentration of resources as against their political devolution and delegation.
Deconcentration he noted implies the outsourcing of central government function to local or regional office of the same department or ministry. Devolution is the creation of autonomous sub national administrations which dispose of full discretion over most local affairs. They are not only to a minor extent accountable to the central government.
Privatization or deregulation relates to the transfer of previously public functions, or at least the right to implementation of those, to private organisations and companies.
Fiscal decentralisation which entails the definition of authority over raising revenues and the power to tax and make decision on current and investment expenditures and, it is the situation in which decisions about expenditures of revenues raised locally or transferred from the central government are done by the local authority. In many developing countries local governments or administrative units possess the legal
24 authority to impose taxes, but the tax base is so weak due to small and not too much vibrant nature of the local economy in some areas.
The Economic or Market Decentralization is the most complete form of decentralization from a government's perspective as there is a shift of responsibility for functions from the public to the private sector.
Under appropriate conditions, all of these forms of decentralization can play important roles in broadening participation in political, economic and social activities in developing countries. Where it works effectively, decentralization helps alleviate the bottlenecks in decision making that are often caused by central government hence development at the local level.
Another author, (Ribot 2001, citing Mawhood 1983 and Smith 1985) gave three main types of decentralisation as: Administrative decentralisation or deconcentration that is, the re- location of branches of the central state to local areas, entailing a transfer of powers to locally-based officials who remain part of, and upwardly accountable to, central government ministries and agencies.
Fiscal decentralisation, the transfer of fiscal resources and revenue-generating powers, inclusive of authority over budgets and financial decisions, to either deconcentrated officials and/or central government appointees or to elected politicians;
Political decentralisation or democratic decentralisation or devolution of (power), the transfer of powers and resources to sub-national authorities which are (a) largely or wholly independent of the central government and (b) democratically elected
Ribot (2001) only gave three main types of decentralisation as political, fiscal and administrative but did not recognize economic decentralization.
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2.4 THE ROLE OF DECENTRALISATION IN GRASSROOT DEVELOPMENT
The concept of development is elusive and difficult to define in standard terms since it is associated with a wide range of definitions and interpretations (Oyugi (2000): Long,
(1977)). For instance, most laissez-faire economists explain development in terms of economic growth and quantifiable indicators like increase in the gross national product or per capita income. On the other hand, welfare economist tend to emphasize organization and structural transformation, and associate development with public welfare and the attainment of goals like net income, reduction of poverty, unemployment and social inequality. In the local context, most people associate development with modernisation, acquisition of service, facilities and infrastructure including clean and safe water, education, health facilities, roads and the degree of citizen participation in decision making at the local level.
The development policy framework which replaces the Ghana vision 2020 document sets two main development objectives. These are:
1. Lay the foundation for accelerated growth, and
2. Development long-term programmes for accelerated growth in order to push the
development path into a high trajectory to ensure reaching the $1000 target in the
shortest possible time.
Ghana‟s agenda for development as it is spelt out in some documents like Vision 2015,
2020 and Ghana and Poverty Reduction Strategy (GPRS) also have some of the issues stated in the Millennium Development Goals. In addition to the benefit expected to be gained from higher economic growth, the document also outlined several specific targets and goals related to overall poverty reduction in the country. Some of the goals are:
1. Eradicate extreme poverty and hunger
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2. Achieve universal primary education
3. Promoting gender quality and empower women
4. Reduce child mortality
5. Improve maternal health
Decentralisation does not in itself reduce poverty; however, through careful design and implementation based on an understanding of local, social, economic, political and institutional circumstances, it could serve as an instrument for poverty alleviation. If locally based services are more efficient than centrally based services, it may create an enabling environment for economic growth. However, productivity is generally considered the main advantage of decentralisation, well-functioning democratic procedures enabling the electorate to make sure the development policy of the Local
Government (LG) is maximally attuned to their preference. Doing so can give the poor and vulnerable groups (such as women) a chance to capture a large share of Local
Government resources. However, experience of democratic decentralisation shows that elites at lower level may hold prejudice against the poor. The tendency can be offset if community group are able to hold elected officials accountable, thereby encouraging them to serve the immediate needs of the poor, and if government put incentives in place that support investment and services for the people at the local.
One important process of development policy change which the Ghana Poverty
Reduction Strategy (GPRS) recognized the need to reform the traditional land administration system. Under the present legal conditions, land as an economic asset, is excluded from the national economy and its value denied to the land owners and, thus, the farmers. Large tracts of land in the district have no legal title. Without legal title to land there can be no transformation (GPRS, 2001).
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Political and administrative decentralisation is considered as important for the promotion of citizen‟s participation in governance and development. However, the relationship between the two tends to be unclear. Scholars suggest that much depends on the unique circumstances in individual situation (Oyugi, 2000; long, 1977). Although there seems to be ambiguous linkage between decentralisation and development. It is commonly agreed that decentralised local governance contribute to development in terms of promoting participatory development strategy, and the production of policies that are adapted to local needs (Sharma 2000; Crook1994). The involvement of citizens in development planning and implementation enables the formulation of realistic plans that are in line with local circumstances and conditions. Administratively, decentralisation is considered as a tool that provides solution to overloaded and over-centralised agencies
(Boeninger, 1992; Ikhide, 1999; cited by Hussein, 2004). The decongestion of the workload at the centre promotes cost-effectiveness and greater coordination and efficiency in public resource utilization, service delivery and local development. For instance, by giving local institutions the power to make some decisions without constantly referring to the top level, delays are minimised and responsiveness in development or project managements enhanced since decisions are flexible and adjusted to respond to circumstances on the ground.
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2.5 EFFECT OF DECENTRALISATION ON THE DEVELOPMENT OF
ASUTIFI DISTRICT
The Asutifi District was created in 1988 out of the Colonial Ahafo Region and is classified by the Ministry of Local Government as deprived. The district economy is mostly agrarian and like a normal deprived district, Agriculture is in the hands of peasant farmers who still depend on rudimentary methods for production. After the legislative Instrument (LI 1988.) that gave birth to the district, it also gave room for decentralisation to be practice. Asutifi District Assembly became the highest Authority mandated to facilitate development in the Asutifi District and undertakes this function through the preparation and implementation of District Medium Term Development
Plans prepared in consultation with the people of the District to ensure total development at the grassroot level.
2.6 DISTRICT DEVELOPMENT GOALS AND OBJECTIVES
District Assembly has intensively concentrated its efforts and resources within the priorities and prospects for development of the district. It serves as a link between the problems identified and the plan formulation through to implementation stage. The goals give the broad statement of intent; it indicates the direction of the planned intervention in solving the identified development problems of a district in achieving its development priorities.
2.7 DISTRICT DEVELOPMENT GOAL
The development goals for the district in relation to the development focus is as follows:
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Overall goal is to improve livelihoods in the district through increased citizenry participation, Public-private sector partnership, and food security and employment generation activities.
2.8 DISTRICT DEVELOPMENT OBJECTIVES
The District‟s development objectives agreed on at stakeholder‟s forum include the following:
A. PRIVATE SECTOR COMPETITIVENESS
- To promote production, processing and marketing of agricultural produce in the
district
- To promote rural enterprise and private sector development in the district
B. HUMAN RESOURCE DEVELOPMENT
- To improve the quality of education at the basic and SSS level by 2009
- To improve the quality healthcare delivery in the district by 2009
- To improve basic infrastructure development in the district
- To control further spread of HIV and support PLWHAs in the district.
- To encourage proper environmental conditions
C. GOOD GOVERNANCE AND CIVIC RESPONSIBILITY
- To improve the Internally Generated Revenue and management of Financial
Resources in the district
- To deepen decentralization by strengthening the DA /Sub-structures to enhance
participation.
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The Asutifi District Assembly at the end of December, 2005 had committed funds from its Internally Generated Fund (IGF), District Assemblies Common Fund (DACF), HIPC,
GETFUND, among others into the implementation of various projects and programmes proposed in the District Medium Term Development Plan (DMTDP) 2002–2005, 2006–
2010. This was made possible through the decentralised process. In addition to the above mentioned funding sources other donor supported projects and Non-Governmental
Organizations (NGOs) like Social Investment Fund (SIF), Village Infrastructure Project
(VIP), Community Water and Sanitation Project (CWSP-2), Rural Enterprises Project
(REP), Action Aid-Ghana and ISODEC have funded other projects and programmes in the district that has facilitated the basic development at the grassroot level. (DMTDP,
2006-2010)
As it is mandatory for every District Assembly to prepare a Medium-Term
Development Plan to serve as a guideline for the development of the district, the 2006-
2009 District Medium-Term Development Plan (DMTDP), compelled the District
Planning Co-ordinating Unit (DPCU) and other stakeholders to engage themselves in various consultations within the district on relevant issues concerning the development of the district. some of the thematic areas that were looked at were, The District
Economy, Production and Gainful Employment, Human Resource Development and
Basic Services, Programmes for the Vulnerable and Excluded and Good Governance.
All these areas were looked at through the intervention of the decentralised process practiced at the Asutifi District.
Again as the practice of decentralisation has opened avenues for non-governmental organisation and other developing partners to also source for various funding which was
31 also identified under the 2002-2005 District Medium Term Development Plan
(DMTDP), other interventions from other development partners like Newmont Ghana
Gold limited has also played a major role in shaping the developmental programmes of the district. For instance, Newmont Ghana Gold Limited through the Opportunity
Industrialization Centre International (OICI) is implementing various programmes aimed at providing alternative livelihood for those affected by Newmont‟s mining activities. Action Aid Ghana has over the years undertook various activities in the
Education, Agriculture and community capacity building area which has gone a long way to improve on the socio-economic development of the district.
The major developmental issues confronting the Assembly are improving educational standards, health care delivery, Water and Sanitation, agriculture, rural enterprise, private sector development and other sectors, notwithstanding these issues, the District
Assembly and other developing partners through the decentralised programme have been able to raised resource for the development of the district. The table below throws more light on some of the developmental project from 2007 – 2010 in the district.
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2.9. TABULAR PRESENTATION OF PROJECT BY SECTORS IN ASUTIFI DISTRICT – 2007-2010
Table 2.1
SECTOR PROJECT LOCATION DATE STATUS TITLE COMMENCED
Economic Construction District wide May 2007 On-going Energy of 300 No concrete low Tension Poles
Reactivation Hwidiem - New Market of Hwidiem Market
Sector - - - support
People National Youth
Employment D.W June Mandatory Programme
Economic With - - - Disability
Support for D.W June Mandatory People with Disability
Slaughter Kenyasi May Completed Houses
Source: supplementary budget for 2008 financial year
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SECTOR PROJECT TITLE LOCATION STATUS
Education Construction of 4 Sienchem On-going Bedseater Teachers
Accommodation
Construction of 1No 4 Kensere On-going unit bedseater Teachers Accommodation
Constructions of Dadiesoaba On-going
1 No 2 unit Pre-School Classroom
Construction of 1No 3 Hwidiem Completed unit Classroom Block
Construction of 1 No 3 Mahame On-going unit Classroom Block
Construction of 1 No 3 K.I Completed unit Classroom Block
District Education Fund D.W Mandatory (2%)
Construction of 1 No 2 Agravi On-going unit Pre-School
Construction of 6 units Gyamfi Kumani Completed Bedseater Teachers Bungalows
Construction of Pre Acherensua New School
Administration Block GKSIS Completed
Construction of pre- Gambia II New School
Support for Sports and District Wide Mandatory Culture in the District
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Source: supplementary budget for 2008 financial year
SECTOR PROJECT TITLE LOCATION STATUS
District Response - Mandatory Initiatives (HIV/AIDS)
Malaria Awareness - Mandatory and prevention
Water and Sanitation
Construction of - New Final Disposal Solution
Construction of Aqua Kenyasi No 2 On-going Private Toilet
Construction of Aqua Dadiesoaba New Private Toilet
Construction of Aqua Camp Goamu New Privy
Administration - - -
Training/Human New Resources Development
Accommodation Staff Quarters Kenyasi New Construction
Construction of 3 Kenyasi On-going Story Administration
Block
Renovation of Guest Kenyasi New
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House
PROJECT MANAGEMENT
Monitoring/Support - New to DPCU
Procurement of - New Office Equipment
Source: supplementary budget for 2008 financial year
All these sectors stated in this section have received a fair share of projects which
eventually have contributed to the development of Asutifi District. Indeed
decentralisation has helped to bring development to the people of Asutifi.
2.10. POLICIES AND PRACTICES OF DECENTRALIZATION IN GHANA
Ghana‟s form of decentralization has the characteristics of all the types – political,
administrative, fiscal, and market decentralization – In Ghana, the urban population is
about 50% and its annual rate of growth is above 4% (NDPC, 2000). Decentralization
reforms despite several years of its existence have substantial challenges confronting it.
Between 1957 and 1988, attempts were made by successive governments to decentralize
authorities to the local level in the form of regional devolution and districts focusing on
public administration. The result was a four-tier structure consisting of Regional,
District, local councils and towns and villages development committees. However, in
1988, the Local Government Law was enacted and major features of the policy included
the shift from command approach to consultative processes. District Assemblies were
given more responsibilities and power as the higher political administration. Eighty-
36 seven (87) personnel were delegated. This also led to the promulgation of the PNDC
Law 207, which gave legal backing to the creation of district assemblies.
The main objectives of decentralization in this vine include empowerment, participation, accountability, effectiveness inter-alia and the stemming of rural-urban drift. (1992,
Constitution). The Constitution showed specifically that decentralization sought to promote participatory democracy empower district assemblies introduce an effective system create access to the resources of the country and promote transparency and accountability. Under the District Assemblies Common Fund Act of 1993,
2.11 HISTORY OF DECENTRALISATION IN GHANA
The history of decentralisation in Ghana is traced back by Ayee (2000) to the introduction of indirect rule by the British colonial authorities in 1878, lasting until
1951. During this period the colonial administration ruled indirectly through the native political institution (i.e. the chiefs), by constituting the chief and elders in a given district as the local authority, with powers “to establish treasuries, appoint staff and perform local government functions” (Nkrumah 2000: 55). Nkrumah also makes the interesting observation that, under indirect rule, downward accountability of chiefs to the people was replaced by upward accountability to the colonial authorities: “the democratic ideals underlying chieftaincy in Ghana, which made chiefs accountable to their peoples, began to suffer as the recognition by the central government was more crucial to the chief than the support of his people” (ibid.). Thus, there are some echoes here, as well as obvious differences, with relations in the contemporary period between central and local government in Ghana, dispelling any lingering notions of a necessary association between decentralisation and democracy, and confirming how decentralisation can be
37 used as a political mechanism by ruling political elites to reinforce their control. In the post-independence period from 1957 onwards, local government was generally weak and subject to the centralization of power that was typical of the post-colonial state in
Africa (Tordoff, 1997), Attempts at decentralisation reforms were introduced at different times, for instance in 1974 under the military regime of Lt. Col. Acheampong, generally characterised by de-concentration, and aimed at strengthening central government control at the local level (Nkrumah 2000).
2.12 LEGAL FRAMEWORK
Ghana‟s current programme of decentralisation was initiated prior to the national democratic transition in the early 1990s. In 1988, the PNDC government introduced a major piece of legislative reform, the Local Government Law (PNDC Law 207). This created 110 designated districts within Ghana‟s ten regions, with non-partisan District
Assembly (DA) elections held initially in 1988/89 and subsequently every four years
(1994, 1998, and 2002). In addition to the two-thirds of DA members elected on an individual, non-party basis, one-third was appointed by central government, along with a chief executive for each district (Pinkney 1997: 79). The stated aim of the 1988 Local
Government Law was “to promote popular participation and ownership of the machinery of government… by devolving power, competence and resource/means to the district level” (cited in Map Consult 2002: 35). Interestingly, the language of „participation‟ and
„ownership‟ anticipated the „donor speak‟ of the 1990s, though it also had some resonance with the revolutionary rhetoric of popular participation of the earlier PNDC period. Oquaye (2001: 36) suggests that this decentralisation exercise was “largely introduced to satisfy donor demands”, but Ayee imputes different, self-serving motives.
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In his view, the real reason for the PNDC‟s decentralisation policy was an attempt to increase their legitimacy and simultaneously to rid themselves of political problems
(Ayee 1994: 200-2, cited in Pinkney 1997: 80). 2.2.1 Constitutional Provisions the 1992
Constitution, which marked the transition to multi-party democracy at the national level, endorsed the 1988 reforms. It consolidated the aim of decentralisation within the overall context of a liberal democratic constitution, yet essential democratic elements remained compromised, especially through the retention of presidential appointments and non- partisan local elections. The objective of decentralisation was laid out unambiguously in
Chapter 20, entitled „Decentralisation and Local Government‟. This state‟s emphatically that: “Local government and administration … shall … be decentralized” (Article
240[1]), and that the “functions, powers, responsibilities and resources should be transferred from the Central Government to local government units” (Article 240[2]).
The autonomous role of local government, with discretionary powers at the local level, was inferred by the provision that: “measures should be taken [by Parliament] to enhance the capacity of local government authorities to plan, initiate, co-ordinate, manage and execute policies in respect of matters affecting local people” (Article
240[2][b]). The principles of participation in local government and downward accountability to the populace was emphasised by the statement that:“To ensure the accountability of local government authorities, people in particular local government areas shall, as far as practicable, be afforded the opportunity to participate effectively in their governance” Article 240[2][e]. Indeed, the democratic intent in the decentralisation provisions is made explicit in another section of the Constitution which states that the:
“State shall take appropriate measures to make democracy a reality by decentralizing the administrative and financial machinery of government to the regions and districts and by
39 affording all possible opportunities to the people to participate in decision-making at every level of national life and in government” (Article 35[6][d]) (emphasis added). This is somewhat contradicted, however, by the retention from the PNDC 1988 reforms of non-partisan local elections and presidential powers of appointment. Thus, District
Assemblies are composed of 70 per cent elected members, with candidates standing as individuals and political parties banned, and 30 per cent of members appointed by the
President, formally “in consultation with traditional authorities and other interest groups in the district” (Article 242[d]). Additionally, the appointment of the District Chief
Executive (DCE) by the President was retained, though with the approval needed of two-thirds of District Assembly members (Article 243[1]). The DCE is the political head of the local executive, centrally involved in decision-making, with a District Co- ordinating Director (DCD) as the highest ranking civil servant. As regards the financing of local government, the Constitution makes clear that the DAs “should have sound financial bases with adequate and reliable sources of revenue” [Article 240(2)], with an attempt to secure this through the establishment of the District Assembly Common Fund
(DACF). This is determined annually by Parliament, but with allocations “not less than five per cent of the total revenues of Ghana” [Article 252(2)]. The proceeds of the
DACF are then allocated between DAs on the basis of a revenue sharing formula approved by Parliament. In terms of administrative reform, there is a clear intent to move away from a deconcentrated national civil service to the establishment of a local government service with the provision that: “as far as practicable, the persons in the service of the local government shall be subject to effective control of local authorities”
(Article 240[2][d]). The DCD, appointed as the head of the district administration, would be a member.
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2.13. SUB-NATIONAL GOVERNMENT STRUCTURES
A three-tier structure of sub-national government was created by the 1992 Constitution
[or Local Government Act of 1993] at regional, district and sub-district levels. This comprises Regional Co-ordinating Councils (10), District Assemblies (110) and urban, zonal, town and area councils (1300), plus unit committees (16,000) (Nkrumah
2000:59). The District Assembly remains the key institution, however, and its role is discussed first, before that of the other two tiers. Additionally, the national level institutions responsible for operationalising decentralisation are briefly outlined.
2.14. DISTRICT ASSEMBLIES
The District Assembly (DA) is clearly stated in the 1992 Constitution as “the highest political authority in the district, with deliberative, legislative and executive powers”
Article 241(3).
DAs range in size from 54 to 130 members (USAID 2003: 9), with both elected (70%) and appointed (30%) members, as discussed above. Local elections are held every four years at approximately the mid-term point in the central government administration. The district MPs are also entitled to participate in the Assembly, though in a non-voting capacity, while the District Chief Executive is an ex-officio member. DA members elect a Presiding Member from amongst their number, responsible for the three to four general assemblies held each year, during which the DA acts as a district legislature. In between, the ongoing activities of the DA take place in committee structures, of which the Executive Committee (EXECO) is the most significant, responsible for general policy and overall development planning. The EXECO is composed of one-third of the
DA members and performs the main executive and administrative functions. Under it are five statutory sub-committees (development planning; social services; works / technical
41 infrastructure; justice and security; and finance and administration), with the EXECO able to create other ad hoc sub-committees as the need arises. All sub-committees report to the Assembly through the EXECO. The DCE, appointed by the national President, is the chair of the EXECO, while the Presiding Member and district MPs are barred from its membership. Although this situation may be prompted by a notion of the separation of powers at local level, the outcome is that an appointed representative of central government chairs the most powerful body at district level, while the Assembly‟s own elected leader is excluded.
2.15 REGIONAL CO-ORDINATING COUNCILS
Each of the ten regions has a Regional Co-ordinating Council (RCC), chaired by a
Regional Minister, appointed by the President. The RCC is composed of the Regional
Minister and his/her Deputy, the Presiding Member and DCE from each district, two chiefs from the Regional House of Chiefs. Additionally the Regional Heads of decentralised ministries in the Region sit as non-voting members. The RCC‟s main function is to co-ordinate and regulate the DAs in their respective regions, though the interpretation and implementation of this task remains vague.
2.16 SUB-DISTRICT STRUCTURES
Rather complexly, three sub-district levels exist, though their significance and effectiveness is open to question. Firstly, due to their disproportionate size, the three
Metropolitan Assemblies are sub-divided into thirteen „sub-metropolitan district councils‟, six in Accra, four in Kumasi and three in Shama-Ahanta. Secondly, there are over 1300 Urban, Zonal and Town/Area Councils, with the given name dependent on the size and nature of the settlement. These are not elective bodies. They are composed of representatives from institutions above and below, that is from the District Assembly
42 and from the Unit Committees, as well as central government appointees selected by the
District Chief Executive on behalf of the President. Ayee (2000: 17) describes the role of the Councils as a “rallying point of local enthusiasm in support of the development objectives of the DAs”, and essentially they are implementing agencies of the DAs.
Thirdly, there are over 16,000 Unit Committees (UCs) established throughout Ghana, covering settlements of between 500-1000 people in the rural areas and approximately
1500 in the urban areas. These are partially elected bodies, with membership consisting of ten elected members and five government appointees, again selected by the DCE, with the same notional consultation process. The UCs are highly decentralised bodies that again act as implementing agencies for the DAs, performing administrative functions such as the registration of births and deaths, public education campaigns, revenue raising and the organisation of communal labour for local projects (Ayee 2000:
18). Elections were held in August 1998 and in October 2002. The second elections were marred by their cancellation in over 10,000 units due to insufficient candidates, perhaps not altogether surprising given that members receive no remuneration and little recognition for the duties undertaken (USAID 2003:8).
2.17 NATIONAL CO-ORDINATING INSTITUTIONS
Three central government institutions play a significant role in the implementation of decentralisation policies, with the latter two established by the 1992 Constitution. The
Ministry of Local Government and Rural Development (MLGRD) is regarded as the one
43 ministry with a commitment to decentralisation, though this is questioned at times, while other central government departments are perceived as resisting decentralisation
(USAID 2003: 14). One of MLGRD‟s functions is to propose and co-ordinate national policies for local government (USAID 2003:16). Its significance is indicated by the statistic that in 1999 only 25 per cent of DACF disbursements were fully discretionary to
DAs, with MLGRD and Ministry of Finance guidelines determining the use of the remaining 75 per cent (USAID 2003). MLGRD also operates as the link institution between local government and international donors in their decentralisation support. The
National Development Planning Commission (NDPC) provides guidance and assistance to DAs in producing district development plans, outlining in effect their planned utilisation of discretionary funds, including locally generated revenue. (Also approves district development plans). A further role of the NDPC is to co-ordinate district development plans into a national development plan (Ayee 2000: 466). The Office of the
Administrator of the District Assemblies Common Fund, attached to the President‟s office, has the practical task of disbursing funds on a quarterly basis to each district, as determined by Parliament. It also studies potential revisions to the annual formula to determine the distribution of the Common Fund among districts, with reports submitted to Parliament for consideration (USAID 2003: 15).
2.18 POWERS AND FUNCTIONS OF DISTRICT ASSEMBLIES
The powers and functions of DAs, as laid out in the 1992 Constitution and the Local
Government Act (Act 462) of 1993, are extensive. In many instances, however, such powers and functions are shared with central government ministries and agencies, not
44 dissimilar to the dual structure in which central and local government institutions operated in parallel, characteristic of the pre-1988 period (Ayee 2000: 49). A key question concerns whether the hierarchical relationship continues to exist or whether
DAs now exert „autonomous discretionary powers‟ over development activities in their jurisdiction.
2.19. POWERS OF DISTRICT ASSEMBLIES
DAs are accorded wide-ranging powers by the 1992 Constitution and the Local
Government Act of 1993 within their designated geographical area. They are the:
• Highest political and administrative authorities;
• Planning authorities;
• Development authorities;
• Budgeting authorities;
• Rating authorities.
(Ayee 2000: 466)
2.20. FUNCTIONS OF DISTRICT ASSEMBLIES
The 1992 Constitution and the Local Government Act of 1993 delineate six broad functions of the DA, as follows:
• To give political and administrative guidance, give direction and to supervise all other administrative authorities in the District;
• To exercise deliberative, legislative and executive functions;
• To be responsible for overall development of the District and ensure the preparation of
(a) development plans of the District, and (b) the budget of the District related to the approved plans;
45
• Effective mobilization of the resources necessary for overall development of the
District;
• Promotion of productive activity and social development;
• To co-ordinate, integrate and harmonize the execution of programmes and projects under approved development plans for the district and other development programmes promoted or carried out by Ministries, Departments, Public Corporations and other
Statutory Bodies and Non-Governmental Organisations in the District. ( Ayee 2000:
466-7).
There seems a clear intent that the DA act as the principle authority, with overall responsibility for development activities, inclusive of co-ordinating and integrating those of other development actors. The extent to which this happens in practice is another matter, however.
These broad functions are then given detail and sub-divided into 86 particular functions, specified in the Legal Instruments that created the DAs, and including such significant areas as “roads, forestry, agricultural extension, secondary education, health service delivery, fire prevention, town and country planning” (Nkrumah 2000: 60). Ayee categories these specific functions into deconcentrated, delegated and devolved public services, thus indicating the involvement of other actors, mainly central government departments and agencies, and their differential powers.
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CHAPTER THREE
METHODOLOGY
3.0 INTRODUCTION
This chapter focuses on how data was collected for the study. It captures the study area, the study population, the sampling procedure, research instruments or techniques for data collection and the procedure adopted in analysing the data collected.
3.1 STUDY DESIGN
The research design was a descriptive study. Yin (1994) describe descriptive study as one in which an empirical enquiring that investigate a contemporary phenomena within a real- life context is done. As a descriptive study, it is designed to obtain pertinent and precise information concerning the topic under study, which is decentralization a tool for grassroot development, a case study of Asutifi District.
3.2 RESEARCH POPULATION
The research population as defined by Jaeger (1988) as the group of persons, objects or institutions that define the object of the investigation. In this study, the research population are the Assembly members, Heads of Decentralised departments, opinion leaders and other local bureaucrats who have workable understanding of Assembly issues and community members at the grass root level.
47
In all seventy five people were involved in this study. These groups of people were chosen because of their knowledge and their involvement in the activities of development at the grassroot level.
3.3 SAMPLING SIZE
Sampling according to Bennett (1991), is the process involved in selecting respondents from the population under study. It is sometimes impossible to examine every item or person in the population under study as a result of limited time and resources hence sampling becomes very important in the study. Due to the huge size of the target population, thirty (30) Assembly Men, thirteen (13) Decentralised Department,, twelve
(12) opinion leaders and twenty (20) community members were sampled to respond to the research questions.
3.4 SAMPLING PROCEDURE
Purposive and Convenience sampling methods were selected for the study. Twumasi
(1986) describes purposive sampling as a method where the researcher selects respondents who can answer his research questions. It is a type of non-probability sampling where the researcher picks the respondents he wants to include in his sample or those respondents he believes are representative of the group under study. Powell
(1997), described convenience sampling as a non probability sampling which involves the sample being drawn from that part of population which the researcher has access to or can reached. That is, a sampled population is readily available and convenient. Both convenient and purposive samplings were used for Decentralized department Assembly men, Opinion leaders and community members. These methods of sampling were used
48 because the information the researcher is looking for can only be gotten from the selected groups mention within the period April and June 2011.
3.5 DECENTRALISED DEPARTMENT
A purposive sampling method was used for the decentralised departments. First, for selection of decentralised department official, 13 departments were selected using purposive sampling method. The selected departments include Planning, Community
Development, Social Welfare, Education, Health, Agric, Finance, Environment,
Engineering, Works, Town and Country Planning, NADMO, and Co-ordinating
Directorate. Heads or administrators of these departments were selected to provide responses to the question.
3.6 ASSEMBLY MEMBERS
Again, a purposive sampling method was also used to select assembly members, these members come from various areas of the community within the district and either pointed or elected by members of the community to represent them at the assembly. Out of a total member 64 assembly members, almost half were used in this study
3.7 OPINION LEADERS AND COMMUNITY MEMBERS
Opinion leaders and community members comprise of chiefs, priest, teacher etc were selected using both purposive as well as convenience sampling methods. At total of 32 were selected for this study.
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3.8 DATA COLLECTION INSTRUMENT
The researcher designed two sets of questionnaire. One set of questionnaire was for the
Assembly men and the heads of Decentralised department and the other set was for
Chiefs, Opinion Leaders and ordinary citizen. According to Marzillier and Hall (1992), questionnaire is composed of questions which require respondents to fill in the answers themselves. Opened-ended as well as closed-ended formats of questionnaire were used to collect data for analyses. Opened –ended questionnaire give respondents the freedom to respond with their own words and therefore ensure that responses are objective since clues are not provided. Closed-ended questions try to find out the extent of agreements in the thought patterns and response relationships of respondents.
This instrument was chosen for the study because in considering the sampling size and time available for the research the method was considered the most appropriate method for obtaining information from respondents. The questions were designed to solicit information on decentralisation a tool for grassroot development, A pre-test was done to make sure that questions were easily understood and are meaningful to the study.
3.9 SOURCE OF DATA
Primary and secondary data were used for study. Kotler and keller (2006), define primary data as researchers own field work, that is, information gotten from questionnaires and interviews which are fresh and have not been used by any researcher whilst Secondary data on the other hand is information received or obtained from other sources such as journals, literatures, offices and libraries which have been used by other researchers.
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The researcher designed two set of question for two groups of respondents, one was for the decentralised departments and assembly members whilst the other for opinion leaders and community members. The secondary date used in this study were from literatures that were relevant to the researcher.
3.10 DATA PRESENTATION AND ANALYSIS
All completed questionnaires were checked for accuracy and appropriateness of data.
The analysis and presentation of result was done by using simple statistical tools such as frequency distribution table and percentages with the use of Statistical package for social sciences (SPSS), Microsoft office word and excel. These tables were duly interpreted and explained based on the research objectives. These tools were used because of clarity and simplicity. The analysed data were discussed by comparing the answers within the various concepts and theories in the literature review. Recommendations were made based on the findings.
3.11 THE ASUTIFI DISTRICT.
Asutifi District is located between latitudes 6o40‟and7o15‟North and Longitudes 2o15‟ and 2o45‟West. It shares boundaries with Sunyani Municipal to the north, Tano North
District to the northeast, Dormaa West District to northwest, Asunafo Municipal to the southwest and Ahafo Ano South District (Ashanti Region) to the southeast. With a total land surface area of 1500sq.km, the district is one of the smallest in the Brong Ahafo
Region. There are a total of 117 settlements in the district and four paramountcies, namely Kenyasi No.1, Kenyasi No.2, Hwidiem and Acherensua.
51
The district has ten (10) decentralized departments there is one Town Council at Kenyasi
No. 2 and eight (8) Area Councils at Kenyasi No.1, Hwidiem, Acherensua, Goamu-
Koforidua, Dadiesoaba, Gambia, Ntotroso and Nkasiem and one hundred and twenty- one (121) unit committees. There are forty-two (42) electoral areas in the district.
3.12 POPULATION SIZE AND GROWTH RATES
From the National Population and Housing Census of 2000, the district has a population of 84,475 with a growth rate of 2.8% per annum.
The implication of a low population growth rate is the concentration of population in the working age group. This situation augurs well for development. However, the quality of labour force in terms of health and skill has an obvious implication.
3.13 POPULATION BY SETTLEMENT-RURAL URBAN SPLIT
The district has about 117 settlements and out of this only two Kenyasi and Hwidiem are urban settlements having a population of 5,000 (2000 population and housing census).
The District can be described as typically rural. It is currently estimated at 15% urban; whiles that of the nation is 37.4%.
3.14 HEALTH FACILITIES
The District has one major health facility, namely; the Saint Elizabeth Hospital located at Hwidiem. This facility serves as the District hospital to Asutifi and Referral centre for
Asunafo District and is owned and managed by the Roman Catholic with Surgical, medical and obstetric services. Besides, it has facilities for screening blood for HIV and
52 it runs a T.B. Programme. There are five other health stations manned by Ministry of
Health namely; Kenyasi Health Centre, Gyedu Health Centre Post, Acherensua Health
Post, Dadiesoaba Health Post, and Gambia MCH Clinic. In addition these facilities, there are seven (7) structural community clinic located at Gambia No.1, Goamu-
Koforidua, Kenyasi No. 2, Amamaso/Gyedu, Sunkwa/Dadiesoaba, Nkasiem Community
Clinic. The rest are, three Private Maternity homes located at Kensere, Kenyasi and
Twabidi and three (3) Homeopathic Clinics and over sixty (60) trained Traditional Birth
Attendants.
3.15 WATER
Three (3) major communities (Kenyasi, Hwidiem and Acherensua 15%) have access to small town water systems. However, three other (Ntotroso-Gyedu, Wamahinso,
Wamanhinso and Dadiesoaba) would soon be served. The rest use boreholes (20%),
Hand dug wells (23%), stream for domestic use 35% and others (7%).
3.16 ELECTRICITY
All the major towns in the district have access to electricity. There are service lines to all settlement areas that could be tapped for domestic and industrial uses.
3.17 POST AND TELECOMMUNICATION
Currently four cellular phones operating companies provide communication services to the district. Namely M T N, Tigo, Vodafone and Zain. These operators have aided the flow of information from one area to another.
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3.18 ROADS
The main Kumasi-Tepa-Goaso road which passes through the district (Acherensua,
Hwidiem,Nkasiem) and a 5km road that links it to the district capital from Hwidiem has been tarred. Also, the Acherensua-Atronie Sunyani road has been tarred. The condition of the afore-mentioned roads has made the district easily accessible from both Kumasi from the south and Sunyani from the northern part of the country. Other feeder roads in the district receive routine maintenance.
3.19 SCHOOLS
Basic schools are dotted all over the district and the pupils have easy access to them.
There are four Senior High Schools namely OLA Girls‟ Senior High school, Acherensua
Senior High school, Hwidiem Senior High school and Gyamfi Kumanin Senior High school.
3.20 OCCUPATIONAL DISTRIBUTION
The predominant occupation in the district is subsistence agriculture which engages 75% of the economically active labour force. The service sector employs 12% followed by commerce, 7% and industry 5% in that order. About 96% of those engaged in other occupation outside agriculture still as a minor activity. The rural nature of the district coupled with the limited employment opportunities accounts partly for this skewed occupational distribution in the district thus, indicating very weak industrial and service sectors.
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3.21 VEGETATION
The district has a moist semi-deciduous forest. This vegetation has, however, been disturbed by man‟s activities notably farming, lumbering and occasional bush fires. This has changed some areas into a derived wooded savannah. There are however, large areas of forest reserves. These include the followings: Biaso Shelter Belt, Bia Tam Forest
Reserve, Asukese Forest Reserve, Goa Forest Reserve, Desiri Forest Reserve. These forest reserves together cover a total of about 475.63 square kilometres, about 30% of the entire land surface area of the district. The forest reserves in the district have fauna and varied of high economic value examples elephants, cane, herbs for medicine among others. These extensive forests stocked with timber have given rise to lumbering on a large scale. The main economic trees in the forest include wawa, odum, and mahogany among others. In spite of this large scale timber extraction, there is no large scale wood processing plant in the district. The District Assembly should have had its highest revenue from lands but does not receive much. Mim, a town in the Asunafo Municipal and Kumasi, in the Ashanti Region with large sawmill plants obviously gain from their milling activities to the disadvantage of Asutifi District.
3.22 AGRICULTURE
Crop The percentage of cultivable land in the district is 86% of the total land area of about 1500km. Of this number about 24,784 acres is currently under cultivation with an average farm size of 3.1 acres. A variety of crops ranging from cash to food crops grows well in the district. The major crops cultivated in the district include cassava, maize, cocoyam, oil palm, cocoa, vegetables legumes and plantain. The district is one of the
55 leading producers of plantain in the nation. The area in addition has great potential for the cultivation of sugarcane and rice around Sienchem, kensere, Mehame and Ntotroso among others. Ginger, Coffee and oil palm could also be grown on a large scale. The famers mainly practice food crop farming with few engage in livestock production.
Mixed crop farming is the main cropping system practiced by food crop farmers.
3.23 ANIMAL PRODUCTION
There are few farms where pigs, cattle, sheep and goats are reared in some parts the district. Poultry production is gradually gaining grounds.
3.24 GEOLOGY AND MINERAL AVAILABLE
This physiographic region is underlain by Precambrian rocks of Birimian and
Dahomeyan formations. The Birimian formations are known to be the gold bearing rocks. There are reported cases of gold deposits at Kenyasi, Ntotroso, Nkrankrom,
Acherensua, Woramumso and Wamahinso. Diamond is discovered at Wamahinso.
There is also a widespread deposit of sand and clay; sand at Kenyasi, Gambia No.2,
Hwidiem and Acherensua and clay at Yawkra, Nsunyameye and Dadiesoaba. Birimian rocks also have a high potential for Manganese and Bauxite. These are rounded out crops of granite found over the Birimian rocks as found at Kwadwo Addaekrom, Goatifi,
Georgekrom and Konkontreso. These rocks have a high potential of iron and bauxite.
Currently Newmont Ghana gold limited has started mining activities in the community such as Kenyasi No.1 and 2, Ntotroso among others. Exploration activities are also being undertaken by other prospectors within the district.
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3.25 MINING
The entire district has large stocks of different mineral ores that have been proven to be economically viable. Gold in particular is known to be present in many areas of the district including Kenyasi, Ntotroso, Gyedu, Wamahinso, Worammuso, Nkrankrom and
Acherensua. Diamond is found at Wamahiniso, granite at Gambia No.2.
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CHAPTER FOUR
DATA PRESENTATION, ANALYSIS AND DISCUSSION
4.0 INTRODUCTION
This chapter presents the findings of the research conducted on decentralisation as a tool for grassroot development.
The result of the administered questionnaires, analysis and discussions are covered in this chapter. Respondents were Assembly Members, Departmental Heads, Chiefs,
Opinion Leaders, and Ordinary Citizens.
4.1 PRESENTATION OF FINDINGS
4.2 RESPONSES FROM ASSEMBLY MEMBERS AND DEPARTMENTAL
HEADS.
4.3 BACKGROUND INFORMATION OF RESPONDENTS
In all 43 respondents responded to the questionnaires of which 72% were male while
28% were female. Their ages ranged from 25-Above 55. With the highest respondents of
15 representing 35% was ranged 36-45, followed by the range of 46-55 with 26% while the lowest of the range were above 55 with respondents of 7 representing 16%. At least all the respondents have had some level of education which ranges from below senior high to 2nd degree. Out of the total number of respondents of 43, 14 respondents representing 33% have had education up to 1st degree while only 6 respondents representing 14% have also had education below senior high, the rest of them fall between the given percentages
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Finally, 49% of the respondents were Assembly members, 30% were Administrators while Departmental heads had a frequency of 9 representing 21%.
Table 4.4 UNDERSTANDING DECENTRALIZATION
Frequency Percent Transfer of power from 31 72.1 central government to local authority Do not know 12 27.9 Total 43 100.0 Source: Researchers field work.
In assessing respondents understanding on decentralization 72% of the respondents had some knowledge of decentralization and presented it as the transfer of authority or power from the central government to a local government and further gave the various types of decentralization as Administrative, Fiscal, Economical and political. While 28% had no knowledge or understanding of decentralization.
More so, all the respondents agreed to the fact that decentralisation had some advantages over centralization and listed them as speeding up the decision making process, development resonate with local content and freedom to generate internal funds and spend them internally without control from the central government.
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Table 4.5 FUNCTIONS OF THE DISTRICT ASSEMBLY
Functions Frequency Percent Collection of revenue, 42 98 legislative, administrative and agent of development Do not know 1 2 Total 43 100.0 Source: Researchers field work
Again98% of the respondents had knowledge of the functions of the District Assembly and enumerated them as agent of development, collection of revenue, administrative and legislative, while 2% of the respondents had no knowledge of the functions of the district assembly.
Furthermore, 100% of the respondents outlined the various decentralized departments at the district as ministry of agric, social welfare, education, health, community development and planning unit etc.
Table 4.6 ACTIVITIES OF THE DECENTRALIZED DEPARTMENTS
Frequency Percent Help mobilised resource for 33 77 the development of the district Help advice management on 10 23 developmental issue Total 43 100.0 Source: Researchers field work
Again a frequency of 33 representing 77% of respondents spell out some of the activities perform these decentralized department as facilitating development at the grassroot level as they help to mobilized resources for the development of the district while a frequency of 10 representing 23.3% said they advice management on
60 developmental issues. Furthermore, on the assessment of respondents on the number of times they are consulted by these decentralized departments, a majority of the respondents representing 51% said that they are only consulted as and when it was necessary while 40% said they are consulted one per month and finally 9% said they are only consulted once every five month.
Further in finding out how information is disseminated to respondents from the decentralised department and the assembly, 63% said through public hearing, while21% receive information through the notice board and16% through durbar of chief and people of the community.
Table 4.7 DEGREE OF RESPONSIVENESS BY THE ASSEMBLY
Frequency Percent Strongly agree 15 35 Agree 28 65 Total 43 100.0 Source: Researchers field work
In assessing the degree of responsiveness by the assembly towards the needs of the community, almost all respondents somehow agreed to the fact that the district assembly have been responsive towards the needs of the community and are swift and more than willing to solve problems encountered by the community.
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Table 4.8 POLICY MAKING AT THE DISTRICT ASSEMBLY
Frequency Percent Strongly agree 28 65.1 Agree 14 32.6 Strongly disagree 1 2.3 Total 43 100.0 Source: Researchers field work
In the quest to find out how policies are made in the district to ensure development at the grassroot level and the extent to which they are in an agreement with the process of policy making. 65 % and 33% of the respondents agree to the fact that decision making at the assembly level undergoes some systematic process which somehow portray some resemblance to the policy making process as Issue search, constructing alternatives selecting, forecasting/project outcomes, analysis of policy option, however 2 % of the respondents strongly disagree with that.
Table 4.9 CAPACITY FOR DEVELOPMENT
Frequency Percent High level of capacity 19 44 Normal level of capacity 22 51 Low level of capacity 2 5 Total 43 100.0 Source: Researchers field work
Out of the total respondents of 43, 22 which represent 51% thinks that the assembly has a normal level of capacity for development, 19 representing 44% believe that the assembly has a high level of capacity while 2 which represent 5% think that the assembly has low level of capacity to ensure massive development at the grassroot level.
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Furthermore 100% of the respondents outlined some of the developmental activities that have come as a result of decentralization as transparency, accountability, responsiveness and mass expansion of infrastructure at their level.
Again, assessing the knowledge of respondent on the various sources of funds available for development at the district, 100% of the respondent enumerated the district assembly common fund, internally generated fund, Member of Parliament common fund and royalties from land commission as the sources of funds to the assembly. A followed up question to ascertain the regularity of these funds for development, 91% of the respondents saw these source of funds to the assembly as regular.
In addition, an enquiry on how resources are mobilize at the district to ensure development at the grassroot levy, 93% of the respondents said through tax, tolls fines and fund raising activities while the remaining 7% did not know how resources are mobilized at the district.
Table 4.10 DISTRIBUTED OF RESOURCES AT THE DISTRICT
Frequency Percent Equitable 18 41.9 Base on the population of 9 20.9 the community On the discretion of 3 7.0 assembly authority Base on a standardized 13 30.2 requirement Total 43 100.0 Source: Researchers field work
In an attempt to assess the view of respondents on how resource should be distributed at the district, 42% think that resources should be distributed equitably30% said it should
63 be base on a standardized requirement, 21% believe that it should be base on the population of the communities in the district while 7% said the assembly authority should use their discretion to distribute the resources.
Table 4.11 RESULTS OF DECENTRALIZATION IN DEVELOPMENT
Frequency Percent Full participation by locals 37 86 in development activities,
Responsive by the assembly 2 5 to local needs Do not know 4 9 Total 43 100.0 Source: Researchers field work
Furthermore respondents enumerated the following as the ways through which decentralization have contributed to grassroot development, 86% of respondents said decentralisation has helped to allow full participation by local in development activities,
5% of respondent said through decentralisation the assembly has been responsive towards local needs while 9% said they do not know how decentralization has help.
Table 4.12 PROJECT EMBARKED ON BY THE ASSEMBLY
Frequency Percent Expansion of basic 37 86.0 infrastructures (school, health etc.) Human resource 6 14.0 development Total 43 100.0 Source: Researchers field work
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Finally, on the assessment of project embarked on in the district, 86% of the respondents gave an overview as building and expansion of basic infrastructure like education, health, roads, market place etc while 14% of the respondents said human resource development.
4.13 RESPONSES FROM OPIONION LEADERS, CHIEFS AND COMMUNITY
MEMBERS
4.14 BACKGROUND INFORMATION OF RESPONDENTS
In all 32 respondents responded to the questionnaires of which 59% of them were male while 40% of them were female, with ages above 25. The highest respondent of 10 representing 31% however has their ages ranged from 25-35 whilst just 8 respondents representing 25% had their ages above 55. At least all the respondents have had some level of education which ranges from below senior high to 2nd degree. Out of the total number of respondents of 32, 10 respondents representing 31% had HND, 6 respondents representing 14% had certificate „A‟, whilst the rest of them fall between the given percentages
Table 4.15 UNDERSTANDING DECENTRALISATION
Frequency Percent Transfer of power from 24 75.0 central government to local authority Do not know 8 25.0 Total 32 100.0 Source: Researchers field work
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In an attempt to evaluate the understanding of respondents on decentralisation 75% of the respondents said decentralisation is the transfer of power from a central government to a local authority and 44% and further gave the various types of decentralisation as administrative, fiscal, economical and political while a respondents of 8 representing
25% said they have no idea about it and a such56% could not give the various type.
However, 94% of the respondents outlined the various decentralized departments at the district as ministry of agric, social welfare, education, health, community development and planning unit etc. while 6% of the respondents had no idea.
Table 4.16 FUNCTIONS OF THE DISTRICT ASSEMBLY
Frequency Percent Collection of revenue, 31 97 legislative, administrative and agent of development Do not know 1 3 Total 32 100.0 Source: Researchers field work
Again97% of the respondents had knowledge of the functions of the District Assembly and enumerated them as agent of development, collection of revenue, administrative and legislative, while 3% of the respondents had no knowledge of the functions of the district assembly.
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Table 4.17 DISTRICT ASSEMBLY ELECTION
Frequency Percent To contribute to 19 60 development through participation My right 3 9 Do not see what assembly 10 31 members do Total 32 100.0 Source: Researchers field work
Respondents of 19 representing 60% said they voted to contribute to development in their community and 9% of the respondents said it was their right, while 31% of the respondents said they did not vote or took part because they did not know what assembly members do. More so an assessment of respondent attitude towards activities organised by the assembly member, 78% of the respondents said they took part to help develop their community while 22% were not interested or did not see the need to attend or be part of those activities organized by the assembly member.
Furthermore, an attempt to inquired from respondents the number of times they are consulted by their assembly member in developmental issues, 28% responded once per month, 25% said they are only consulted as and when there is the need and 22% responded never, 18.% said once every three months whilst 6% responded once every five months.
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Table 4.18 DISSEMINATION OF INFORMATION
Frequency Percent Public hearing 24 75 On the notice board 2 6 Durbar of chief and people 5 16 Do not know 1 3 Total 32 100.0 Source: Researchers field work
Further in finding out how information is disseminated to respondents from the assembly member,24 respondents representing 75% said through public hearing, while
6% receive information through the notice board,16% through durbar of chief and people of the community and 3% had no idea.
Table 4.19 UNDERSTANDING OF RESPONSIVENESS
Frequency Percent Strongly agree 8 25 Agree 22 69 Some how 2 6 Total 32 100.0 Source: Researchers field work
In assessing the degree of responsiveness by the assembly towards the community or people, 94% of respondents understood responsiveness and paraphrase as swiftness and willingness on the part of the assembly to solve problems encountered by the community; however 6% of the respondents were indifferent.
Furthermore, out of the total number of 32 respondents 50% said that the assembly is responsive, 37% of the respondents said the assembly is highly responsive, while 4% responded less responsive towards the needs of the communities.
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Table 4.20 UNDERSTANDING DEVELOPMENT
Frequency Percent Strongly agree 17 53 Agree 13 41 Some how 2 6 Total 32 100 Source: Researchers field work
Again, in attempt to evaluate the extent to which respondents understand development, almost 94% of the respondent agree to the fact that there is development at the district and summaries the definition of development as provision and expansion of basic things of life e.g. (education, health and shelter etc.), however 6% of the respondents were not really sure of what development is.
Table 4.21 CAPACITY TO ENSURE MASSIVE DEVELOPMENT
Frequency Percent High level of capacity 18 56 Normal level of capacity 12 38 Low level of capacity 2 6 Total 32 100.0 Source: Researchers field work
Out of a total respondents of 32, 18 represent 56% thinks the assembly has a high level of capacity for development, 12 represent 38% believed the assembly has a normal level of capacity while 2 represent 6% responded that the assembly has low level of capacity to ensure massive development at the grassroot level.
Furthermore 100% of the respondents outlined some of the developmental activities that have come as a result of decentralization as transparency, accountability, responsiveness and mass expansion of infrastructure at their level.
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Table 4.22 LEVY OF LOCAL TAXES
Frequency Percent Large extent 16 50 Some extent 14 44 Low extent 2 6 Total 32 100.0 Source: Researchers field work
Again respondents were required to identify the extent to which the district assembly have power to levy local taxes on the community, respondents of 16 representing 50% said to a large extent the district assembly have the power to levy taxes for development,
44% said to some extent while 6% said to low extent. Again, in an attempt to assess the view of respondents on how resource should be distributed at the district, 65% responded that resources should be distributed equitably13% said it should be base on a standardized requirement, 19% believe that it should be base on the population of the communities in the district while 3% said the assembly authority should use their discretion to distribute the resources.
Table 4.23 DECENTRALISATION AND GRASSROOT DEVELOPMENT
Frequency Percent Full participation by locals 29 90 in development activities, Responsiveness by the 3 10 assembly towards local needs Total 32 100.0 Source: Researchers field work
90% of respondents said decentralisation has allow full participation by local in development activities while 10% of respondent said through decentralisation the assembly has be responsive towards local needs. They further outline some of the
70 developmental projects embarked on, as 94% of the respondents said expansion of basic infrastructure like education, health, roads etc while 6% of the respondents said human resource development.
Table 4.24 DISADVANTAGES OF DECENTRALISATION CONCEPT
Frequency Percent Delay in decision 19 59 Control by local elite 4 13 Do not know 9 28 Total 32 100.0 Source: Researchers field work
Finally assessment by respondent on the disadvantages of decentralisation, 59% of respondents said it takes times in decision making, 28% of respondents said the y do not know while 13% of the respondents said control by local elite in most of the development activities at the grassroot level.
4.25 DISCUSSIONS
Decentralisation have been explained by respondents as a transfer of authority or power from a central government to a local authority. As one of the object of the project sought to understand what decentralisation is. This explanation conforms to that given by
Cistulli, (2002) who define decentralization as a process through which authority and responsibility for some functions are transferred from the central government to local governments. This form of governance he further noted gives power to the local citizenery to take decisions on thing that affects them and are most relevant to them.
Respondents noted that the practice of decentralization increases full participation of the local people in developmental activities at the district level making it the fulfillment of
71 the provision made in the 1992 constitution of Ghana which showed specifically that decentralization must promote participatory democracy, empower district assemblies introduce an effective system to create access to the resources of the country and promote transparency and accountability. The opportunities of decentralisation the respondents noted include, greater popular participation; the ability to design social services to meet specific community needs; the capacity to tailor solutions for local problems to local conditions; the opportunity for policy innovations and the ability to scale up successes; the ability to provide social services more efficiently; and the opportunity for increased accountability to the people. Through grassroot participation the people of Asutifi were able to initiate developmental projects such as school, health post, roads and basic necessity of life, as 90% of respondent noted that the practice of decentralization has led to some development at the grassroot level. Thus, decentralisation as practiced within Asutifi District has promoted development within the district.
However in spite of the various opportunities associated with decentralisation process it is undeniable fact that the principal of grassroot participation of decentralisation is compromised. Decentralisation is not without significant risk of capture by local elites.
This contradicts the principals of participation. however, a likely reason for the contradiction of the capture by these local elites is the influence these local elites command at their localities due to economic inequalities and rural poverty limited education of the rural people which presents strong obstacles to political equality and more equal distribution of influence among different social groups.
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Again, decentralisation as established within the 1992 constitution which gave way for the establishment of District Assembly and its common fund act (455 of 1993). This provision releases resources at the centralized level (National) to the local level to support in the developmental process. The process of decentralisation also empower the citizenry to mobilize other sources of funding such as royalties from land commission, property rate, member of parliament common fund and other non-governmental organisation that facilitate the flow of funds into the district. However the finding reviewed that even though these funds are available, almost half of the respondents were of the view that it should be distributed equitable. This indicate that most of these funds were not distributed equitable. The plausible reason could be the various challenges that affect each and every community; some of the challenges could be enormous and therefore demands attention more than others.
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CHAPTER FIVE
5.0 INTRODUCTION
This chapter summaries the major findings of the study, draw conclusions based on the research and makes recommendation that will further improve the practice of decentralisation.
5.1 SUMMARY
The purpose of the study was to look at decentralisation as a tool for grassroot development with particular reference to Asutifi District. Basically the study looked at the statement problems and the needed objectives to respond to the problem. The problem statement as noted in the study that central governments have failed to provide local services with the quality and consistency required to significantly improve the standard of living of the majority of the population and to initiate developmental project that resonate with the local people. However, the objectives of the research as stated in the study was to understand decentralisation and the role it plays in bring about development and to examine decentralisation as a tool for grassroot development in
Asutifi district. This was extensively addressed in the literature review.
Furthermore, a focused on the various methods employed to execute the project work were also looked at. Purposive and convenience method of sampling were used to execute the study, whilst SPSS was used for the analysis.
Finally, presentation and discussions of findings were addressed, as it was noted in the study as decentralisation is a process that involves both risks and opportunities. The opportunities included greater popular participation; the ability to design social services to meet specific community needs; the capacity to tailor solutions for local problems to
74 local conditions; the opportunity for policy innovations and the ability to scale up successes; the opportunity for increased accountability to the people at the grassroot level. However, decentralisation is not without significant risks that include the possibility of an increase in the risk of capture by local elites, and the possibility of disparities between the resources available to sub-national governments and the responsibilities these governments must fulfill.
5.2 CONCLUSION
In conclusion, it is clear that decentralisation provides opportunities for greater participation, the research reviewed some of the benefit of decentralisation and how it has serve as a tool for grassroot development. It was reviewed that participation is clearly a key element of effective popular control over government. Decentralisation measures have brought about an increased level of participation in local decision-making and in local development initiatives have facilitated development at the grassroot level.
Various source and forms of resources available for development at the grassroot level was also reviewed to have gone up. The potential of decentralisation to improve services is the supply of financial resources. Decentralisation has opened up new sources of revenue to the local authority to facilitate development at the grassroot level. Some of the source the research found out were district assembly common fund, Member of
Parliament common fund, royalties from land commission and internally generated funds. The practice of decentralisation has given the local authority the power to levy tax for development
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5.3 RECOMMENDATIONS
Bringing government closer to the people would make it more responsive and more likely to develop policies and outputs, which meet the needs of ordinary citizens at the local level of whom the majority are the poor. For decentralisation to benefit the local people in terms of grassroot development, government should not only have an ideological commitment to develop the local level but be prepare to engage actively, with local to challenge local elite resistance, if necessary and to ensure implementation of policies, if this is not done pro local development policies may be made but not implemented.
Finally, in the course of the field work it was reviewed that there is delays in the process of decision making associated with the practice of decentralisation at the grassroot level.
It is hereby recommended that communities at the grassroot level should elect representative to represent them at any level of development to carry out their decision in order to reduce the problem of everybody contributing or suggesting to a particular direction which can help speed up the process of decision to facilitate development at the grassroot level.
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REFERENCES
AGRAWAL, A., and J. C. Ribot. 2002. Accountability in Decentralization: A Framework with South Asian and West African Cases paper prepared for presentation at the Colloquium on Decentralization and Development at the Department of Political Science, Yale University,2000 [cited 24 October 2002]
Adamolekun D, Olowu ML (1988). Local government in West Africa since Independence. Lagos: University of Lagos Press.
Asante, F.A. (2003) Economic Analysis of Decentralisation in Rural Ghana. (Germany: Peter Lang).
Asutifi District Assembly, A Treasure Awaiting Discovery (2007).
Asutifi District Assembly, District Medium Term Development Plan, 2002-2005
Aryee JRA (1995). Governance and Decentralization in Ghana – Retrospect and Prospects. Legon: University of Ghana.
Ayee, J.R.A. (2000), Decentralization and Good Governance in Ghana, unpublished paper of May 2000 prepared for the Canadian High Commission, Accra, Ghana.
Blair, W. Harry, (1996) "Democracy, Equity and Common Property Resource Management in t he Indian Subcontinent" Development and Change, 27, pp.501- 527.
Cistulli, Vito (2002) “Training materials for agricultural planning. Agricultural Policy Support Service Policy Assistance”. Division Food and Agriculture Organization of the United Nations Rome
Ghana‟s Constitution 1992, chapter 20, Article 240 -256,
Godwin Ramous Kwame Egbenya 2009, the effectiveness of decentralization policy in Ghana: A
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case study of Komenda-Edina-Eguafo-Abrim (KEEA) and Abura –Asebu- Kwamankese (AAK) districts in Ghana Hussein, Mustapha K.; Decentralisation and Development: The Malawian Experience. OECD/DAC Evaluation Series.
Jaeger, R. M. (ed) (1998). Complementary methods for research in education.
Kotler and Keller (2006) Marketing Management
Nkrumah, S.A. (2000), „Decentralisation for Good Governance and Development: The Ghanaian Experience‟ in Regional Development Dialogue vol.21
Owusu L, Owusu BK, Oppong MB, Dogoli WY (2005). Local Governance and Poverty Alleviation in Africa: Lessons of Experience. The Case of Ghana. Tunis.
Oquaye, M. (2001), Government and Politics in Contemporary Ghana (1992 – 1999) – A Study (Africa Governance Institute, Accra).
Oyugi, W.O. (2000), „Decentralization for Good Governance and Development‟ in Regional Development Dialogue vol.21 no.1, pp.3-22
Powell, Ronald R. (1997) Basic Research for Librarians Pinkney, R. (1997), Democracy and Dictatorship in Ghana and Tanzania (Macmillan, Basingstoke)
Rondinelli DA (1981). “Government Decentralization in Comparative Perspective: Theory and Practice in Developing Countries” Types of Decentralization: http://www.ciesin.org/decentralization. retrieved on 06/09/09). Int. Rev. Admin. Sci. 47(2): 133 - 145.
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United States Agency for International Development (USAID) (2003), „Decentralization in Ghana: an Assessment‟ (mimeo)
VON BRAUN, J. and U. GROTE (2002), “Does Decentralization Serve the Poor?” in IMF (ed.), Fiscal Decentralization, Routledge Economics, Washington, D.C., pp. 92-119.
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KWAME NKRUMAH UNIVERSITY OF SCIENCE AND TECHNOLOGY KUMASI INSTITUTE OF DISTANCE LEARNING (CEMPA) DECENTRALIZATION A TOOL FOR GRASSROOT DEVELOPMENT A CASE STUDY OF ASUTIFI DISTRICT QUESTIONNAIRE FOR DECENTRALISED DEPARTMENT AND ASSEMBLY MEMBERS
SECTION A
PERSONAL DATA
Please tick appropriately
i. Sex [male] [female] ii. Age of respondent [i] 25 – 35 [ii] 36 – 45 [iii] 46- 55 [iv] others iii. Level of education [i]1st Degree [ii] 2nd Degree [iii] Higher National Diploma [iv] Cert A [v] Others specify...... iv. Name and location of Department/electoral area………………...... v. Position occupied……………………………………………… SECTION B ISSUES ON DECENTRALISATION 1. What is your understanding on the Concept of decentralization…………………...... …………………………………………………………………………………… …………………………………………………………………………………… …………………………………………………………………………………… ……………… 2. Please give some example of decentralisation concept ...... ……………….. …………………………………………………………………………………… …... .…………………………………………………………………………………… 3. What are some of the functions of the District Assembly? a. …………………………………………………………………………… b. …………………………………………………………………………… c. …………………………………………………………………………… d. ……………………………………………………………………………
4. Do you agree that Decentralisation concept has some advantages over centralization as follows? [Yes] [No] a) Decision making is made quickly
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b) Development resonate local content c) Freedom to generate internal funds and spend them internally
5. Name some of the decentralized departments presence at the district ……………….. …………………………………………………………………………………… …… …………………………………………………………………………………… ……………………………...... 6. How does your department‟s involvement in decision making process affect development at the district? a. ………………………………………………………………………………… … b. ………………………………………………………………………………… …. c. ………………………………………………………………………………… …. 7. How frequently does your department consult the community in terms of decision on the development of the district a. Once per month b. Once every five months c. Never d. Others specify……………………………………………………. 8. How does dissemination of information by your department done a) Public hearing b) On the notice board c) Durbar of chief and people d) Any other specify………………………….. Section C ISSUES ON DEVELOPMENT 9. Do you agree to the assertion that responsive by the Assembly means Swiftness and willingness on the part of the Assembly to solve problems uncounted by the community or people? a) Strongly agree b) Agree c) Some how d) Strongly disagree 10. How responsive is the District Assembly towards the community. a. Highly responsive b. Responsive
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c. Less responsive d. Not responsive e. Not sure 11. Do you agree to that fact that development at the district level has to do with provision and expansion of basic things of life by the Assembly to the community (education, health and shelter etc?) a) Strongly agree b) Agree c) Some how d) Strongly disagree e) Others specify……………………………….. 12. Asutifi District Assembly in it bite to initiate and implement its own development project, undergoes the following systematic process, do you agree? issue search, constructing alternatives; selecting; forecasting/projecting outcomes; analysis of policy options; policy implementation, monitoring and control a) Strongly agree b) Agree c) Some how d) Strongly disagree Others specify………………………………..
13. Does the Assembly have the capacity to ensure massive developmental projects at the grassroot level? a. High level of capacity b. Normal level of capacity c. Low level of capacity 14. What are some of the developmental activities that has come as a result of decentralisation………………………………………………………………… …. …………………………………………………………………………………… …. …………………………………………………………………………………… …… 15. What are some of the various sources of funds available to the Assembly for the development of the district a) District Assembly Common Fund (DACF) b) Internally Generated Fund (IGF) c) Member of Parliament Common Fund d) Royalties from Lands Commission
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e) Others specify………………………………………………………………… 16. How regular are these sources mentioned above? a) Highly regular b) Regular c) Less regular d) Not regular 17. How does Asutifi District Assembly mobilize resource to ensure development at the district? …………………………………………………………………………………… …………………………………………………………………………………… …………...... …………………………………………………………………………………… …….. ………………………………………………………………………………......
18. How should the resources of the district be distributed at the district to ensure development? a) Equitable b) Base on the population of the community c) On the discretion of Assembly authority d) Others specify……………………………………………………….
19. In what way has decentralisation helped in ensuring grassroot development? ………. …………………………………………………………………………………… …………………………………………………………………………………… …………………………………………………………………………………… ……………… 20. Outline some of the developmental projects embarked on by the Assembly in your community. A. ……………………………………………………………………………….. …… B. ………………………………………………………………………..……… …… C. ………………………………………………………………….…………… ……. D. ………………………………………………………….…………………… …….
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E. ……………………………………………………….……………………… …….. 21. Please give some of the disadvantages of decentralisation concept ………..……… ...... …………………………………………………………………………………… …… …………………………………………………………………………………… … 22. Please, suggest ways to improve the process of decentralisation to ensure grassroot development and participation. ……………………………………………………………………………………. .… …………………………………………………………………………………… ….. …………………………………………………………………………………… ….. …………………………………………………………………………………… ….. …………………………………………………………………………………… …..
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