2001年-世界发展银行全球_The_United_Republic_of_Tanzania___Decentralisation_Sector_Work_101页_558kb

Tanzania Decentralisation Sector Work Summary

Core Content

The Tanzania Decentralisation Sector Work (DSW) is a comprehensive analysis of the decentralisation process in Tanzania, particularly focusing on the Local Government Reform Programme (LGRP). The report outlines the historical evolution of decentralisation, the institutional and fiscal structures involved, and the current state of implementation. It also provides strategic recommendations for the World Bank's involvement in the reform process.

Main Objectives

• To develop a strategic analysis of the decentralisation process in Tanzania (LGRP).
• To formulate proposals for the World Bank's orientation and involvement in the LGRP, as well as project-level responses in affected sectors.

Evolution of Decentralisation in Tanzania

• Pre-1982: A centralised system was in place, with some functions deconcentrated to regional and district levels.
• 1982–1996: The first wave of decentralisation introduced local government authorities and devolved political, financial, and administrative powers to them.
• 1997–Present: The second wave of decentralisation began, driven by the Civil Service Reform Programme (CSRP) and the establishment of the LGRP in 1999.

Structure of the Local and Intergovernmental Systems

• Intergovernmental Structure: Includes the Ministry of Regional Administration and Local Government (MRALG), Regional Secretaries (RS), and Regional Reform Coordinating Committees (RRCC).
• Local Government Structure: Comprises Local Government Authorities (LGAs), Municipal Councils (MCs), District Councils (DCs), and Ward Offices (WOs).
• Functional Roles: LGAs are responsible for primary education, health, water supply, roads, agriculture extension, and urban services.
• Staffing and HR: Central control over staffing remains strong, with limited local autonomy in appointments and promotions.

Fiscal System and Reforms

• The LGRP aims to reform the intergovernmental fiscal system by introducing block grants to reduce conditionality.
• Key reforms include:
  • Increasing the proportion of shared revenues to LGAs.
  • Improving local revenue collection.
  • Implementing the Platinum accounting system.
  • Reforming the Local Government Loans Board (LGLB).

Accountability and Capacity

• Accountability: Limited progress has been made, particularly in "upwards" accountability (financial reporting and auditing).
• Capacity Building: Mixed progress has been observed. Some systems like the Platinum system are being rolled out, but capacity in areas like human resource management remains underdeveloped.
• Local Authorities: Still have limited control over staffing and expenditures, despite some improvements in hiring practices and internal management procedures.

The Local Government Reform Programme (LGRP)

• Phases:
  • Phase 1 (2000): Focus on systemic reforms and internal restructuring in 38 LGAs. Only Step 3 (data gathering) has been completed.
  • Phase 2 (2001–2002): Expansion to 35 additional LGAs.
  • Phase 3 (2002–2004): Final phase for remaining LGAs and consolidation of reforms.
• Components:
  • Governance: Promotes transparency, accountability, and public participation.
  • Restructuring: Involves service delivery arrangements, internal reorganisation, and staffing changes.
  • Finance: Focuses on improving financial management and resource availability.
  • Human Resources: Aims to enhance local control over staffing and improve internal procedures.
  • Legal: Establishes enabling legislation for the LGRP.

Progress of the LGRP

• Systemic Reforms: Progress is slow, with limited changes in the allocation of resources and staffing autonomy.
• Local Restructuring: Most LGAs are still in early stages of restructuring, with only data gathering completed.
• Capacity Building: Some progress has been made in financial systems, but capacity in areas like human resource management is lacking.

Strategic Implications and Proposals

Bank Support and Involvement

• The Bank should support the LGRP, as recentralisation is not a viable option.
• The Bank should maintain a degree of independence due to the uncertainty of the LGRP's future.

Recommended Strategic Orientation

• Indirect and Complementary Support: Avoid joining LGRT-related structures or contributing to the Basket Fund.
• Three Areas for Support:
  1. Systemic Reforms: Assist in developing policy and institutional frameworks, especially in areas like local financial position and tax system restructuring.
  2. Local-Level Restructuring: Provide additional resources and technical expertise to support restructuring efforts in select LGAs.
  3. Capacity Building and Technical Input: Conduct detailed studies on how to effectively support capacity building and technical improvements.

Key Conclusions

• The LGRP is a well-established process with strong political commitment.
• Despite its coherence, the LGRP is in its early stages, with significant challenges in implementation and capacity building.
• The Bank is uniquely positioned to support the LGRP through dialogue, policy influence, and targeted financial instruments.

Risks and Challenges

• The gap between stated goals and actual implementation is widening.
• Reforms introduced so far are weaker than proposed, and the pace of implementation is slow.
• Capacity at local and central levels remains a critical constraint to effective decentralisation.

Appendices Overview

• Annex 1: Key legislation related to local government and decentralisation.
• Annex 2: Functions of local government in Tanzania.
• Annex 3: Structure and progress of the LGRP and LGRT.
• Annex 4: Individuals and organisations consulted during the DSW research.
• Annex 5: Documentary sources used for the DSW.