AN EXAMINATION ON THE OPERATIONALISATION

OF THE DECENTRALISATION SYSTEM IN GOOD

GOVERNANCE AND MANAGEMENT IN KABAROLE
DISTRICT CASE STUDY FORT-PORTAL
MUNICIPALITY

MUSANA SAMUEL

05/U6865/PS

SUPERVISOR

Mr. MUHWEZI B DEREK

A Research project submitted to Makerere University,

Faculty of Arts in partial fulfillment of the requirements
for the award of Bachelors Degree in Urban and Regional
Planning.
 DECLARATION
I, Musana Samuel declare that this is my original work and has
never been produced by anyone to any College, University or
University for any award therefore I retain the copy right.

MUSANA SAMUEL Mr. MUHWEZI B DEREK

…………………………………. ……………………………….
SIGNATURE SIGNATURE

DATE ……………………….. DATE………………………..

CANDIDATE SUPERVISOR
I dedicate this work to my caring Mum, Ms Kanyunyuzi
Christine, and My late Grandmother (RIP) Pelusi Amooti.

ACKNOWLEDGEMENT
I would like to take this opportunity to thank my Mother Ms
Kanyunyuzi Christine Amooti, Uncle Dr Paul and Mrs. Carol Mpuga,
for their guidance and support in my entire education career.
Special thanks to the entire Kagoro’s Family Uncles, Aunties thank
you for rising me up.

My special gratitude goes to my supervisor Mr. Muhwezi Derek for

his guidance and moral support though out my entire research
work.

I would like to extend my sincere regards to the entire staff of

Kabarole District Local government, Fort Portal Municipality,
Kabarole Research and Resource Centre and the local community
who provided me with information

Lastly to my course mates especially Walugembe Martin Wandera

Peter and Oguttu Moses and to all my friends and teachers thanks
for your love.

My God bless you!

ABSTRACT
The study gives critical examination on the ground operation of
the decentralization system in Uganda. Decentralization is
regarded as a policy tool aimed at improving local democracy,
accountability, efficiency as well as intra and inter district equity,
effectiveness and sustainability in provision of social services in
Uganda.

The study was aimed at examining the attempts to promote the

rule of law and human rights in Fort Portal Municipality. Further
more the research reveals how decentralization has led promotion
co- operation among civil society organizations and other partners
in development.

The researcher recommends further study to be done in order to

cover other critical areas where the study has not adequately
covered.
TABLE OF CONTENT
DECLARATION
DEDICATION
ACKNOWLEDGEMENT
1.1 BACK GROUND OF THE STUDY
1.2 STATEMENT OF THE PROBLEM
1.3.0 OBJECTIVES
1.3.1 GENERAL OBJECTIVE
1.3.2 SPECIFIC OBJECTIVES
1.3.3 RESEARCH QUESTIONS
1.4.0 STUDY AREA
1.4.1 Kabarole district
1.4.2 FORT PORTAL MUNICPALITY
1.4.3 SIGNIFICANCE OF THE STUDY
1.5.0 DEFINITIONS OF THE TERM USED.
1.5.1 Decentralization
1.5.2 Political decentralization
1.5.3 Deconcentration
1.5.4 Fiscal decentralization
1.5.5 Devolution
1.5.6 Delegation
1.5.7 Privatization
1.5.8 Governance
1.5.9 Good Governance
CHAPTER TWO
LITERATURE REVIEW
2.1.0 History of decentralization
2.1.1 Decentralization
2.1.2 Decentralization in Uganda
2.1.3 Political structure
 2.1.4 Political hierarchal
2.2.0 THE LOCAL GOVERNMENT ACT (1997)
2.2.1 THE MUNICIPAL COUNCIL
2.2.2 DECENTRALIZATION AND GOOD GOVERNANCE MANAGEMENT OF PUBLIC
AFFAIRS.
2.2.3 The principle of subsidiary of authority and resources to the
lowest planning level
2.2.4 Efficiency in the delivery of public services
2.2.5 Equitable access to decision making
2.2.6 Privatization
2.3.2 Strategies that can be adopted to promote genuine
decentralization and good urban governance.
CHAPTER THREE
METHODOLOGY
3.1.1 Research design
3.1.2 Instruments used
3.1.3 Sample selections
3.1.4 Sample size
3.1.5 Primary data source
3.1.6 Interview guide
3.1.7 Secondary data source
3.1.8 Documents used
3.1.9 Data analysis
3.2.1 Limitations of the study
3.3.1 Research procedure
CHAPTER FOUR
4.1.0 PRESENTATION AND DISCUSSION OF THE FINDINGS
4.1.2 OVER VIEW OF THE RESPONDENTS
Table 1; Summary of the Respondents
4.1.3 JUSTIFICATION OF THE SURVEY
THE ADMINISTRATIVE STRUCTURE OF FORT PORTAL MUNICIPALITY
4.2.1 The Political Administration of Fort Portal Municipality
4.2.2 Role of politicians under the decentralization system
4.2.3 ROLES OF POLITICIANS UNDER THE LOCAL GOVERNMENT ACT 1997
 4.2.4 FUCTIONS OF THE EXECUTIVE COMMITTEE;
4.2.5 Roles of Councilors
4.3.1 THE TECHINCAL STAFF OR FORT PORTAL MUNICIPALITY
The Structure of Technical Staff
4.3.2 Roles played by different departments
The table shows Departments and their functions
4.4.1 DECENTRALIZATION VERSUS GOOD GOVERNANCE IN FORT PORTAL
MUNICPALITY
The table shows the public participation to why government had to
decentralize its powers.
4.4.2 How has the government promoted decentralization process?
4.4.5 Decentralization Actalylist of Development
4.5.1 CHALLENGES FACING FORT PORTAL MUNICIPALITY
4.5.2 Corruption and Embezzlement of Public Funds
4.5.3 Political interference
4.5.4 Lack of an Effective Monitoring Mechanism
4.5.6 Out Dated and Uncoordinated Laws
4.5.7 Lack of Planning
4.5.8 Rapid Urbanization
CHAPTER FIVE
CONCLUSIONS AND RECOMENDATIONS
5.1.1Conclusions.
5.2.1 RECOMMENDATIONS
5.2.2 Recommendation for good governance
APPENDIX
6.1.1 LIST OF ABBREVIATIONS
6.1.2 REFERANCES
6.3 BUDGET ESTIMATES

CHAPTER ONE
1.1 BACK GROUND OF THE STUDY

Decentralization, good governance and management are key

indicators of development .The concept of development is beyond
that of maximizing gains in Gross National Product and indeed
beyond economic growth as a primary objective but requires
transformation in social, economic and political structures that
enables the public to help themselves to increase their
productivity, incomes and general standards of living.

Therefore, this requires policies to be fashioned to deliberately

and carefully spread the benefits of increasing public participation
in decision making. Consequently, a shift towards mobilization of
local communities and material resources accompanied by local
structures that would permit local autonomy in decision making a
primary concern especially in response to designing and
implementation of development programs .

In Uganda, the planning was not only complex to implement the

planning agenda but also inappropriate for promoting equitable
growth and self sufficiency among regions.

In Africa and East Africa in particular, a central government

planning was used as colonial tool of retaining power, disabling
Africans from running their own local affairs. Decentralization was
interpreted as away that would empower Africans to demand for
their independence.

Consequently, the post colonial era in Uganda can be best

described as 1960-1970 era of mass struggle,1971-1985 as an
era political turmoil and 1986 to date as an era of reconstruction
and strengthening of institutions even though with loopholes.

The element of decentralization was born in the 1962 constitution

just as a mere decentralization of power from the central
government to by then established federal states /kingdoms of
Busoga, Ankole, Bunyoro, Buganda and Tooro kingdoms. The
question remained, what about regions without kingdoms? The
new era of decentralization system promotes good governance
and management practices .This would discussed in the
subsequent Chapters.

1.2 STATEMENT OF THE PROBLEM

The current decentralization system was adopted as a

reconstruction strategy related to the National Resistance
Movement liberation manifesto 1980-1986.Which was to create a
local government system that encourages democracy, efficiency
in delivery of services, development oriented and a system that
promotes empowerment of communities to take charge of their
destiny though strengthening of local institutions and promoting
good governance which has met several challenges.

The study keenly focuses on Fort Portal Municipality attempts to

live to the NRM liberation agenda. Closely looking at how the local
government operates and hindrances towards the implementation
of decentralization system, such as inadequate funds, lack of
professional staff, lack of clear policies, corruption and other
issues that are raised in the research findings

1.3.0 OBJECTIVES
1.3.1 GENERAL OBJECTIVE

To examine how the decentralization system operates at local

governments.

1.3.2 SPECIFIC OBJECTIVES

1. To Indentify and describe the local government system and

structures in Fort Portal Municipality.

2. To examine the extent to which the decentralization system

has lived in the attempt to promote good governance and
management.

3. To examine the challenges of decentralization.

4. To find out and suggest possible solutions /strategies towards

fully implementation of decentralization system.

1.3.3 RESEARCH QUESTIONS

The study was guided by the following the questions.

1. How do local governments operate?

2. What are the benefits of decentralization system in Fort Portal

Municipality?

3. What challenges those local governments face under the

decentralization system?

4. What are the recommendation /solution to the challenges of

decentralization system and good governance?

1.4.0 STUDY AREA

1.4.1 Kabarole district
Kabarole district is located in the western part of Uganda and
boarders with district of Bundibugyo in the North, Kibale District in
the North East, and Kyenjonjo in the East, Kamwenge District in
the South East and Kasese District in the South.

Kabarole district attained a district status in 1974 from the great

Tooro district. Kabarole district boundaries were further redrawn
in 1998 after former counties of Kyenjonjo and Kamwenge were
elevated to district status respectively.

Presently, Kabarole District comprises of Fort Portal Municipality

Bunyangabu County and Burahya County with 13 sub counties 3
Municipal Divisions and 64 parishes.

1.4.2 FORT PORTAL MUNICPALITY

Fort Portal Municipality was founded in 1893 as a garrison for Sir

Gerald Portal as a former colonial administrative base for Western
region .Fort Portal too serves as the head quarter of Tooro
kingdom, one of the oldest monarchies in Uganda.

The Municipality lies at the foot of Rwenzori Mountain 5050 feet

above sea level and is comprised of 3 Divisions namely; East
Division, West Division and South Division with a total population
of 13,54291

1.4.3 SIGNIFICANCE OF THE STUDY

This research will serve as a contribution to the overall knowledge
and literature on decentralization, good governance and
management it is a vital reference to policy makers, Technocrats
and students with interests in decentralization and good
governance. The findings of the study go a long way in examining
how decentralization operates, community perception towards
1 UBOS 2002 CENSUS REPORT
good governance. I hope it will be recommendable contribution
to the Municipality in setting strategies and recommendations on
how to overcome decentralization challenges.

1.5.0 DEFINITIONS OF THE TERM USED.

1.5.1 Decentralization

According to Prof. Apollo Nsibambi and F.X. Lubanga (1996)

defined decentralization as

“The transfer of legal, administrative or financial and political

authority to make decisions and manage public functions from the
central government to fulfill the organization of agencies like
subordinate units of government / non governmental
organizations.”

Similarly Ronchinelli and Nellis (1986) defines decentralizations as

“An administrative perspective which refers, to the transfer of

responsibilities of planning, management, the rising and
allocation of field units of government.”

However, decentralization takes place a number of forms which

include;

1.5.2 Political decentralization

This refers to the transfer of power and authority to local

government this includes Districts, Municipalities, Divisions, Sub
counties and other Councils. At each tier, the local government
are run by democratically and popularly elected councils.
1.5.3 Deconcentration

Deconcentration means the redistribution of administrative

responsibilities only within the regional government, at one
extreme what is referred to as deconcentration is a mere shifting
of work load from the central governments to its regional
departments.

1.5.4 Fiscal decentralization

This is the empowerment of local governments to mobilize and

raise local revenue from various ranges of specific taxes. These
include property tax, trading licenses among others.

1.5.5 Devolution

Devolution refers to the transfer of resources, tasks and decision

making power to lower-level authorities which are; (a) largely or
wholly independent of the central government, and (b)
democratically elected people2.

Deconcentration and devolution may be territorial or functional.

When power is decentralised to units which are geographically
separated from the centre, eg District or Municipalities, it is
territorially given.

1.5.6 Delegation

Another form of decentralization is the delegation of decision

making and management authority for specific functions to
organizations to which authority is delegated, may not even be
located. May not even be located within the regular government
structure (Ronchinelli, 1981)

1.5.7 Privatization

This is the transfer of tasks form the government to the private

2 J.Manor, 1995, p.1

sector. In the case of decntralisation, power is transferred from
the centre to the districts, could be further transferred to the
private sector by contracting out services for effectiveness and
efficiency. For example, markets belonging to the Municipality
could be hired out to efficient private companies to run the on
behalf of the Municipality. It is argued that privatization
empowers private public partnership which has led to efficient
delivery of services. However, critics of this view argue that
private firms that take up such enterprises are normally so big so
large that it’s only passing one major power centre to another
(J.Manor, 1995 p.1).it is argue that privatization increases choice
for customers who receive services. But it is counter argued that
user charges, which often come with privatization, exclude many
poorer people and thus do not necessarily increase choice.

1.5.8 Governance

The Webster dictionary defines governance as the manner in

which power is exercised in the management of the country’s
economic and social resources for development. There,
governance is complex environment in which decisions are taken
while engaging the community

1.5.9 Good Governance

According to UN Habitat (United Nations Centre for Human

Settlements) Defines good governance as the sum of many ways
in which individuals and institutions, public and private partners,
plan and manage public affairs while involving all stakeholders.
 CHAPTER TWO
LITERATURE REVIEW

2.1.0 History of decentralization

The growth with equity policies adopted in many countries during

the 1970,s highlights many set backs of the central control over
planning and administration. New structures were indeed needed
to promote community participation, greater self sufficiency in
regional economies.
This led to the development of decentralization concept.
In Latin America, countries established regional development
co-operations to stimulate local investments and agriculture.
Many Africa countries including Uganda set up provincial, districts
and regional department.
In Asia growth of frontier regional resource management
agencies, integrated Rural Development schemes and financial
Aid programmes for district and village administrative units.

2.1.1 Decentralization
Decentralization in sub Saharan Africa largely focused on
administrative and political agencies for the government’s
operations in development.
(WEKWET 1990).

According to Cheema and Rodinella, decentralization mainly

focused on development planning and development concerns.
The main argument towards decentralization remains making
plans that are pro-people and relevant to local needs.

Lubanga (1996)laments that apart from serving as a method of

empowering people, decentralization is regarded as a policy tool
aimed at improving local democracy, accountability, efficiency as
well as intra and inter district equity, effectiveness and
sustainability in provision of social services in Uganda.
Therefore decentralization is a tool towards promoting good
governance principles which include; political social and economic
empowerment.

2.1.2 Decentralization in Uganda

Decentralization system in Uganda can be traced back from 1986
NRM 10 point programme according to the book “sowing the
Mustered seed”, it states that “NRM aims at establishing a new
local government that would be more democratic, participatory,
efficient and development oriented”.
This agenda was to be fulfilled through restructuring, policy
formulation and capacity building. Establishment of the
Resistance Council (RC) system, the National Resistance Council
(NRM) and the Constitutional Assembly (CA) were crucial in
designing the local government structure.

One of the key principle of the newly created NRM government

was to create fundamental change and not a mere change of
guards”, unite the politically fragmented Uganda, economic
reconstruction and strengthening, institutional building that were
surrounded by tribalism, nepotism politics of hatred.

2.1.3 Political structure

The first committee of RC 1987 statue consisted of nine members
that included the chairman, vice chairman, general secretary,
secretaries of women affairs, youth, defense, mobilization and
People With Disabilities (PWDS) which were elected by the
majority suffrage. Indeed this was the first massive participated
election and leadership hence stating a land mark in the
decentralization system.
However, critics, described elections as rigged and with number
of loopholes according to Prof.Momdani.

2.1.4 Political hierarchal

The old system of the resistance council was transformed into a
new conventional local government unit known as Local Council
(LCs).
The political hierarchy of local governments begins at the district /
city i.e. LC V / Mayor respectively, LC IV for Countries /
Municipalities, LC III for Sub Counties/ Divisions, LC II for
Parishes/ wards, and LC I for cells / zones.

2.2.0 THE LOCAL GOVERNMENT ACT (1997)

The local government Art section 31 stipulates the following

functions of the local government council.
“Subject to the constitution the local government council shall
within its area of jurisdiction;

a) Exercise all political and executive powers and

functions;
b) Provide services as it deems fit exception of the
 functions,
c) Powers and services listed under part two of the
second
Schedule;
d) Protect the constitution and other laws in Uganda and
promote democratic governance and;
e) Ensure the implementation and compliance to the
government policy”.
The people entrust the above powers to local councils to ensure
good governance and democratic participation in decision making
and control.

2.2.1 THE MUNICIPAL COUNCIL

The chairman of a Municipal Council is the political head of the
district. The Town Clerk is the executive head of the Municipality
The Town Clerk is charged with coordinating the various
Departments of Municipality, is the Municipal accounting officer
and an administrative arm that unites the administrative arm to
the council.
The Town Clerk acts as the chief monitor, monitoring the former
centralized departments operating at the Municipality.
For a successful decentralization, people’s views and concerns are
paramount. They should be taken with extra care entrusted in
hands of the people were a democratic representative in form of
councilors.
2.2.2 DECENTRALIZATION AND GOOD GOVERNANCE
MANAGEMENT OF PUBLIC AFFAIRS.

Decentralization allows local leaders to locate services and

facilities more effectively within communities, integrate isolated
or lagging areas into the development program.
This signifies good governance practice where by services are
brought nearer to the people despite of their political say.
The most important effect of decentralization towards good
governance and management has been noted in improving
development planning, Co-ordination of field activities,
accountability and reporting systems MISR 1997) by Prof.
A.Nsibambi.

Notably Decentralization encourages public participation in

planning, implementation and decision making process hence
increasing community ownership of the development process.

In order to clearly examine the benefits of decentralization it is

paramount to understand the principles of good governance.

Good governance principles include the following; subsidiary of

authority and resources to the lowest of point/level of
administration.
Efficiency in the delivery of public service and promoting local
economic development, transparency and accountability of
politicians and public servants. Lastly promoting sustainable
development, promotion of human rights rule of law.
2.2.3 The principle of subsidiary of authority and
resources to the lowest planning level

This principle entails three main concepts that is decentralization,

local democracy and subsides. This indicates that
decentralization promotes good governance by encouraging
election of leaders. The local government Act 1997 covers
provision that encourages democracy, public participation and
equity.

2.2.4 Efficiency in the delivery of public services

The local government Act 1997 empowers local councils to make

plans concerning their areas of jurisdictions. This has greatly had
land mark in efficient services delivery since the public needs are
integrated in the planning process.
The fact that despite of the central governments boasting
abundant staff that is planners, administrators and even funds
their plans remain sterile and just regarded as ministerial “blue
prints”
However, efficiency deliver of services can be only possible wit
strong institutions improved local revenue, clear goals and
objective participation of the masses and maximizing their
contribution as the English sayings, that “if you want to go fast go
alone and if you want to go far lets go together” Indeed going far
with delivery of services, the community must worked and
integrated fight from decision making to monitoring and
evaluation.

2.2.5 Equitable access to decision making

Men and women must participate as equals in decision making
process.
The decentralization system promotes power security, equity as
far as access to resources and control is concerned (the 30%
quota for women in local councils)
According to the Bible describes men and women as equal hence
equally responsible in development affairs.
The local government Act provides for 1/3 of the total number of
political representatives to be women. However, the number of
men in high position and council dominance is still high due to the
past stigmatization and discrimination of women in decision
making.
Decentralization has strengthened the venerable groups like
PWD’s the youth and children in decision making.
2.2.6 Privatization as a form of decentralization has promoted
the growth of the private sector and integration in management
of the public affairs, further more this has strengthened the civil
society organizations in advocacy for community concerns.

2.2.7 Sustainability.
According to Rio declaration defines sustainability development
that meets the present needs without compromising development
needs of the future generation.
From 1980’s sustainable development concept has been designed
in to link environmental issues with economic issues. Sustainable
development is seen as a way to reverse both poverty and
environment destructions.

The local agenda 21 gave the initiation of “Act locally think

globally indeed well governed and managed societies live beyond
their villages to a global village.
Sustainability supports the need to eradicate poverty by giving
poor people more access to resources.

2.2.8 Transparency and Accountability of all

decision makers and Stakeholders.
Accountability to both the community and the central government
is a good practice in governance and management of affairs
indeed many local governments have failed to leave to had main
agenda of good governance Prof. Apollo Nsibambi agues that
decentralization did not only decentralize power and governments
but also decentralized corruption.
Transparency and accountability can be achieved through audit
reports and strengthening the office of the Inspector general of
government and other institution that corruption.

It can be noted that cost sharing can be introduced this empowers

citizens to demand for accountability.
To the public service financial information not only promotes good
governance and public participation but also evaluates
performance challenges of decentralization.

2.3.1 Challenges to genuine Decentralization and

Good Governance.
It should be noted that decentralization as a policy in Uganda was
undertaken to improve on service delivery, promote democracy,
encourage public participation among others. Therefore any
challenge that stands in the way of the decentralization process
affects good governance as well. Most countries in Africa either in
the beginning or middle of a transaction to decentralized
government and have not severe consequences to proper
efficient management and administration in local councils since
roles; functions of the different authorities are not properly spelt
out.

Limited capacity to raise revenue by the local government results

into a continue dependence by the council on central
governments for revenue dependence by the financial year 2007/
2008 Kibale district had accumulated a debt of Uganda Shs. 500M
to clear various contracts.
Further more some local government like Kabongo District,
Nakaseke District has been reported to only generate less than 10
million Shillings in total revenue internally collected. This means
that the central government still has to finance all the local
authorities which is a big burden hence leading to inefficient
service delivery.

In implementation of this system of governance some ministries

were not of the view to fully give powers to local government and
this has continued to affect the progress of the decentralization
policy because such ministries do not fully separate but remain
rigid and want to do their own activities. Such a scenario hinders
transparency, luck of Co-ordination between the different sectors
this affects efficiency and effectiveness of service delivery as
local council will not know their specific roles and functions hence
this leaves certain services undelivered.

Local authorities have binding decisions affecting their areas of

jurisdiction according to the local government statute (1997),
however it has been found out that the decentralization authority
is being misused.
Local council executives have not been able to effect major
developmental changes but have connived with the sub-county
chiefs to miss-appropriate available funds for personal gains this
indicates that corruption has been decentralized to the lower
tiers.
At implementation of the decentralization system of governance
no adequate training was carried out, this leads to
unskilled/semiskilled personnel being employed in key positions
and this hinders good governance since such a staff with no
qualifications ends up. ‘Misappropriating funds personal gains.’
For example Kiira Town Council was granted a town council status
in 2006 and just appointed politicians in the area to take charge
of the council. This has resulted into conflicts between the
speaker and other conflicts.

The local government Act 1997 provides that political head of a

council shall be chairperson however; some of these elected
politicians and councilors more so in law developed countries like
Uganda are either semi-illiterate or illiterates yet their decisions
are very binding for the successful development of an area. This
has hindered the full realization of good governance qualities that
were intended.

Election of politicians by the local people is a manifestation of

good governance as it allows public participation thus promoting
democracy.
However the frequencies and loop holes in these elections erode
the intended benefits for example before the planned
development projects are implemented, another chair person and
group of councilors are voted into authority. These may be
corrupt and may never implement the previous projects claiming
that they have new plans for the people this limits good
governance. In some districts massive rigging has been reported
a case in point is Kyejonjo District whose LC elections were
nullified.

In appropriate clear system that specifies roles and functions of

the different authorities still remains a big challenge. In case of
an RDC’S, there roles are not well defined and also other council
committees are not aware of scope of their responsibilities thus
leading to conflicts and abandoning of projects.

The issue of politicians and council members “thinking” for the

community is a hindrance to decentralization governance as
these leaders suggest policies, plans without fully involving the
local people in decision making. This results into failure of
implementing development.
Project thus the public loses its trust in the leaders as its needs
are not incorporated in the plans.

The decentralized system of governance has been donor funded.

In Uganda, the EU, DANIDA has been the main donating agent
together with other NGO’s and CBOs. This is a good gesture due
to the limited resources available to meet the different services.
However there is a challenge since donor funds have strings
attached and hence not considering the communities most
pressing need. There is also an element of weak coordination of
donor support plus NGO/CBO programmes which have resulted
into cases of competition for scarce financial and human
resources, conflicting programmes and duplication of efforts.

It has been widely proven that availing employees with incentives

improves on the quality of services delivered and their
commitment. However due to the limited available resources
wages and salaries are low and this sparks off corruption,
mishandling of public funds by some selfish individuals in order to
get rich quick at the expense of the poor instead of delivering
services.
The New vision report June 16 2008 reported the Masaka LC5
boss was reported as getting fuel allowance of 3.5 Millions an
increment from 1.8 million in a month.

2.3.2 Strategies that can be adopted to promote

genuine decentralization and good urban
governance.
In decentralization system, accountability to the government for
the use of grant funds, revenue must be complemented by
accountability by service providers to the community; cost
sharing and the establishments of civil society organization with
real decision making authority hence require training as to their
appropriate role and functions. Accumulated evidence to date
suggest that requiring citizens participation as a grant
conditionality could compliment central government grant
administration in helping realize the efficient potential of
decentralization
Donald R.Winkler,1994 argues that if local councils are to be held
accountable for efficiency and effectiveness with which
government services are delivered, they must have budgetary
discretion, including the recruitment and payment of personnel,
the contracting for goods and services and the composition of
local expenditures
How ever the central government many times tends to put grant
conditionality’s and this in most cases overlooks the authority of
local councils to make useful decisions. Local officials should have
discretion to choose they directly deliver services or to contact
with private non-organizational or governmental organization for
their delivery then efficient decentralization can fully be realized
thus promoting good governance.
Regular consultation and systematic co-ordination of activities of
activities should be institutionalized so as to minimize duplication
of efforts and attain complimentary in the activities of various
stake holders serious policy coordination measures should there
fore be instituted to ensure that dispersal of service control does
not result in fragmentation of public service. Incentives should be
given /awarded based on performance so as to improve on the
quality of staff and its commitment.

Performance and locally based deals act as are placement for

accountability lines of management. Motivating staff is clearly not
going to be easy and a balance between properly planned range
of services and appropriate level of reward those providing
services must be struck.

Specialized polling can be used to discover the particular service

needs of women ,the elderly and people with disabilities,different
ethnic groups and the poor or way in which the existing parten of
services may be failing to address those needs.

Citizens should also satisfaction about their rights on the timing

and quality of services, complaints procedures, redress and
penalties in the event of non-compliance .this will help local
authorities to deliver services that are priority to people and the
public will be able to monitor the efficiency of services delivered
to the knowing their rights.
In summary former World Bank president Robert S MC Namara
noted that, if the government were serious about distributing
benefits of development more equitability “Experience shows that
there is a greater chance of success if institutions provide popular
participation, local leadership and decentralization of authority.”

In the study by UNDP 2000 report on rural development found out

of ability of communities to influence priorities of public agencies
and to obtain efficient service delivery depend on effective local
organization.

CHAPTER THREE
METHODOLOGY

This chapter presents the methodology used in data collecting,

Research, establishment of the sample Data analysis instruments
used procedures and limitations in the data collection process.

3.1.1 Research design

The research design used in the study was descriptive and
analytical whereby both quantantive and qualitative methods
were used. The study focused on the operationalisaion of
decentralization and it is attempts to promote good governance.

3.1.2 Instruments used

These instruments included questionnaire which were used for
gathering quantifiable data from respondents. Unstructured
interview guides were used to conduct interview sessions. The
researcher used other methods like observation to see interpret
observable features.

3.1.3 Sample selections

During the study purposive sampling was used in selecting key
stakeholders as far as municipal governance is concerned these
included t, the asst town clerk, Town Planner(finance),Physical
Planner ,The Registrar and 4 councilors were interviewed
consequently one division was selected and two operating NGO’s
in the municipality these were Kabarole research and resource
centre and Engabu za Tooro.

3.1.4 Sample size

The questionnaire were administered to 50 respondent out of the
targeted 70 respondents hence achieving hence hit target of over
70%.During the research the following techniques were used;
Structured interviews, focus group discussions, documentary\
review and questionnaire were used .the questionnaire’s used
were divided into two sections one for local leaders and the
targeted community respectively.
3.1.5 Primary data source
These included observation, interviews, structured and
unstructured. For example during the reconnaissance survey the
researcher identified the trend of development of fort portal town.

3.1.6 Interview guide

These were e conducted with key targeted informants who
included the town planner, asst town clerk and members of the
civil society organization.

3.1.7 Secondary data source

This involved the use of available official books, records, reports
on decentralization that were crucial guide in writing the literature
review. The above records were obtained from Kabarole Research
and Resource centre Makerere University Library and Fort Portal
Municipality.

3.1.8 Documents used

These were used in order to ascertain whether the previous
research work has a relationship with the one am carrying out.

3.1.9 Data analysis

The field notes were written and edited at the end of ever field
day this ensures accuracy and consistency. In the information
classification, tabulation and compilations were done later on
using a computer.

3.2.1 Limitations of the study

One great challenge during the research process was financial
constraints to facilitate the research.
During the field respondents failed to honor there appointments
either due to fixed work schedules or underrating the relevancy
and significance of the student research

Lack of awareness to issues pertaining local administration,

service delivery by the community.

In general reception by the local administration greatly affected

the proceedings other research process the researcher reminded
local authorities that the research findings would later be
presented to them

3.3.1 Research procedure

This section stipulates how the research was carried out in these
the researcher prepared research proposal that guided the
researcher in conducting the study. The proposal was presented
to my supervisor and later approved.

The research obtained an introduction letter from the department

of geography that was usefully in explaining were interest during
the field to different persons.

The research conducted a reconnaissance survey in order to get

acquitted with the field, indentifying key respondents and making
appointments.

Data collecting process lasted for a period of two weeks and later
analyzed the using a computer the final draft was finally compiled
proof read and presented to the supervisor for approval.

CHAPTER FOUR

4.1.0 PRESENTATION AND DISCUSSION OF THE FINDINGS

This chapter presents the findings of study which were critically
analyzed. It presents different methodical approaches that were
used in the process of gathering data.

The characteristics of the respondents are also presented in this

chapter. The different reaction and quotations are also presented.

4.1.2 OVER VIEW OF THE RESPONDENTS

The analysis below shows the key respondents during the

research study. The biggest numbers of respondents were from
the local community making a total response of 48%.civil society
and local authorities contributed 20% each respectively were as
councilors only contributed 12%.study the table below

Table 1; Summary of the Respondents

Category of Targete Respons %age No

Respondents d e Respons Respons
Received e e

Local Authorities 20 10 20% 10

Councilors 10 6 12% 4
Civil Society 15 10 20% 5
NGOS/CBOS
Community 25 24 48% 1
TOTAL 70 50 100% 20
source ;Field Survey

4.1.3 JUSTIFICATION OF THE SURVEY

The highest turn was registered among the local community

because there are ready available and easy to reach. Councilors
registered the least response because there are part
timers at the Municipality. Where as Municipal Authorities and
Civil Society members had a tie of 20% there were busy with both
field and office commitments.

THE ADMINISTRATIVE STRUCTURE OF FORT PORTAL

MUNICIPALITY

Fig 1;
Mayor

Deputy Mayor Town Clerk

SPEAKER
Deputy Town Clerk

Executive
members Heads of
Departments

Source; Field Survey

4.2.1 The Political Administration of Fort Portal

Municipality
The municipality is headed by the Mayor who is the overall
administrator of the municipal council .fort portal municipal
council has a total number of 26 councilors.

According to section 9(1) of the local government act 1997 “A

council is the highest political authority within the area of
jurisdiction of a local government and has legislative and
executive powers to be exercised in accordance with the
constitution. However the act agues the divisions (Local Council
3) team up with the municipality in matters of planning and policy
formulation. 70% of the respondents at the municipality
recognized the fact that they have got good working relation ship
with their counter parts at the divisions. This was attributed to the
regularly meetings held at least every month at the Municipality
level where different issues are raised and solutions are also
drawn.

The study established that Local Council One and Two still exist
despite there term office being expired. These administrative
units are mainly involved judicial matters and at times solve land
disputes.” Despite there crucial role in ensuring law and order
these administrative units are operate illegally and ore seen as an
establishment of the ruling party to extent its political
administration to the grass root “.one member of the civil society
organization lamented.

4.2.2 Role of politicians under the

decentralization system
In the survey conducted among the councilors 70% confirmed
that their major role as community representatives is to present
community views to the council.55% confirmed that their role is
to contribute to the decision and policy making process. Whereas
24% revealed that their role is to monitor and evaluate
technocrats
The graph below shows as summery of the role of
politicians
Fig. 2
dhgt25165772
8fLayoutInCell1
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Source; Field Survey
4.2.3 ROLES OF POLITICIANS UNDER THE LOCAL
GOVERNMENT ACT 1997

Section 17 and 26 of the LGA 1997 provide that an executive

committee that works with the chair person shall consist of the
Chair person, Vice chair person and Committee secretaries not
exceeding five as the council may determine

4.2.4 FUCTIONS OF THE EXECUTIVE COMMITTEE;

Initiate and formulate polices for council approval.

 Monitor the implementation of government programs where

liaising with the private sector like NGOs and CBOs.

 Receive and solve disputes such as land matters that are

forwarded by lower councils.

 Carry any other duty as may be authorized by the council

 Conduct appraisal at every end of financial year in order to

evaluate performance

Note the cardinal function of the executive committee is to

determine the sense of direction of the council is the principle
legislative body in the area of jurisdiction

4.2.5 Roles of Councilors

 To represent peoples’ needs to the council.

 To mobilize the community and resources in order to achieve

development.

 Councilors are obliged to promote the democracy and rule

law.

 Councilors act as chain link between the local government

and the local community.
 4.3.1 THE
TECHINCAL STAFF OR FORT PORTAL
MUNICIPALITY

The ultimate goal Fort Portal Municipality is to “To provide quality

services, focus on local and national priorities of the residents so
as to improve their welfare”

How ever this can only be realized if only technical staff as well
the politicians of Fort Portal Municipality committed and
competent enough to serve the community needs.

During the survey the research established that Fort Portal

Municipality consists of eight departments headed by the Town
Clerk. Subsequently these departments similar working partners
at the divisions in order to ensure consistent service deliver

The Structure of Technical Staff

Fig 3
4.3.2 Roles played by different departments
As discussed earlier in the literature review that one clear
principle of competent staff is ability clearly define there roles and
obligations this enhances competency and avoids clashes.

Table3;The table shows Departments and their functions

DEPT HEAD FUCTIONS
Administratio Town Clerk General administration, staff
n welfare, supervision and
implementation
Physical Physical Overall land matters building
planning Planner control,

Engineering Municipal Supervision of all engineering works

Engineer in the municipality

Audit Internal Checking and balancing all books

Senior of Accounts at the Municipality
Auditor
Public Health Medical Inspection of all Heath Services
personnel under the municipality, vector
control inspection of abattoirs
Education and Municipal Supervise all schools both Primary
sports Education and Secondary
Officer
Environment Environmen Coordinate and supervise
t Officer Environmental management issues
in the municipality
Source; Field Survey

During the research 75% of the technocrats confirmed that there

is a good team play between staff and good coordination between
departments this has ensured good service delivery. How ever
40% agreed to the factor that there is still poor information flow
attributing this to lack information technology like computers and
internet facilities.

The Technical staffs who were interviewed revealed that there is

still shortage of office space and the poor sanitation at the
municipal head quarters since the building is nearly condemned
due to the 1994 earthquake . How ever by the time the research
was conducted the municipality had finalized with the ground
breaking stage of their proposed Ug Sh 2Billion Office complex.

In order to evaluate staff performance monthly reports were

introduced in order to ensure performance

4.4.1 DECENTRALIZATION VERSUS GOOD GOVERNANCE

IN FORT PORTAL MUNICPALITY

In the previous notes the cardinal aim of the decentralization

policy was to promote good governance, ensure public
participation transparency enhance accountability and promote
good service delivery. The findings below will reveal the public
perception about decentralization in the municipality, evaluating
its success and failures the survey was conducted among the
politicians and the local community.

The table shows the public participation to why

government had to decentralize its powers.
Table 4
Aims %age
response
Bring services closer to the people. 60%
Promote accountability. 55%
Donor pressure under structure adjustment.(SAPs) 23%
Ensure equitable development 50%
Reduce beauracry 10%

During the study the researcher established that Fort Portal

municipality continues to have strong support to the NRM
government attributing this to the 60% of the respondents
believing that bring services closer to the people was the ultimate
goal the government.

While 23% attributed to fact that the government was only

succumbing to donor pressure.

4.4.2 How has the government promoted

decentralization process?

 By providing financial support to local governments both

Conditional and Unconditional grants.

 In acting laws policies and Laws

 Provision services like building of schools, health centers,

roads.

4.4.5 Decentralization Actalylist of Development

In the 80% of the respondents confirmed that fort portal
municipality enjoys a special privilege in terms of services
delivery like roads schools and health facilities among others .fort
portal Municipality is linked by 3 Tarmacked roads namely; Fort
portal -Kasese road, Fort portal- Mubende high way, Fortpotal-
Bundibugyo road which are under construction.

Further more the study reveled that fort portal is among the fast
growing towns in Uganda for example the town is a home for two
registered universities that is Mountains of the Moon University
and Uganda Pentecostal University.

In health services the municipality has as regional referral

hospital, two private hospitals, at least five health centers,
several registered private clinics.

Commercial activities and developments the civil society

appreciated the fact that fort portal is a regional destination for
tourists with several good Hotels

Education further more two secondary schools were selected to

by the government to centers of excellence in the whole western
this has been appreciates towards good governance.

Further more fort portal municipality is earmarked to be

beneficiary 20 industrial parks that will be distributed around the
country.

In the attempt to promote the rule of law and human rights the
municipality ensures it promotes co operation among security
agents together with civil society organizations in the region.

4.5.1 CHALLENGES FACING FORT PORTAL MUNICIPALITY

Despite of the enormous benefits that have a been realized under

the decentralization system a lot of challenges also have been
encountered as follows;

Lack of funds to facilitate the smooth running of services as

discussed earlier fort portal is not an isolated case as far financial
constrains is concerned 90% percent of politician attributed this
to the abolition of graduated tax with out timely tax
compensation .the Financial Planner confirmed that even though
tax compensation scheme was introduced the money is not timely
received by the local governments.

He also blamed the fact that the new introduced taxes have failed
to be collected due to lack of awareness.

4.5.2 Corruption and Embezzlement of Public

Funds
As noted in the literature review that decentralization literally
meant decentralizing corruption fort portal is not an exceptional
case. Of the respondents.55% from the community confirmed
that in order to get any service from the Municipality you need to
offer a bribe sighting the Law Enforcement Department and
Physical Planning Departments as the most ineffective
departments in the Municipality.

4.5.3 Political interference

The study reveals that many projects have failed to take off due
to political interference. The councilors confirmed that municipal
authorities are some times frustrated by political interests among
the politicians in the municipality for example the proposal to sell
off the Community Hall plot in order raise money to construct new
municipal headquarters.

4.5.4 Lack of an Effective Monitoring Mechanism

12.5 % of the councilors noted that the municipality lucks an
effective monitoring mechanism to evaluate technocrats.
Advocating for a policy that will empower politicians to evaluate
technocrats

4.5.6 Out Dated and Uncoordinated Laws

These have in most cases led to conflicts for example land
wrangles between national forest authority and Mpanga
secondary school that had to be intervened by parliament. Other
laws that need to be urgently amended include the Town and
Country Planning Act that was in enacted in1964

4.5.7 Lack of Planning

The research established that Fort Portal town is a fairly colonial
old planned town. How the biggest challenge is the upcoming
satellite trading centers like Hakatoma, Kitumba, Kachwamba and
Harubaho which are first growing centers.

4.5.8 Rapid Urbanization

As earlier noted that Fort Portal is increasingly becoming the
regional town this has attracted several business as well
increased population. Despite of increased population other
services like shelter, water services have remained constantly.
This underrates attempts efforts to promote good governance.

CHAPTER FIVE
CONCLUSIONS AND RECOMENDATIONS

5.1.1Conclusions.

The study findings reveal the appreciation of the benefits that

have come with decentralization system. As one politician quoted
say “that indeed we are solely responsible for our destination” the
survey establishes more touchable results like enhance
accountability improved service delivery. Increased citizenry
participation actively involved in decision making, holding leaders
accountable.

How ever the central government still holds a major responsibility

to supervise all local governments, provide timely funding as well
amending out dated laws if the benefits of decentralization are to
be realized.

Promoting a strong civil society will go along way in holding

politicians more responsive and accountable to the electorates.
As well promoting the role of the media in evaluating checks and
balance of local governments

5.2.1 RECOMMENDATIONS

The study suggests a number of suggestions and interventions

that can be made to promote good governance as well as
realizing purpose of decentralization.

Further more the study revealed that they is lack of community

sensitization a great number of respondents were not aware of
the roles of there leaders.
The pie chart respondent’s suggestions towards
good governance in percentages Fig.3

According to the study, technocrats suggests that the roles and

duties of politicians should be clarified since councilors claimed
that the have a role to evaluate the technical staff. Furthermore
technocrats should beheld more accountable by writing monthly
appraisals since during the research a great number of them were
not in the office claiming their gone to the field.

In order to keep leaders held more accountable the civil society

organizations recommend that leaders should sign performance
contracts

Encourage partnerships between local governments and

development agents since donors have both the finances and the
technical capacity to promote local govern such innovation have
promoted physical planning in districts of Lira and Busia where
the urban authorities have partnered with DED(a German
International Development Organization)
5.2.2 Recommendation for good governance
In the attempt for developing countries to achieve Millennium
Development Goals by the year 2015.its absolutely ultimate to
promote values of good governance as the former UN Secretary
General Kofi Annan states that, “Good governance perhaps the
single most important factor in eradicating poverty and
promoting”.

Introduction of reform programs like the Joint Annual Review on

Decentralisation, Strength the office of the IGG, the role of the
public accounts committee are ideally essential but more
important if these bodies are enabled to perform their duties
without political interference.
 APPENDIX
6.1.1 LIST OF ABBREVIATIONS

EU European Union

CA Constitution Assembly

CBO’S Community Based Organizations

DANIDA Danish Aid for International Development

LCs Local Councils

LGA local Governments Act

LGDP Local Government Development Fund

LLG Lower Local Governments

MOLG Ministry of Local Government

NRA National Resistance Movement

NRC National Resistance Council

PWDs People With Disabilities

RDCs Resident District Commissioner

NGOS Non Government Organizations

WB World Bank

UNDP United Nations Development Program

6.1.2 REFERANCES

A.Nsibambi Ed (1997) Decentralisation and civil society in Uganda

the Quest.

Antonio Estance (1995),Decentralisation

infrastructure,advantages and invitatitions World Bank discussion
papers (290) Washington DC World Bank.

M.O.L.G Decentralisation and local Governace in Uganda

Development Planning for Local Government s

GOU (1995) Constitution of Republic of Uganda

GOU (1997) Local Government ACT

GOU 200 Harmonized Participatory Planning guide of Local

Governments.

MFDPED 2002 Poverty Eradication Action Plan (PEAP)

M.O.L.G The internal management of local governments

Cheema G Shebir and Ronedineli 1983, Decentralisation and

Development, Policy Implementation in the developing countries.
London publications.

Decentralisation and power shift. An imperative for good

governance. A source book on decentralization and federalism
experience Vol 1(ii)
6.3 Table 5 BUDGET ESTIMATES
Table 5
ITEMS QUANTITY TOTAL COST
STATIONARY

Duplicating paper 1 Ream 10,000/

Pen and Pencils 1 Dozen 2000/

Secretarial Services

-Typing Setting 60 Pages @500 35,000/

-Binding 3 copies @ 10000 30,000/

-Internet Max 5hrs 10,000/

Transport to Tort
Portal
2 Trips 50,000/
Personal items

Air time 20,000/

Consultations 40,000/

Research assistant 10,000/

TOTAL 207,000/