18 January, 2010 Sarah Keener, Senior Social Development Specialist, AFTCS, TTL Nina Bowen, Consultant, AFTCS Participatory Budgeting and Operations CASE EXAMPLES FROM AFRICA: MADAGASCAR AND MOZAMBIQUE Team Members: Hajarivony Andriamarofara, Consultant AFTCS Natacha Lemasle, JPO, AFTCS, Andrianjaka Razafimandimby, Paul Bance, Social Development Specialist, AFTCS,, Louis Helling, Consultant, AFTUW.
Participatory Budgeting and Operations CASE 1 : MADAGASCAR
I. Case 1 - Madagascar Local Government Context Marginal move towards decentralization with new local land tax but very little collection New substantial increase in mining investment law provides % royalties directly to Local Governments [Similar to Peru] First payments in 2009. PB preceded by awareness raising with Client + CSOs via Social Accountability TA program (2007) 2008 National training seminar on social accountability techniques, including PB Weak CSO Sector, little opposition Organization Integration of PB activities across three projects in 9 localities (urban and rural, mining and non-mining) Within Antananarivo, 1 (of 7) districts selected Within that district, rotating PB among sub-district fokotany First time municipal (or for Tana sub-municipal employees) had investment funds to allocate or to manage No external investment funds
Institutional Roles Inter-Ministerial Committee to Feed Results into Decentralization Process (Chaired by Ministry of Decentralization) World Bank Social Accountability TA Program - Design, Training, Evaluate, Manual Swiss Cooperation SAHA National TA -Day to day quality control, Manual Second Governance and Institutional Development Project ($4 million SAc Component) Mining Minerals Governance Project (Community development /benefit sharing activities) Private Sector Growth Poles Project (Active in urban area)
Social Accountability National Training DURBAN Context -Timing Crisis/Change in Regime Official Launch F M A S O N D J F M A M J J A S O N D J F M A M J J PGDI RF F F 17 F PIC RF F F 3 F PGRM RF F F 6 F 1 F 2008 2009 2010
Stock-Taking June 2010: Launch rapid WB Assessment of the Process Method: Triangulation of data from mayors, communal/municipal council, citizens, NGOs. Objectives: Document process (political crisis context) Collect indicators on the process (transparency, accountability, efficiency) first step in measuring behavioral changes on a continuum of accountability, transparency, participation, empowement Reflect on lessons for scaling up Consolidate partnerships for scaling up
Stock-Taking: Conclusions Civic involvement/participation Average of 3% of citizens 18+ involved during the large meetings to set investment priorities - > Higher than Brazil at the same stage Good instances of citizen monitoring of implementation of works, but nascent, requires reinforcement in subsequent cycles Accountability Independent survey found citizens perceived they were listened to more by elected officials in PB communes*
Levels of Participation in Forums Citizens + 18 years Population Average Alakamisy Toamasina suburbaine Mandromondromotra Amboditandroroho Ambohibary Soanierana Ampasinahampoana Antananarivo V (U) Fort Dauphin (U) 1% 3% 3% 4% 6% 9% 9% 8% 8% 11% 0.00% 2.00% 4.00% 6.00% 8.00% 10.00% 12.00% 8
Quality of participation Citizen perception of whether mayors are taking their opinions into account General 17% 83% Average Without PB 11% 89% With PB 29% 71% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Yes Source : CRS, Consortium CAST-Mdev. Janvier 2010. Étude de base sur la gouvernance de l exploitation minière à Madagascar, rapport final No
Stock-Taking: Conclusions Transparency In mining communes, better knowledge among the population of expected mining revenues Increased efforts by mayors to disseminate information on budget and selected investments Public posting Public meetings Radio emissions But next phase to: Develop norms for what aspects of budget should be public Templates for non-literate audiences Training on calculating budget both for mayors and for PB monitors Explore potential use of ICT in conjunction with Report Card on PB
Transparency One year in 70% 66% % of Communes 60% 50% 40% 30% 20% 44% 55% 44% 10% 0% Posted 2009 Budget (Executed) Posted 2010 Primitive Budget Posted Bidding Documents Meetings to Report Back on Budget Execution to the Population
Transparency clarity of public postings 2/3 Readable: In Malgache, simple, large presentation 1/3 Illegible: complex, small size, obvious errors Non lisible: 1/3 (in French, 1/3
Stock-Taking: Conclusions Efficiency First time many communes were undertaking own-generated investments 63 investments constructed in one year during a crisis period Increases in own-generated tax revenues in non-mining areas But, as these are low-capacity communes in the very first cycle, next cycle to include focus on: Providing and publishing information on average cost for common infrastructure not constructed with PB Reinforcing municipal training on more traditional areas of : Supervision of public works and procurement procedures Financial management and budget nonclemature Quality of service provision Expanding this training to citizens/csos at commune level Defining role of Deconcentrated Ministries in PB planning/norms of construction and personnel
63 Infrastructures Transport 21% Security 2% Administrative Buildings/ Governance 10% Agriculture 5% Commercial 2% Cultural 3% Energy/ Electrification 2% Santé 5% Water and Sanitation 21% Education 29%
Municipal Tax Revenue Under PB Non-Mining Commune - Alakamisy 60,000,000 50,232,880 50,000,000 40,000,000 30,000,000 20,000,000 10,000,000 0 0 5,502,578 2008 2009 14,496,796 Prevision Realisation
Municipal Tax Revenue Under PB Mining Commune - Soanierana 12,000,000 11,377,964 10,802,906 10,000,000 8,000,000 Ariary 6,000,000 4,000,000 1,505,282 666,500 2,000,000 0 2008 2009 Prevision Realisation
Next Steps Ministry of Decentralization [Local Development Fund] scaling up to: 50 communes [2010] 300 communes Nationally Developing M&E System focused on expected results (5 criteria including links to behavioral changes, and taking into account cost/capacity) Independent feedback system on PB process itself to monitor quality of process [Report Card and baseline] Continued support to mining communes via Mining project
Participatory Budgeting and Operations CASE 2 : MOZAMBIQUE
II. Case 2 Maputo 2009 PB Budget Institutional Context Maputo Municipal Development Project I & II (2007 2016) 7 Districts, 63 bairros De-concentration process to Districts PB only investment fund available to local officials No local development plan below city-wide level Social and Political Context Strong influence of ruling party Few autonomous CSOs, especially at neighborhood level Few formal venues for citizen engagement Diverse settlement patterns and demographics
Municipal Assembly Municipal Council Mayor, 7 District and 12 functional Councilors Finance PB Coordination Infrastructure PB team members 10 Other Directorates District Consultative Councils 7 Municipal Districts 7 District Councilors Bairro Consultative Councils 63 Bairros 63 Bairro Secretaries
Stage Guidelines Practice 63 Bairro General Meetings Definition of Candidate Projects District Councilors, PB team, based on bairro meetings 7 District Meetings 3 priority sectors voted Election of 2 citizen delegates Project (s) identified per priority sector, per bairro Selection of District Projects Election of delegates ( 1 Bairro Secretary, 2 citizens) Delegate links to official structures Varied voting methods Representativeness? DM 2 - previous road proposal, covering several bairros DM 2 -road phased to budget limit (19%) Consensus vs voting & backroom deals 1 City PB Council (majority public officials) Final project selection, based on District proposals Final project selection, based on District proposals Municipal Council Meeting Formal approval DM 2 full road included (52%) Other budgets cut; projects reduced
Looking forward Annual to biennial cycle to reflect time required Institutional change from Budget Dept. to Strategic Planning Unit, directly accountable to Mayor Embedded in policy framework as part of deconcentration strategic plan Relationship to District and Bairro Consultative Councils? Tension between consultative (responsive planning) vs. deliberative ( democratization effects of process)
Observations for Urban Communes Required investment in communication, monitoring Mozambique: ownership and attribution challenges Mozambique: Risk of potential negative influence on participation and accountability relationships Madagascar: Ensuring information flows beyond HQ of commune (with non-literate population) Level of organization of an external constituency, level of systematization of the process Complex levels of administration in urban areas (Mozambique) but process not systematized to that level - process adherence, continuation, oversight Madagascar process focused on sub-municipal officials for urban areas, no external constituency, adaptations allowed for good ownership
Observations for Urban Communes Incentives to guide PB decisions (Mozambique) lack of deconcentration/local development plans balance of citizen vs. public official delegates quality of participation/facilitation support Bias towards larger projects (Mozambique) may discourage future participation Bias towards smaller commune-level projects in first round (Madagascar) Encourages ownership Appropriateness for cement city? (Mozambique)
Additional Reference Slides
Quality of participation Citizen perception of whether mayors are taking their opinions into account With PB Without PB Average General 17% Without PB 11% With PB Rural- Beravina 3% Rural - Andramy 4% Rural - Morafenobe 15% Rural - Manambaro Rural - Morarano 16% Rural - Andasibe 19% Rural - Beforona 15% Rural - Ambatovola 3% Urban - Moramanga 0% Rural- Ambohibary 4% Rural - Soanierana 17% Rural - Mandromondromotra Rural - Ampasinahampoina 29% 29% 41% 50% 83% 89% 97% 96% 85% 84% 81% 85% 97% 100% 96% 83% 71% 71% 59% 50% Urban - Fort Dauphin 10% 90% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% oui non Source : CRS, Consortium CAST-Mdev. Janvier 2010. Étude de base sur la gouvernance de l exploitation minière à Madagascar, rapport final
Female PB Delegates TOTAUX 186 45 Alakamisy (R) 10 5 Toamasina suburbaine (R, M) 60 11 Mandromondromotra (R,M) 6 3 Amboditandroroho (R, M) 0 Ambohibary (R, M) 24 0 Soanierana (R, M) 14 7 Ampasinahampoana (R, M) 11 4 Antananarivo V (U) 40 14 Fort Dauphin (U, M) 21 1 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Délégués hommes Délégués femmes