Government of the United Republic of Tanzania

United Nations Development Programme

Project number: URT/03/M05/A/MX/99
Project title: Zanzibar Local Government Reform
Estimated start date: 15/03/2003
Estimated end date: 31/12/2003
Implementing agent: Ministry of State, Regional Administration, Local Government and Special Departments (PO-RALGSD)
Project site: Zanzibar
Beneficiary countries: Zanzibar, Tanzania
UNDP unit: Governance Unit / Summary of UNDP and cost-sharing inputs
UNDP GTTF - US$160,000
Cost-sharing: -
Government: - NIL
Financial institution: - NIL
Third party: - NIL

TOTAL: - US$160,000

Classification informationDecentralisation and Local Governance / Government inputs: - Tsh 16m
In kind: Support in the form of transport, office accommodation and staff (estimated at Tsh 16m).
Brief description:
The Ministry of State, Presidents Office, Regional Administration, Local Government and Special Departments (PO-RALGSD) of the Revolutionary Government of Zanzibar will be supported to undertake analytical works and stakeholder consultations in order to refine the institutional framework for sub-national governance: the regional administrations, district administrations and local governments. The programme will lead to: (a) Local Government Reform Policy Paper, (b) draft legislation and (c) a capacity building plan for PO-RALGSD.
On behalf of: / Signature / Date / Name/Title
Government
Executing agent
UNDP

List of Contents

Part I: Situation Analysis

I.A. Problem to be addressed

I.B. Strategy

Part II: Results Framework

Part III: Management Arrangements

A. Execution and implementation

B. Co-ordination and technical Inputs

C Monitoring

D Evaluation

Part IV: Legal Context

Part V: Budget

Part I: Situation Analysis

I.A. Problem to be addressed

The public sector in Zanzibar is widely recognised in need of reform (Zanzibar Poverty Reduction Strategy). More particularly, the system of local government in Zanzibar differs on a range of accounts from the system on the mainland, which since 1998 has benefited from a national Local Government Reform Programme. Interest in local governance reforms in Zanzibar was triggered by consultations in 2002 for the African Governance Forum on Local Governance. The Tanzania Country Paper emphasised the dual system of local governance within the United Republic of Tanzania and pointed in broad terms to the local governance issues in Zanzibar (papers available at

A subsequent assessment (RGoZ and UNCDF/UNDP 2002) concluded that the present local government system is characterised by unclear and inconsistent institutional arrangements, inadequate balance between functions and resources assigned to local governments and numerous capacity issues. The same report concludes that the overall policy framework as a priority needs to be addressed before the more operational aspects of capacity building at central and local government can be addressed comprehensively. The recently completed Country and Financial Accountability Assessment and Public Expenditure Review confirmed the analysis.

The problems to be addressed by the proposed programme are foremost related to the overall institutional arrangements and include:

  1. Improper balance between functions assigned to local governments and their real empowerment in the form of finances, personnel and legal jurisdiction. Local governments have been created by legislation and given a broad mandate for service provisions. However, all key technical personnel remain within the central government line ministries. Only skeleton staff for general administration and revenue collection is under the control of district councils. Financial and other resources of the councils (in particular others than the Municipality) are widely recognised as insufficient for any meaningful role in development planning and management. There is a general agreement that local governments in Zanzibar have been introduced without a proper initial analysis of how the system most appropriately could be established.
  1. Overlapping or unclear responsibilities in legislation. There appears to be duplication in responsibilities between district and regional sector officers. In general it is acknowledged that district offices should be strengthened and regional offices reduced to focus on supervision. Numerous examples are quoted regarding overlapping responsibilities between local governments and other institutions. In areas of tax collection unclear demarcation between local governments led to conflicts. Likewise conflicts occur between local authorities and various central government institutions over a range of taxes such as trade licences, road licences, etc. Revenue sharing arrangements are thus in general in need of clarification.
  1. Responsibilities for a wide range of service functions key to local planning and management are in many cases divided between a wide range of institutions creating confusion and lack of co-ordination. Effective urban planning within the Municipality has thus been hampered by unclear and overlapping roles of the Commission for Lands and Environment, Stone Town Conservation and Development Authority, the Department of water, The Commission for Roads etc
  1. Reporting arrangements between central government staff at the districts are not conducive for horizontal coordination as staff report to headquarters rather than the local District Commissioner, Regional Commissioner or District Council.
  1. The councils are at the moment not fully elected – but partially appointed by central government. This is an indication of a wider problem of limited local accountability of the local administration to the local population. The development committees at sub-district level (Kamati ya Maendeleo) are for instance entirely appointed.

The Government of Zanzibar requests assistance to undertake necessary analytical work and consultations in order to prepare a Local Government Reform Policy and subsequent changes of legislation.

The ultimate rationale for reform of the local government reform system is to improve the living conditions of the poor. It is believed that only a democratic and cost effective system of local governance can address the problems outlined in the Zanzibar Poverty Reduction Strategy and deliver services – in particular in areas of education, health, water and agriculture in an effective and participatory manner.

It is realised that a reform of the local government system need to include a comprehensive capacity building programme: development of detailed working procedures and manuals, training of local government councillors and staff as well as upgrading offices with relevant tools and equipments. While this is beyond the presently proposed programme, it is believed that thorough analysis of basic policy options and reforms of the basic institutional arrangements is a prerequisite for later more comprehensive capacity building of the local government system.

I.B. Strategy

The RGoZ has committed itself to a comprehensive reform of its public sector and its system of governance – including the system of local governance. This is reflected in its Poverty Reduction Strategy (2002) and Vision 2020. The Government, through the Ministry of State, President’s Office, Constitutional Affairs and Good Governance, has subsequently requested UNDP for assistance to draft a Strategic Plan for Good Governance (SPGG). The SPGG is still under development, but envisaged to be completed March 2003. The SPGG provides a broad framework for reform – including reform of the local government system and makes recommendations for more advanced analysis and consultations.

The present project will spearhead those proposed analyses and consultations. It will be managed by Ministry of State (Presidents Office) for Regional Administration, Local Government and Special Departments (PO-RALGSD). The project will lead to three key outputs:

  1. Cabinet Paper on Local Government Reform Policy,
  2. Draft revisions of legal framework,
  3. Capacity Development Plan for PO-RALGSD

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Part II: Results Framework

Intended Outcome (as stated in the Country Results Framework):
SRF Outcome 5: The aim will be to ensure that capacity is in place and partnerships built at central and district levels that can coordinate and monitor the implementation of key reform programmes and sectoral policies in an efficient, transparent and participatory way, so as to ensure the effective use of resources.
Outcome Indicator
Policy and Agenda for Local Government Reforms in Zanzibar developed by in December 2003
Strategic Area of Support: SRF A3: Effective management of Local Government Reform Programme
TTF Service Line: Five: Decentralisation and Local Governance
Partnership Statement: UNDP collaborates with DfID in respond to a request from the Revolutionary Government of Zanzibar (RGoZ) to assist in a number of strategic areas including Governance. A key area for reform and later capacity building is the system of local governance. The present project will establish the overall policy framework, which will enable RGoZ to embark on comprehensive capacity building with the assistance of other partners that have expressed such interests (e.g. EC).
Project Title and number: Zanzibar Local Government Reform
Intended Outputs (2003) / Indicative Activities / Inputs
Policy Established for Local Government Reforms / Analysis of Policy Options,
Study Tour for Policy makers
Workshop for discussion of options and drafting of Policy
Printing and dissemination of policies / International and local consultants,
DSA,
Travel expenses,
Workshop expenses,
Printing costs
Legal Framework revised / Analysis of legislation and drafting legal revisions
Workshop / International and local consultants,
DSA,
Workshop expenses,
Increased capacity of RGoZ to manage LG reforms / Develop capacity development plan for Ministry of State (Presidents Office) for Regional Administration, Local Government and Government Forces (PO-RALGGF) / International and local consultants,
DSA,
Workshop expenses,
Equipments

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Part III: Management Arrangements

A. Execution and implementation

The National Execution (NEX) modality endorsed by Government remains the key mode of programme execution. Experience has shown that NEX provides the best opportunity for project support to conform to Government priorities and ensure national ownership. NEX is therefore the preferred execution modality for the larger part of the activities under this project document. UNDP implementation will be utilized only where this is considered to be the only or the most viable option and in a very limited number of outputs.

Implementing and executing agency: Ministry of State (Presidents Office) for Regional Administration, Local Government and Special Departments (PO-RALGSD)

A designated officer in the Directorate of Regional Administration and Local Government will undertake day-to-day management of the programme on behalf of the Principal Secretary. The initial analysis of the capacity of the ministry and directorate indicated constrained capacity for programme management as only one graduate officer at present is assigned the department. One graduate officer from one of the Regional and District Administration will thus be seconded to assist in the management of the programme. Office space will be provided within the existing building of PO-RALGSD.

B. Co-ordination and technical Inputs

A Steering Committee will be established at PS level to provide policy oversight. The committee will be chaired by the Principal Secretary PO-RALGSD and include:

  • Ministry of Finance and Economic Development,
  • Ministry of Good Governance and Constitutional Affairs,
  • Attorney General
  • Key sector ministries such as Health, Education and Water

A Technical Working Group (TWG) will be composed of relevant technical staff from:

  • PO-RALGSD,
  • Selected regions,
  • Selected District administration,
  • Selected Local governments,
  • Relevant representative of NGOs and CBOs,
  • Relevant research institutions,
  • Relevant retired staff and resource persons.
  • UNDP/UNCDF

The group will constitute approximately 12 persons and will advice on all technical matters in the reform. The TWG will act as a reference group to all consultancies and review all outputs from consultants as inputs to the Steering Committee.

C Monitoring

Following UNDP’s change to results based management, the country office has developed a new format for work plans. The format emphasizes achievements (benchmarks and milestones) as well as cost per output/results. This format will allow for a critical assessment of programme performance as it shows, at a glance, what activities are to take place, when, the cost for each activity the responsible agent for implementation and the expected output that will ensure achievements of the programme objectives. The prepared and approved work plan will be the main tool for monitoring implementation progress at the end of every quarter and to facilitate the preparation of the workplans for the subsequent quarters.

In addition to the normal Government monitoring activities, UNDP will have the monitoring and reporting obligation for the programme. In this connection, additional M&E missions will be undertaken by UNDP when this is judged to be required, as for example when there is a need for an intermediate assessment of progress or impact before a decision is taken as to the continuation of any given activity. This will be done in collaboration with the executing agency as well as with the implementing partners. Specific funding will be allocated for this activity within this project.

D Evaluation

The project will be subject to evaluation in accordance with the policies and procedures established for this purpose by UNDP. The organization, terms of reference (TOR) and the timing will be decided upon in consultation with all participating parties.

Part IV: Legal Context

This Project Document shall be the instrument referred to as such in Article 1 of the Standard Basic Assistance Agreement between the Government of United Republic of Tanzania and United Nations Development Programme, signed by the parties concerned on 30 May 1978.

The host country-implementing agency shall, for the purpose of the Standard Basic Assistance Agreement, refer to the Government cooperating agency described in that Agreement. As support to the implementing agency, the UNDP country office will provide support services for some of the activities of the project as identified and agreed upon by all parties, especially in the following areas:

  1. Identification and recruitment of the required personnel/experts to undertake specific activities under the project;
  2. Identification and facilitation of training services;
  3. Procurement of goods and services;

The following types of revisions may be made to this Project Document with the signature of the UNDP Resident Representative only, provided he/she is assured that the other signatories of the project document has no objection to the proposed changes:

  1. Revisions in, or addition to, any of the annexes of the project document.
  2. Revisions which do not involve significant changes in the immediate objectives, outputs, or activities of the project, but are caused by the re-arrangement of inputs already agreed upon or by cost increases due to inflation; and
  3. Mandatory annual revisions, which re-phase the delivery of, agreed project inputs, or reflect increased expert or other costs due to inflation or take into account agency expenditure flexibility.

Part V: Budget

Budget outline – to be integrated in FIM:

Indicative Activities / Inputs and preliminary estimates (US$) / Costs
  1. Analysis of Policy Options,
  2. Study Tour for Policy makers
  3. Workshop for discussion of options and drafting of Policy
  4. Printing and dissemination of policies
/ International and local consultants: 100 Man days @ 350 US$
Consultants DSA
Travel costs
Study tour DSA: 12 participants and 2 facilitators 10 days @ 150
Travel expenses: 14 persons @ 1500
Workshop expenses: 100 persons 2 days @ 50
Printing costs
Subtotal / 35,000
10,000
6,000
21,000
21,000
10,000
5,000
108,000
  1. Analysis of legislation and drafting legal revisions
  2. Workshop
/ Local consultants, 40 man days @ 250
DSA, 40 @ 100
Workshop expenses, 50 persons @ 2 days @ 50
Subtotal / 10,000
4,000
5,000
19,000
  1. Develop capacity development plan for PO-RALGSD
/ International and local consultants, 30 man days @ 350
DSA30 @ 100
Workshop expenses, 20 persons @ 4 days @ 50
Equipments (computer + printer)
Subtotal / 10,500
3,000
4,000
15,500
33,000
Total / 160,000

Government contribution to the programme is estimated to value US$15,000 and will include:

  • All relevant transport of consultants and staff on field assignments,
  • Offices accommodation,
  • Support staff to the programme

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