Good Governance in Africa A C7sm StlUh/ froni...

f'd Economic Development Institute / 7of The World Bank

Good Governance in AfricaA C7sm StlUh/ froni UIC<aoda

Petter LangsetlDarniani KatoMohaminiad Kisubi

Jeremy Pope

EDI WORKING PAPERSREGULATORY REFORM AND PRIVATE ENTERPRISE DIVISION

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Good Governance in AfricaA Case Study from Uganda

Petter LangsethDamian Kato

Mohammad KisubiJeremy Pope

Attempts in the developed world to reinvent government along the lines of the privatesector-treating the public as custormers by tailoring services directly to their needsand expectations-have emerged as one of the most powerful concepts of the decade.A necessary ingredient in this result-oriented approach is a focus on integrity. Thepublic (customer/consumer) is perceived as the raison d'etre for government, and thepublic view of the government processes are necessarily influenced by the degree towhich these processes are-or are not-corrupt, and thus unfair and inefficient. Butthe integrity elements also feed into the efficiency and effectiveness of the entireprocess. Leadership and the simplification and demystification of government areintegral to the attainment of this goal.This paper is comprised of three sections, demonstrating the creative partnership thatcan and should be developed between a government, civil society, and (whereappropriate) a development agency. The sections focus on: a) capacity building withresult orientation and integrity; b) containing corruption and building integrity; andc) enhancing and sustaining a result orientation within the public service.

Economic Development Instituteof The World Bank

Copyright © 1997The International Bank for Reconstructionand Development/The World Bank1818 H Street, N.W.Washington, D.C. 20433, U.S.A.

The World Bank enjoys copyright under protocol 2 of the Universal Copyright Convention. Thismaterial may nonetheless be copied for research, educational, or scholarly purposes only in themember countries of The World Bank. Material in this series is subject to revision. The findings,interpretations, and conclusions expressed in this document are entirely those of the author(s) andshould not be attributed in any manner to the World Bank, to its affiliated organizations, or themembers of its Board of Executive Directors or the countries they represent.

EDI Document Number: 400/145, Shelf Number: E1979

EDIWorking Papers areintended to provide an informal means for thepreliminary disseminationof ideas with the World Bank and among EDI's partner institutions and others interested indevelopment issues.

Thebacklistof EDI trainingmaterials and publications is shown in the annual CatalogofLearningResources which is available from:.

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iii

Contents

Foreword ...... ....................................................... v

Executive Summary ............................................................. vii

District Capacity-Building with Results Orientation and Integrity in Mind:The Experience of Uganda ............................................................. 1

MohammadA. M. Kisubi, European Development Fund/Government of Uganda

Decentralization with a Focus on Results Orientation and Citizen Empowerment ............. ................ 1Positive Outcomes in the Decentralization Reform Process ......................................................... 2The Challenge Ahead ............................................................. 5

Corruption and Integrity in the Reforms and Decentralization .......................................................... 5The Challenge for the Civil Society .............................................................. 7

Transparency Uganda: A Citizens' Anti-Corruption Organization ...................................................... 8

Containing Corruption and Building Integrity: The Contributions of Civil Society ................. 11Damian Kato, Secretary to the Inspectorate of GovernmentJeremy Pope, Transparency International

Introduction ............................................................. 11

What Is Corruption? ............................................................. 11

Causes of Corruption and the Fight against It? ........................ ..................................... 12

Factors Responsible for the Success of Civil Society Measures against Corruption ............ ................ 13

The Role of Civil Society ............................................................. 13

Ugandan Civil Society Institutions Contributing to CorruptionContainment and Integrity-Building ............................................................. 16

Political Leaders ............................................................. 16Legislature and Parliament ............................................................. 17Constituent Assembly ............................................................. 17Inspectorate of Government (Ombudsman) ........................... .................................. 18Non-Governmental Organizations (NGOs) ............................................................. 19The Press and Public Opinion ............................................................. 19

Some Lessons from the Past ............................................................. 20

An Overall Strategy ................................................................. 21Prevention (Reducing Opportunities for Corruption) ............................................................... 21

Detection of Corruption and the Enforcement of Punishments ....................................................... 22Public Awareness .................................................................. 23Institution Building ................................................................. 23

Next Steps ................................................................. 24

Conclusion ................................................................. 25

Enhancing and Sustaining a Results Orientation: Experience from Uganda .............................. 27Petter Langseth, Economic Development Institute

Meeting the Goals of Civil Service Reform ................................................................. 27

The Governance and Public Sector Management Program ............................................................... 27

The Service Delivery Survey (SDS) .................................................................. 30Focus on the Customer .................................................................. 31

Experience from Uganda ................................................................. 33Design of an SDS Pilot .................................................................. 34Implementation Process ................................................................. 34Design of Instruments ................................................................. 35Initial Results ................................................................. 35Areas for Improvement .................................................................. 36

Condusion: Using Decentralization and Popular Participation to Sustain Reform Efforts ....... 37Petter Langseth, Economic Development Institute

Annex 1: Summary of National Integrity Activities and Events in FY97 ..................................... 43

Endnotes ................................................................. 45

References ................................................................. 47

About the Authors ................................................................. 49

FiguresFigure 1: The Pillars of Integrity ................................................................. 14Figure 2: Capacity Building and the Involvement of Civil Society

in Improving Service Delivery to the Public ................................................................. 28

BoxesBox 1: The GPSM Program ................................................................. 30Box 2: What Do Service Delivery Surveys Look Like? ............................................................... 31Box 3: CIETinternational's Contributions to SDS ................................................................. 32

Foreword

As part of its Governance program, the Regula- Petter Langseth is a Senior Public Manage-tory Reform and Private Enterprise Division of ment Specialist at the World Bank. Mohammadthe Economic Development Institute (EDIRP) Kisubi is a human resource expert with experi-has facilitated a series of anti-corruption work- ence from the Ugandan Ministry of Public Ser-shops, seminars, and surveys in Uganda, Tanza- vice and the Ministry of Local Governments. Henia, and Jordan. Participants in these workshops has been influential in the planning and imple-have included top public administrators, repre- mentation of the Uganda Civil Service Reformsentatives of international and bilateral donors, Program. Damian Kato is the Secretary to thejournalists, and civil society, all collaborating in Inspector General of Government and EDI'sthe fight against malfeasance. Workshop partici- partner in helping the Government of Uganda topants outlined innovative ways to increase trans- develop a National Integrity System. Jeremyparency and accountability, and reported the Pope is Executive Director of Transparency Inter-progress of more traditional reform activities in national. The authors would like to acknowledgecivil service, budgeting, and financial manage- the contributions of Alex Muganda, Damianment. An earlier paper draws on the experience Kato, and Augustine Ruzindana to this paper.of these activities and proposes a "national integ- The Division would also like to acknowledge therity system" as a comprehensive method of fight- assistance of Fiona Simpkins, Valeria Kallab, anding corruption. Another paper, "National Integ- James E. Quigley in production. The views ex-rity System Country Studies," presented two pressed herein are entirely those of the authorscountry examples of where the strengthening of and do not necessarily reflect the views of thesuch systems is being assisted by EDI. Economic Development Institute or the World

This paper examines the broader issue of Bank.governance that includes capacity building, in-tegrity, and the focus on public sector service de- Danny Leipzigerlivery and results. The holistic approach is being Division Chief

Regulatory Reform and Private Enterprise Divisionapplied to Uganda and the paper was written by Economic Development Institute

two Ugandans and two expatriates.

v

Executive Summary

Attempts in the developed world to "reinvent" integrity as the matrix for effective service deliv-government along the lines of the private sec- ery. Each section of the paper addresses one oftor-treating the public as customers by tailoring the three points of the matrix.services directly to their needs and expecta-tions-have emerged as one of the most power- Capacity-Building with Result-Orientationful concepts of the decade. A necessary ingredi- and Integrity in Mind: The Experience ofent in this result-oriented approach is a focus on Ugandaintegrity. The public (customer/consumer) is per- Mohammad Kisubi, Ministry of Public Service,ceived as the raison d'etre for government, and Ugandathe public view of the government processes are Uganda is the trail-blazer in Africa in govern-necessarily influenced by the degree to which ment reform, attacking corruption, and focusingthese processes are-or are not-corrupt, and on service delivery and results orientation. Thethus unfair and inefficient. But the integrity ele- Government of Uganda developed its approachments also feed into the efficiency and effective- in an holistic fashion relying on decentralizationness of the entire process. Leadership and the and the transfer of decision-making as close assimplification and demystification of govern- possible to those affected. This approach hasment are integral to the attainment of this goal. been an integral part of the defusion centralized

This paper is comprised of three sections, corruption and enhancing results orientation.demonstrating the creative partnership that can The civil service is currently being transformedand should be developed between a government, into a "public" service whose purpose derivescivil society, and (where appropriate) a develop- from public needs and whose effectiveness isment agency. It takes as its starting point the ap- measured by the impact of this approach on theproach diagrammed in Figure 2, which points to service delivery outputs and outcomes.an amalgam of capacity, results orientation, and

viii

Containing Corruption and Building can often empower the general population byIntegrity: The Contributions of Civil Society enabling it to judge the quality of services that itDamian Kato, Inspector General of Government, receives from particular key sectors of govern-Uganda and Jeremy Pope, Managing Director of ment activity. The underlying assumption is thatTransparency International. the opinions of citizens matter and that theyCorruption diverts decision-making and the pro- should be regarded as customers in thevision of services from those who need them to government's delivery of services. The ultimatethose who can afford them. It has a negative im- goal of an SDS is to improve service delivery topact on results, and therefore its containment is a the public by producing information to be usedcentral theme in developing a result-oriented cul- in setting a baseline of existing service delivery,ture. designing a better reform program, and improv-

Corruption has been an intractable problem ing service delivery management.in many countries, especially where it has be- The success of public sector reform pro-come systemic to the point where many, perhaps grams has generally been limited where govern-most, in government service have a stake in its ments have not developed several tools essentialcontinuance. Transparency International (TI), a to success:non-governmental organization, has been work- * An accurate picture of pre-reform serviceing with a number of governments worldwide delivery(including the Government of Uganda) to de- * A mechanism to measure the impact ofvelop strategies to contain corruption, particu- reforms in terms of improving service de-larly with the involvement of civil society. TI's liverynational chapter in Uganda has been an active * The means to instill a customer orienta-participant on the country's national integrity tion within the organization undergoingcommittee-an institution (believed to be unique) reformthat brings together all the stakeholders in the * A dialogue between citizens and govern-process of containing corruption, which includes ment on expectations and preferences ofenforcement, prevention, public awareness rais- citizens regarding service delivery, anding, and capacity building. . An accountability mechanism for efficient,

This section also discusses the role of com- effective and equitable public spending.bating corruption in improving service deliveryto the public against the background of practicalexperience gained in Uganda and elsewhere.

Enhancing and Sustaining a ResultsOrientation: Experience from UgandaPetter Langseth, Senior Public Sector ManagementSpecialist, EDI, World BankThe Economic Development Institute of theWorld Bank (EDI) has been active in the promo-tion and introduction of the concept of resultsorientation through the institution of ServiceDelivery Surveys (SDS). The introduction of this

District Capacity-Building withResults Orientation and Integrity inMind: The Experience of Uganda

MohammadA. M. KisubiEuropean Development Fund/Government of Uganda

Uganda is the trend-setter in Africa in the pro- ministries were reduced from 35 to 21, and thecess of reforming government, attacking corrup- management of government parastatals has beention, and focusing on service delivery and results either divested, or privatized or commercialized.orientation. This section discusses how the Gov- This has streamlined procedures and reducedernment of Uganda developed its approach, bureaucratic red tape-resulting in greater effi-which has been integral to the process of defus- ciency and effectiveness. The government main-ing centralized corruption and enhancing results tains those functions that it could afford basedorientation. The civil service is currently being on result-oriented management and value fortransformed into a "public" service, through de- money. The rest were divested to the private sec-centralization, whose purpose derives from the tor, marking a change whereby most Ugandansneeds of the public being served and whose effec- looked to the public sector as the main employer.tiveness is measured by the impact of this ap- More and more private enterprises are springingproach on the service delivery outputs and out- up-creating more employment opportunitiescomes. and increased competition for better quality.

Since 1993, Uganda has also embarked onDecentralization with a Focus on Results another reform process of decentralization whichOrientation and Citizen Empowerment invests districts with new mandates, resources,In 1992, Uganda embarked on a comprehensive and responsibilities for the management, admin-Civil Service Reform program that reviewed and istration, and provision of such fundamental ser-rationalized government ministries and depart- vices as education, health, water, and roads.ments, in structures and number of staff as well Through the passage of the Local Governmentas functions. This process culminated in a reduc- Statute and the new Constitution, Uganda hastion of staff from 320,000 in 1992 to well below dramatically changed the framework within140,000 by December 1994. The government which local governments operate.

2 Good Governance in Africa: A Case Study from Uganda

Districts have now more power, resources, panded the range of possibilities open to districtsresponsibilities, and decision-making autonomy and have provided a basis for sustaining localthan under the previous centralized system. government capacity over time.Their performance will thus be increasingly im-portant for growth, poverty alleviation, and long- MOBILIZATION AND UTILIZATION OF RE-

term development prospects. Thirty-nine decen- SOURCES. Since the beginning of decentralization,tralized districts and their municipalities are busy districts have experienced a sharp increase intrying to develop capabilities to perform the new available resources. They now have the impetusduties effectively. As a result, a natural concern to raise more and more local resources-as theyhas emerged within Uganda about the capacity retain most of the resources at the different col-of local governments and the appropriate means lection points. Some of the districts have madeof strengthening it. significant efforts to mobilize local resources as

evidenced by the expansion of service coveragePositive Outcomes in the Decentralization and quality. This is very promising since the dis-Reform Process tricts are now in a better position to undertake

and sustain local development initiatives. ThereLocAL GOVERNANCE AND POLITICAL RE- is also a five-year capacity-building plan to en-

FORMS. The political environment within which sure that the districts are assisted with acquiringlocal governments operate has changed experi- the necessary qualified and experienced person-enced significantly.A reduction in the central nel, logistics and equipment, and systems to en-government presence and an introduction of the sure successful implementation of the decentrali-local council system right from the village level zation process.has introduced more transparent and fair elec-toral practices. These, in turn, have enhanced the ACTIVE COMMUNITY PARTICIPATION AND Di-legitimacy of the leadership role of District Local RECT INVOLVEMENT. Community participation isCouncil Chairpersons in the public's eye and forcing local government accountability. At thehave made the position of District Local Council same time, it is broadening the resources that theChairman more attractive and competitive. An district administration can draw upon to im-important result has been renovation in district prove its capacity. Decentralization has been wel-leadership. Formerly, District Managers were comed by most Ugandans, who nostalgically"outsiders" posted by the central government. longed for the good old days of the 1960s, whenNow, with decentralization, district political life everyone participated in jobs like maintaininghas become clearly more local in nature, increas- feeder roads, digging wells and protectinging demands that the new leaders be responsive springs, and so forth-not for pay but forto their communities. "Bulungi Bwansi" (that is, for the good of my

Experience at the local district scene indi- country). On days when a representative of thecates that competition for political office has village chief sounded a drum, everyone as-opened the doors to responsible, more transpar- sembled to undertake the specified activity in aent, more accountable and more innovative local communal manner.leadership in many cases. This in turn has be- The centralization of power led to an aban-come the driving force behind capacity-building donment of self-help in exchange for depen-efforts. More widespread community participa- dency on central government services, includingtion and growing civic involvement have ex- employment of people for road construction.

Good Governance in Africa: A Case Study from Uganda 3

Over time, dependency on higher authorities has tions are forcing local government to make deci-risen-hence the feeling of helplessness. sions and take action in favor of the citizens.

The "Bulungi Bwansi" tradition is being re- Community voice is proving to be a way of en-vived by decentralization. This is one of the im- hancing local government capacity.mediate success stories of decentralization. Thepublic realize that they can take the initiative ENSURING SUSTAINABLE CAPAcITY DEVELOP-

rather than wait for central government to pro- MENT. A majority of the local governments arevide services and infrastructure. Increased aware- focusing on areas such as staff skills andness that the central government cannot provide professionalization, equipment, materials, andeverything has prompted discussions to identify buildings, organization, and planning and execu-appropriate central government activities and tion functions by drawing upon the existingcommunity or individual ones. This has created public sector or community that were not fullya sense of responsibility and an opportunity to utilized under the old system. Efforts have begunrejuvenate the "Bulungi Bwansi" tradition of to upgrade the skills of local government staffcommunal work. through new hiring and training, increased avail-

Given the impetus and encouragement from ability of equipment (for example contractingcentral government, decentralization can be one out to the private sector), and improved localway of fighting and eradicating poverty of the administration procedures (for example, involv-rural poor, who make up over 90 percent of ing users in decision-making). This shows thatUganda's population. This is what decentraliza- decentralization can succeed if properly steered,tion is doing well for the people: taking services and the capacity of local governments can be en-and opportunities nearer to the people, empow- hanced through skillful innovations even underering them, and making them responsible for difficult circumstances-given the right politicaltheir own services and well-being. The practice incentives and if the community and its leader-of communities being involved in deciding the ship are determined.priorities and contributing labor and materials All districts have vigorously embarked onfor public programs and projects is increasing the attraction and recruitment of well-qualifiednot only the available resources but also cost- and experienced personnel. This is a contrast toeffectiveness and user-satisfaction. the former practice of receiving staff from the

center-whether they were effective or not andVOICE OF THE CITIZENS. Due to the decen- whether they had the district at heart or not.

tralization process, citizens now have a voice. However, capacity enhancement requires localThe consistent expression of community de- governments to undertake reforms in the waymands and preferences-"voice"-is an impor- they conduct their operations, to make invest-tant factor explaining the development of local ments in human resources and equipment, andgovernment capacity. The voice of citizens has to adopt new work practices.made local authorities more accountable and The local leadership is also showing controlmore responsible to the citizens, increasing the over the district working staff, especially withpolitical costs of inefficient and inadequate pub- regard to performance and behavior. An unoffi-lic decisions. It is making local governments cial practice in the past transferred badly behavedmore interested in changing their administra- or inefficient staff from one district to anothertions and personnel to make them more effec- without proper disciplinary action or mecha-tive. In several cases, protests and civic mobiliza- nisms. Districts now have powers to address cor-

4 Good Governance in Africa: A Case Studyfrom Uganda

ruptive tendencies and abuse of office. This was Improvements have been further amplifiedimpossible under centralized government. De- by the formation of health unit managementcentralization has increased responsibility and committees (HUMC) to manage and deal withdiscipline among staff. all issues pertaining to the health units. The

committees are composed of local communityREFORMING MANAGEMENT SYSTEMS, PLAN- members and health unit representatives. These

NING, AND EXECUTION PROCESSES. Good people committees have been instrumental in expandingworking for a badly organized district adminis- coverage and improving health services delivery.tration, or without the necessary management An important example of this great partnership istools, will not go far in terms of effectiveness. exhibited by the mutual agreement of health staffNew responsibilities make it imperative for the and the local populace as to the appropriate timedistricts to undertake some types of administra- of the week for immunization. This has ensuredtive reforms: restructuring the district adminis- that immunization of all children is undertakentration, creating new or merging departments, at convenience and with the agreement of theand establishing the corresponding division of mothers. It is this kind of approach that allowsresponsibilities and channels of communication. people to manage their own affairs.

Regarding the execution of programs, expe-rience indicates some weaknesses. It is at the level DISTRICT ASSOCIATIONS. Cooperative formsof implementing programs that many districts of association between districts can play an im-face capacity limitations. Capacity in this area portant role in the capacity-building of local ad-seems to be closely associated with various other ministrations. Decentralization has broughtdimensions, such as strong leadership, commu- about inter-district cooperation, unknown previ-nity involvement in programs, clear priorities, ously where there was more center to district re-and an effective district organization. lationship and neighboring districts did not in-

teract with one another and could not help eachCOST SHARING. Another area that has im- other without first going to the center. Now dis-

proved under decentralization but that had tricts can choose to collaborate in offering ser-failed as a central government policy is cost vices, hire out joint services, and so forth, to ac-sharing in hospitals and health centers. Be- crue from economies of scale. For instance, dis-cause of the special powers given to them by tricts collaborate in hiring road construction ser-the Decentralization Statute, the districts have vices rather than individually handling simplebeen able to convince people to engage in cost road maintenance. Districts also report and in-sharing so as to improve the quality of health form each other of companies that do sub-stan-sector services. The people are willingly con- dard work so that such companies will not betributing because they demand for and see a hired again.direct correlation between their payments and Another important thing relates to staffing.the medications, feeding of patients, bedding, If an individual embezzles or steals in one dis-and so forth, present in the health units. In trict, employment in another district will be nextfact, in some cases they have gone beyond cost to impossible because of the now strong inter-sharing to provide housing and food to the district links and collaboration. District officialsstaff in the health units. This, too, is a moti- also visit one another in order to learn from eachvating factor to the health staff who have be- other and share experiences. This is of particularcome integrated into the local community. assistance to the less successful districts, can then


emulate their more successful counterparts, lead- at all. Although decentralization does not comeing to an all win-win situation. with answers, Uganda's experience shows that

nevertheless it tries to answer and respond toINVOLVING THE PRIVATE SECTOR. An impor- what people really need. It is up to the Govern-

tant aspect of capacity development involves lo- ment to make periodic assessments on a district-cal government collaboration with and learning by-district basis and the follow up on the imple-from new partners who can significantly expand mentation process to ensure that all districts aretheir performance and service-provision capacity. helped to realize the aims and objectives of de-Practically all districts have private contractors centralization.execute part of their construction projects. Be- Districts need constructive guidance andyond that, the evidence on collaboration between assistance. The challenge is to create an environ-the public and private sectors at the local level is ment conducive to the emergence and consolida-still scarce. Privatization of services does not ap- tion of a system in which multiple agents (publicpear prominently on the agenda of most local and private) are positioned to offer support togovernments. There is ample room to advance local governments. The role of the center minis-local capacity by involving the private sector. An tries and departments should be more sharplyexample could be to contract respected private focused on developing ways to leverage incen-health persons to give support supervision to tives already being felt in civil society. Nationalthose in government facilities, or to give special- authorities at the center would thus becomeized services like dental, and so on. partners and enablers of efforts conducted at the

local level rather than direct implementors orThe Challenge Ahead builders of district institutional strength.Since 1993, it has been evident that Uganda has Decentralization requires the joint efforts ofembarked on a process of decentralization which, different actors at the local scene. In this ap-with other structural reforms, is fundamentally proach, the many civil society actors-public andreshaping the way public policies are conducted. private, national, regional, and local-become theHowever, the transition to this new system is not agents of change.easy. Against all odds, the picture emerging fromthe districts on the decentralization process is Corruption and Integrity in the Reforms andencouraging. There is evidence of increased ser- Decentralizationvice coverage; citizen satisfaction; attention to Since the beginning of decentralization, districtsrural areas and to women, children, and the have obtained a sharp increase in available re-poor; cost consciousness; and resource mobiliza- sources. Districts now have the impetus to raisetion efforts. more and more local resources, as they retain

But the decentralization process is marked most of the resources at the different collectionby ups and downs. This should be seen as an op- points. They also have access to additional re-portunity to strengthen further. Districts need sources from the national level, either as blockguidance, assistance, and (most important) en- grants or equalization grants, and for the firstcouragement if development and growth in the time, they have access to credit. Under the newdistricts is to continue. And just as children mas- system, districts assume key responsibilities areter walking at different ages, so will districts in the provision of services and the execution oftheir development strategies. Some make very public expenditure programs-among them pro-steady progress while others seem to make none grams for infrastructure, mobilization of re-

6 Good Governance in Afiita: A Case Study from Ugand4

sources, provision of basic water and sanitation, SERVICE DELIVERY SURVEYS AND CITIZEN SAT-

feeder roads, extension services and promotion of ISFACTION. Building a national integrity systemrural development, and maintenance of law and will not have succeeded if the citizens are notorder at the local level. satisfied with the services provided by their re-

The question here is whether the new dis- spective local administrations, their rights nottrict administrators, managers, and political lead- upheld, and law and order not maintained. Thusers will not squander the resources and be cor- a key element in the assessment of a national in-rupted by the system. This is why all Ugandans tegrity system's effectiveness should relate to theneed to educate themselves in the detection and views expressed by the citizens. Service deliveryexposure of corrupt tendencies and practices surveys and mechanisms for monitoring citizenamong the society in which they live. Indeed, the satisfaction should be instituted. This will helpact of taking services nearer to people will im- to make service responsive to demand and to en-prove transparency and accountability. Hence sure quality and satisfaction. Citizens tend todecentralization could be a way of combating favor and trust the local authorities more thancorruption. This requires that the general public the national ones in the provision of services.be involved and participate in decision-making Also, community participation and contribu-and in demanding accountability and transpar- tions in labor, materials, and even money are allency. This is how a national integrity system greater at the local level.against corruption must be rooted to thrive.

THE ROLE OF THE PRESS. The press can con-POLITICAL REFoRMs. The political environ- tribute by educating the public and civil society

ment within which local governments operate is that the mere amassment of property is not aalso an important part of having a good national measure of success. This could be done by expos-integrity system. If leaders are corrupt and un- ing many of the people who have acquired prop-trustworthy, then it is likely that the public and erties through illegal and corrupt means. Whenthe entire system will be corrupted. It is not sur- such people are put on trial and punished, theprising that during our years of turmoil and un- public should see and treat them differently. Thecertainty in Uganda, people simply resorted to press can help to educate and inform the publictaking what was possible as fast as possible-for about their rights and duties. No national integ-they knew not what would happen tomorrow. rity system can function without the variousThis has now changed. The district local leaders parts in the system knowing the responsibilitiesand councilors at various levels have been popu- and tasks of the others and the reasons behindlarly elected. The selection of such persons is these appointments. It is only through such in-more transparent and fair. The public's participa- formation that citizens will be expected to playtion has been enhanced to the extent that they their rightful roles and be able to demand thatcan now question the performance of their lead- their interests be met.ers and even recall them. Local government ac- Corrupt tendencies should be exposed andcountability has been enhanced. However, the punished so as to bring sanity back in society.new arrangements are not fully operative. Differ- Whistle-blowers in civil society on corrupt prac-ent levels of local district administrations need tices and people must be guaranteed protectiontime to understand and adapt to the new modus and confidentiality. Complaints offices shouldoperandi. also be opened up where aggrieved people can

Good Governance in Africa: A Case Studyfrom Uganda 7

THE NEW VISIONEnforce Leadership Code

(Dar es Salaam, November 27, 1995)-NEW Tanzanian President, Benjamin Mkapa, hasdeclared his assets. Congratulations to Mkapa. By announcing his full list of assets on nationalradio, the newly elected leader, who campaigned on an anti-corruption ticket, has got hispresidency of to a good start.

It should buy him good will from the electorate because it is a signal that he is serious about hiscampaign promises. It is also a signal to politicians and bureaucrats responsible for endemiccorruption that the boss is ready to crack the whip.

Democracy is accountability and transparency. Mkapa has aptly illustrated this, which shouldencourage political leaders in Tanzania, and particularly in Uganda.

His party, the Chama Cha Mapinduzi, under outgoing President Ali Hassan Mwinyi has beenscandal-ridden. Early this year, the nation's founding father Julius Nyerere accused Mwinyi of being"corrupt and inept" when Mwinyi fired anti-graft minister Augustine Mrema, in a corruptionwrangle.

Corruption had sullied CCM, leading Mrema to quit and form a party that contested the electionand accusing CCM of graft. Now Mkapa has shown otherwise.

Uganda needs to borrow a leaf from Tanzania. The Leadership Code of Conduct, which requiresspecified officers to declare their incomes, assets and liabilities from time to time, was passed bythe National Resistance Council in 1991 but has not been enforced to date.

Nevertheless the importance of accountability and transparency has been recognised in denotingan entire chapter of the new constitution to the Leadership Code.

Ugandans have a right to know where their leaders' assets are, if only because it is the peoplewho, through taxes, contribute to the leader's welfare. The leaders should own only what islegitimately due them and should account for whatever they may acquire.

Declaring assets is one form of inspiring confidence in the people. It seals the social contract-thatthe people are ruled by a government committed to the principles of democracy, so the people willrespond by being loyal to the government.

If we are not conscious, Uganda will miss out on this. Why has the Leadership Code not beenenacted? Is there a fear by those concerned?

Tanzania has stolen a march on us. Uganda has been at the forefront of enlightened leadershipin the region and should not lose the initiative to Tanzania or anyone else for that matter. Theprevaricafion must stop and the Leadership Code should be enforced.

lodge complaints for follow-up. Newspapers sure way of rebuilding and sustaining an integ-could also have column for the public to make rity system.complaints and seek reactions. Schools administrators and teachers have a

role to play by educating the younger generationTHE RoLE OF RELIGIOUS INSTITUTIONS, RELI- about good morals, behavior expected of good

GIOUS LEADERS, AND SCHOOLS. Religious institu- citizens, roles and duties of citizens, and the dan-tions and leaders have a large audience and broad gers of corruption and a corrupt society.forum for leaders to preach and counsel theirfollowers about evils in society and bad behavior, The Challengefor the Civil Societyimmorality, corruption, and so on. They should While signs of a good national integrity sys-promote good morals, integrity, accountability tem are beginning to appear, the process mayand transparency in their preaching. This is one be impeded by doubt, uncertainty, and even


strained relations among the different players Fighting corruption cannot be left to onein the civil society. Over time, a legacy of an- institution alone. The public and the private sec-tagonism, a "don't care" attitude, lack of sense tors, religious organizations, and all groups ofof responsibility, unaccountability, and lack of good will ought to be involved. In light of thetransparency which could creep in to derail need to combat corruption wherever it may be,the process. Today, mixed messages of freedom Transparency Uganda (Tr-U) was formed instill float in an atmosphere of doubt and new 1995. Tr-U is affiliated with Transparency Inter-obligations. The evidence suggests, however, national (TI), which is an international non-gov-that many Ugandans are frustrated with the ernmental organization based in Germany. TI'sway in which they have been living and for international mandate is to counter corruptiononce they are being viewed with a lot of admi- in international business. It does so through theration and respect by the outsiders. It is high many TI national chapters that are steadily in-time that Ugandans resolved not to go back to creasing in number-Tr-U being one of the latest.the 1 970s and early 1 980s and strive to de- Tr-U regards corruption as the number onevelop a good national integrity system. The enemy to economic development and social jus-media can have a impact by highlighting the tice. The existence and proliferation of corrup-achievements and successes in this area while tion impairs and impedes smooth delivery ofpointing out the failures and areas that need public services and derails government projectsattention. and programs. Corruption dehumanizes public

officials and diverts national resources from pub-Transparency Uganda: A Citizens' Anti- lic to private or personal ends. It distorts theCorruption Organization economy.Issues of transparency and accountability have To succeed, the fight against corruptionbecome increasingly important in the post-Cold must, however, be based on a firm political com-War world. In recipient countries like Uganda, mitment that provides a conducive atmospherethe movement toward decentralization, public for the enforcement of the laws without fear, fa-sector reforms, privatization, and commercializa- vor, or discrimination. In addition, Tr-U believestion of many government functions has increased that, for the fight against corruption to be suc-the range of opportunities available to citizens cessful, it must involve all sections of the civiland brought demands for greater responsiveness society. Individual and collective efforts areon the part of government and parastatal agen- needed in an endeavor to create national valuescies. In an era of dwindling aid budgets and that will promote transparency, accountability,skeptical publics, donors are now seeking better and good governance.value for their money. They are less willing to But whereas the other institutions belongexcuse widespread graft and corruption. Donors more or less to government, Tr-U is an indepen-increasingly recognize that lack of transparency, dent organization and more representative of thecorrupt project management, and poor account- civil society. It may be relied upon to play theability are major obstacles to effective implemen- role of whistle-blowing, public awareness and atation of donor-funded projects. A larger num- venue through which the public can direct com-ber of multi-lateral and bilateral donors are deal- plaints to government institutions. It is in thising explicitly with these issues both in their light that Tr-U has embarked on the establish-policy and in the actual design of their projects. ment of a Secretariat with an office and a few


staff. Over the long run, Tr-U will work towardthe establishment of a secretariat with a full-fledged office with its own logistics and a newstaff.

In this respect, Tr-U intends to educate thepublic through media, pamphlets, to conductseminars, and meetings, and to promote dramaactivities and carry out shows through television.This will equip the general public with the nec-essary information about the trend of corruptionin Uganda and amplify on the role the publiccan and has to play in the fight against corrup-tion. &

Containing Corruption andBuilding Integrity:The Contributions of Civil Society

Damian Kato, Secretary to the Inspectorate of Governmentand Jeremy Pope, Transparency International

Introduction experience gained in Uganda, Tanzania, and else-It is a fact that corruption is present in the where.public (or civil) services of many countriesand therefore discussions of an efficient civil What Is Corruption?service must consider measures to combat cor- Everybody understands the phenomenon of cor-ruption. Corruption has become so systemic ruption, but the term itself is difficult to define.in some countries that many representatives, Nevertheless, corruption in a general sense canperhaps most, in government service have a be defined as any practice, act, or omission by astake in its continuance. The result is a distor- public official, private individual, or companytion of decision-making and the provision of that violates or deviates from the laid down orservices given to those who can afford them generally acceptable norms, rules, procedures,rather than those who need them. Thus cor- and principles governing the expected perfor-ruption impacts negatively on results, and mance of official duties, with the intention ortherefore its containment is a central theme in expectation of personal or group gain or advan-developing a result-oriented culture. Decen- tage. Simply, it is the misuse of public power fortralization is embraced as one efficient way of personal or group gain or advantage.bringing services nearer to the people. Still, The means by which corruption occurs in-the challenge of fighting corruption in a de- clude the following:centralized administration cannot be mini- * Financial: such as bribery to secure a con-mized. tract, concession, or license; bribery to

This section discusses the role of combating obtain a legislative or regulatory frame-corruption in improving service delivery to the work in favor of the briber; introductionpublic against the background of practical of a "white-elephant" project, that is a

11


project that is unproductive and unneces- mounting of an attack on corruption at the high-sary. est leadership level (as the area within which cor-

* Political: such as the misuse of power to ruption arguably inflicts the greatest distortionsallocate. economically valuable rights or of the development process) before the strategy isresources, such as shares in a privatized applied to those at lower levels. It also providesconcern; the selective enforcement of law an opportunity to underline the leadership andin a manner calculated to confer benefits role-model factors needed to provide a founda-or cause damage to rivals. tion for the exercise.

* Patronage and nepotism: favoring family, However, important though it is, combatingclan, tribe, and so on. corruption is not an end in itself Rather, it is

instrumental to the broader goal of more effec-Causes of Corruption and the Fight against It.? tive, fair, and efficient government. Anti-corrup-Many factors contribute to the spread of corruption activists are not just concerned with corrup-tion, but the most important ones are summa- tion per se, but with its impact on developmentrized as (i) greed or habits constantly requiring and society. How does corruption impact nega-money-the human nature factor; (ii) poor or tively on poverty alleviation through the distor-weak accountability and control systems; (iii) tion of developmental decision-making? Howexternal pressures, for instance a contractor offer- inefficient is bribery? Who ultimately ends uping a share for approval of a contract; (iv) poor paying the cost of corruption?rewards and remuneration in the work place; (v) Although corruption itself is costly, it wouldlack of transparency; (vi) weak enforcement or not be worthwhile to attempt to eliminate itabsence of a code of conduct; (vii) and income entirely. It will simply be too expensive underdifferences that make corruption a means to be- many realistic conditions to reduce corruption tocome socially acceptable. zero, let alone the negative impact on other free-

Corruption at the highest levels, described as doms and fundamental human rights that would"grand corruption," distorts competition, be constrained and intruded upon unreasonablythereby denying public access to the advantages and unacceptably in such a process. Programof a competitive marketplace. Moreover, it in- elimination may be unjustified; bureaucratic dis-duces incorrect decisions that result in the imple- cretion may be necessary for effective administra-mentation of inappropriate projects, prices, and tion; stronger enforcement and deterrence maycontractors; recouping overpricing by substan- be expensive. Thus, the aim is not to achievedard delivery; promotion of lower-level corrup- complete rectitude, but rather a fundamentaltion; and erosion of public confidence in leaders. increase in the honesty-and so the efficiency andAt lower levels, petty corruption, or so-called fairness-of government."grease payments," are damaging because they Background conditions in societies varyincrease transaction costs, exclude those who greatly. In every society, however, the basiccannot pay, foster public contempt for public policy responses to corruption are likely to beservants, and erode capacity for revenue collec- of three types: substantive, structural, and/ortion. moral. All three types, in their totality and

The distinction between the two categories- individually, unite the interests and involve-the first based on greed and the second on need- ment of government, the private sector, andis an important one, as it provides a basis for the civil society.


Factors Responsible for the Success of Civil corrupt political leaderships who see the judicialSociety Measures against Corruption system as a weapon, not to control their own useThe most important factor that contributes to of power but with which to perpetuate it.the success of efforts by civil society against cor- Passing laws alone is clearly no answer. Inruption is the commitment of the political lead- practice, public attitudes have the capacity toership to fight corruption. Democratization of overshadow legal definitions, so that public opin-politics has contributed greatly to this success ion can define corruption in ways that will over-because it has allowed citizens to voice their ride law: If public opinion and the legalopinions without fear. Coupled with this is the definitions lack conformity, it is likely that offi-existence of a free press. In Uganda, the press has cials will act in accordance with the public view,now taken on an investigative role in matters of and in so doing transgress the law. More thancorruption, abuse of office, and abuse of human this, public co-operation in the reporting of sus-rights, exposing a number of corrupt practices. pected offenses and in their investigation is likely

Country strategies vary a great deal, but to be lacking. Voters sensitive to corruption areworldwide the policy responses to corruption more likely to vote suspected corrupt politicianstypically involve one or more of the eight "pil- out of office; those inured to it may returnlars" as seen in Figure 1 below.' These pillars are them.2

interdependent and do not stand alone. If one This indicates a need for the public to beweakens, excess weight shifts towards the others. informed as to what constitutes corruption,If several weaken, their load will shift resulting in particularly in countries where a long history ofthe round ball of "sustainable development" corrupt practices has existed and where therolling off. Establishing a national integrity sys- public is resigned at the very least to certain low-tem involves the identification of gaps and op- level corrupt practices as simply being a way ofportunities for embracing each of these pillars getting things done.'into a coherent framework of institutional Yet there are in any government, whateverstrengthening. its reputation, men and women of integrity. In

the most corrupt countries, these may be a veryThe Role of Civil Society small minority, but they exist and may be bidingCoping with corruption would simply be a mat- their time before reform can be achieved. Theyter of enforcement were it not for the fact that all will be empowered not by elements within thetoo often the casualties of corruption include system (who may wittingly or unwittingly haveelements within the country's integrity system effectively marginalized them) but by the public.itself. There is no one "to watch the watchers," so And the public, too, has similar people of integ-the watchers look after themselves. There may be rity who are anxious to see the corruptioncorrupt judges (who grant bail to those who tackled and who realize that little will occur towould abscond; or even to rig the outcome of a curb corruption unless public attitudes (often ofcase), corrupt court officials (who lose files or fix a resigned acceptance) are reverse. Yet almost in-judges for certain cases); corrupt prosecutors variably civil society's response to the problem is(who refuse to prosecute or who throw cases); fragmented, at best. The lawyers may be policedcorrupt police and investigators; corrupt lawyers (with a greater or lesser effectiveness) by their law(who bribe each other behind their clients' societies and bar associations; the accountants bybacks); corrupt auditors; and overarching all, their professional bodies, and so on. Few in civil

14 Good Governance in Afiica: A Case Study from Uganda

Figure 1: The Pillars of Integrity

-QuIiD. .Sustainobtl Rul. -

.,~~~~ ~ .* '8 ' '*

view-to cotmLat wha the inega par ts of imprat Bu th rea obetv mus be fo

Thri consti-oructivrolefo thencivil Ombcds Man y Auino civirl sceyhv dmna

torieto paye in developoiiong and strkeanghng et-vner est ip n achievingebt and effctiveuntegrlity sysemas

vieswand prctiesminathe publi shecitogr,l particularly portat u theiow conries. Thjestie incudethbe pori

inthei ontexty' obuintegiysystrmansacins between cvate secieytor relaigiu landders,d ithe poesowns vande

thek pulice and the priaesetors.lean Thepaeform agis raboveral thanlae ordinar cintiensa whchave to beare

freean press(bthcto inform ofli mesuestr patiuaken to r theibrun ofn coruptrionoe aiybss. There i scuetepi

contain corruption and to expose it, and gener- a constituency waiting tO be galvanized into anally to educate the public of its evils) and for effective coalition. Yet in most countries there is


THE SUNDAY VISIONTop Government Officials at the Centre of Fraud

(Kampala, December 3, 1995)-DESPITE government efforts to check corruption, large sums ofpublic money and property continue to be stolen. In most cases senior officers are the culprits,reports Ofwono Opondo.

TWO months ago the office of the Inspector General of Government Mr Augustine Ruzindanaconducted a surprise spot-check on motor garages in and around Kampala and found over 500government vehicles vandalised and rotting with the connivance of public servants.

According to Mr Peter Nyombi, the Legal Counsel to the Inspectorate, some of the vehiclesvandalised were less than two years on the roads, but sent to garages purportedly for repairs fromwhere they are vandalised of crucial spareparts. "Vehicles are stolen in a clever way.. .they arediverted to a garage from where windscreens, tyres, lights and so on are removed by officers forsale," Nyombi explained during a discussion with journalists on corruption in Uganda.

The Director of Audit, office of the Auditor General Mr G. Singh gave startling information aboutcorruption and abuse of public office in government departments. According to Mr Singh thebiggest racket of corruption and theft of public funds is in garage bills. 'We've fought but this bill isstill very high particularly repairs and fuel deposits. You can't tell whether a government officercollected 30 or 80 litres of fuel at a particular time."

Singh enumerated six major areas through which public money was being stolen. These included"air supply, contracts, ghost suppliers, employees and companies, the printing of fake cheques,manipulation of general receipts, and barter trade protocols." In "air supply" payments are effectedfor neither goods nor services rendered to a public institution with the connivance of heads andaccounting officers of these bodies.

While in contracts money was siphoned through engagement of corrupt or dubious companieswhich offer the lowest bids during public tenders, and then revise their bills of quantities as soon asthe awards have been offered. The public servant then receives a 1 0 or 20 percent commission.

Often public officers deliberately commit a breach of contract with a contracted company so as tobring a litigation in a court of law, so that the money awarded is shared between the concernedofficer and the company which sued.

On "ghost" personnel files, correspondences and bank accounts are opened and operated in thenames of people who do not exist. The files are most of the time with fake photographs attached tothem. Last month the IGG Mr Augustine Ruzindana clamped on suspected thieves in the ministry ofEducation and Sports headquarters in an over 1 bn/= fraud in the pensions and gratuitydepartment.

He recovered 4,000 of the targeted 10,000 files, most of them fictitious. This fraud was allegedlycommitted by the Principal Accountant pensions department Mr David Mukasa Walakira who wascharged in court last Wednesday. Through a chain of District Education Officers in Hoima, Luwero,Jinja, Tororo, Kibale, Masindi and Mukono, the money disappeared between September, 1994and September this year, and most of the documents were later destroyed....

simply a feeling not of empowerment but of im- classic example occurred in New Zealand, where,potence, not of determination but of apathy-a after a massive nationwide protest campaign tofeeling of not knowing where to begin. save Lake Manapouri from inappropriate power

It is true that a number of countries take development, the New Zealand Parliamentadvantage of some of what civil society has to established by law a "Guardian of the Lake"offer by providing independent, "outside-the- Committee, to provide independent monitoringsystem" elements on ad hoc oversight boards. A of developments and carry out undertakings, and


with rights to consultation. Citizens have also momentary problem than as a part of a philoso-participated in commissions and committees of phy of co-option and co-operation between gov-inquiry, such as the Nolan Committee on ernment and civil society."sleaze" in British public life. It is also the case But civil society part of the solution;that in selected areas, civil society has endeavored elements within it are very much a part of the(again in an ad hoc manner) to stave off govern- problem. The business community all too oftenment interference in sensitive areas.- Most nota- becomes inured to paying bribes to public offi-bly this has occurred in the area of the press with cials in order to gain business. Some would de-the establishment of Press Councils and codes of scribe it as extortion-that if they do not pay theyconduct, not so much to raise standards, but to cannot get business. Others simply see it as a factact as a buffer to government interference and of life. There is a sharp reluctance in many influ-prescription (for example by legislating for rights ential quarters to any apparent change in theof privacy, and so on). ground rules that might result in their own loss

Other examples include the Hong Kong In- business.6 The challenge is to achieve a scenariodependent Commission Against Corruption, in which the rules change for all and at the samewhich has an entire department devoted to com- time, so that there are no "winners" or "losers."munity relations and advisory committees that The only winner is society as a whole-throughincorporate significant involvement by the pri- the process of being cleaned up and getting bet-vate sector and other civil society elements. ter value for money. The only losers are thoseNeighborhood Watch schemes are now estab- who should not be getting the business in anylished features in many countries, with citizens event.7

harnessed to provide policing support, whileAustralian examples include involving of workers Ugandan Civil Society Institutionsin industry safety inspections and (in New Contributing to Corruption Containment andSouth) tapping consumer movements to identify Integrity-Buildinghazardous products on sale in the state. Some Institutions of civil society, both governmentalcountries allow private prosecutions by citizens, and non-governmental, contributing to corrup-although in Kenya a citizens' group (the tion containment and integrity building arecountry's law society) has been blocked in its ef- numerous. They will be restricted here toforts to prosecute in the wake of recent revela- political leaders, legislature or parliament, con-tions of a fictitious gold and diamond export op- stituent assembly, Inspectorate of Governmenteration.4 Similar attempts in Australia have met (Ombudsman), non-governmental organizations,with no success.5 The United States goes further the press and public opinion.in empowering citizens to bring suits againstpublic officials who take bribes. Political Leaders

The lessons of experience to date tend to In Uganda the NRM political leadership hassuggest that the role of the citizen lies more in spearheaded reform implementation since 1986,the field of prevention and information supply which has contributed greatly in the fight againstthan in the actual enforcement of anti-corrup- corruption and to the building of integrity in thetion laws. However, the potential has been dem- country. One area of reform involves theonstrated. At present, however, citizen input as a democratization of, manifested in the periodicresource is being used more as an answer to a free election of leaders by the public and in the


public's ability to speak freely about national sentatives to Parliament were under way.problems, such as corruption. Recently, for in- Parliament's contribution to containing corrup-stance, the country held presidential elections, in tion and building integrity is manifested by thewhich corruption was an issue. The three presi- enactment of laws to fight corruption and by thedential candidates pledged to continue the fight Public Accounts Committee's debates and rec-against this evil. Corruption also cropped up in ommendations.the parliamentary elections, which followed the With regard to enactment of anti-corruptionpresidential elections. and integrity-building laws, Parliament has codi-

A second series of reforms involves decen- fied the following:tralization of political, financial, and administra- Inspector-General of Government Statutetive power from the central government to the No. 2 of 1988, arranging for the Inspector-districts. This is another part of the General of Government (Ombudsman) todemocratization process, which reduces available fight corruption and any abuse of officeavenues for corruption at the center where cor- by public officials;rupt practices had been bred previously. * Leadership Code Statute of 1991, requiring

The third reform is the establishment of the the annual declaration of income, assets,Office of the Inspector-General of Government and liabilities by leaders. The Code speci-(IGG) in 1986. This Ombudsman Office re- fies minimum behavior and conduct stan-ceives and handles public complaints, including dards for leaders regarding gifts and ben-corruption, against the actions of government efits in kind, conflicts of interest, officialofficials. It has contributed greatly in the fight interests in contracts and tenders, and theagainst corruption. use or abuse of public property. The Code

Another area of reform involves public also provides sanctions for violations of itsenterprise privatization. This has quickly dis- provisions. This Code has not yet had asolved corruption in such enterprises, as pri- large impact on corruption because it hasvate owners or those enterprises seeking to yet to be implemented. There is, however,maximize profits will not tolerate staff stealing mounting public pressure for its fullfrom the company-whether "stealing" is in implementation. The candidates who ranactual money or through inefficient labor in the recent presidential elections werepractices. the first to declare their income, assets,

The assets and liabilities declarations by and liabilities.public officers and the acquisition of these is an- * The Prevention of Corruption Act, 1970,other area for reform. As a result of such reforms, confering upon the Director of Public Pros-the three presidential candidates declared their ecutions, in conjunction with the Police,assets and liabilities to the Electoral Commission powers of search, seizure, arrest, and interro-upon nomination, setting an example for other gation of those suspected of corruption. Thepublic officials. Penal Code also provides for different cor-

ruption offenses, such as fraud, embezzle-Legislature and Parliament ment, false accounting and abuse of office.As a body directly elected by the people, this civil Although this law was enacted in 1970, itinstitution is important. At the writing of this generally remained idle until the currentpaper, arrangements for elections of new repre- administration came to power in 1986.


Due to the vigilance of the Public Accounts lic offices. With this in mind, the ConstituentCommittee, the Auditor-General's reports, which Assembly constitutionalized the office of the In-at one time were ten years in arrears, are now up spectorate of Government and the Leadershipto date. As previously stated, the Committee Code of Conduct in order to combat corruptionconsiders these reports seriously. Public officials as described above. The provisions of the newfound to have embezzled public funds are dealt Constitution have started to be implemented.with severely. Many have been prosecuted or hadtheir appointments terminated. Inspectorate of Government (Ombudsman)

Reference has already been made to this organi-ConstituentAssembly zation, which was legalized under Statute No. 2A Constituent Assembly is a body elected to of 1988. Under this Statute, the Inspectorate,make or alter a political constitution. The people though having power to investigate and accessof Uganda elected one such body in 1994; it information, was rather weak because it couldcompleted and promulgated a new constitution only make recommendations. However, the newfor Uganda in 1995. Constitution enhanced its powers, enabling it to

One of the objectives of the new Constitu- arrest or cause to arrest, and to prosecute ortion was to emphasize accountability by stipulat- cause to prosecute.ing all lawful measures to expose, combat, and The Inspectorate has made great strides ineradicate corruption and abuse or misuse of the fight against corruption by coordinatingpower by those holding political and other pub- most agencies involved in the struggle, both gov-

THE EAST AFRICAN CHRONICLEOmbudsman Feared

(Kampala, December 1, 1995) UGANDA'S new constitution promulgated last month hasempowered this country's Ombudsman with far reaching powers of arrest and prosecution of peoplesuspected of being involved in corruption, the Inspector General of Government (IGGI, AugustineRuzindona, says.

The effect of these new powers is that Mr. Ruzindana could announce to the Press the interdiction ofthe entire staff of the Pensions Department of the Ministry of Education. Evidence has been found thatsince September 1994, over Ushs. one billion had been misappropriated in the department affectingteachers from all over the country. In the district of Mukono alone, (central region) over Ushs. 1 ,330million had been embezzled and incriminating files destroyed. To limit damages, the IG's office hastaken over 4,000 of the 10,000 files in the department.

IGG has also been assigned the responsibility of enforcing the Leadership Code of Conduct. Thefunction of overseeing the adherence to Human Rights has been removed from Mr Ruzindana's officewith the creation of a Human Rights Commission.

The Inspectorate of Government, which was responsible to the President since October 8, 1995 nowonly responsible to Parliament. Ruzindana expected the National Assembly to set us a ParliamentaryCommittee to which he would report his findings.

The Office of the IGG which was established in 1 986 is charged with the promotion of strictadherence to the rule of law and the principles of notural justice in administration. It is also responsiblefor the elimination of corruption, abuse of authority and public office and to promote fair, efficient andgood governance. This is in addition to investigating, public officials or any other authority and mokingthe public aware about the values of constitutionalism, through any media and means.


ernmental and non-government, into a national NGO with membership drawn from all walks ofintegrity movement. The movement has devised life in Uganda.the following anti-corruption programs, which The objectives of Tr-U are to: (i) curb cor-are currently being implemented: ruption through national coalitions, and encour-

•Public Awareness Program-to educate the age and assist government with establishing andpublic about the damages caused by cor- implementing effective laws, policies, and anti-ruption and to inform them of their rights corruption programs; (ii) organize and enhanceto the provision of services free from public support and understanding of the anti-bribes. The program also makes public corruption programs; (iii) enhance public trans-officials aware of their responsibilities to parency and accountability in business and thethe public. It includes seminars and work- administration of public procurement; (iv) en-shops for both government officials and hance and sensitize the public on the need forthe public (for example, for the press, transparency and accountability among officials;which reaches a wide section of the popu- and (v) encourage all parties in business and re-lation). lated areas of national interest to follow the high-

* Preventive Program-includes the strength- est levels of integrity and adhere to certain stan-ening of compliance within the existing dards of conduct.systems, simplification of management Tr-U joined the national coalition againstprocedures by reducing red tape, and so corruption by becoming a member of theforth. national integrity movement and works closely

*Enforcement Program-enforces existing with the coordinating committee for the move-laws and seeks to convict corrupt irrespec- ment. Yet it works independently and has set itstive of their position. It also reviews and own goals for the next two years including: es-strengthens the corruption-related prac- tablishing a Secretariat; starting public awarenesstices (including freezing, seizing, and and sensitization campaigns about corruption;confiscating proceeds of corruption and beginning law reform initiatives pertaining tofraud) and modifies the rules of evidence. corruption; vetting public appointments through

* Institution-Building Program-strengthens lobbying or providing information to the respon-the role of anti-corruption agencies such sible body to ensure that corrupt officials do notas the Inspectorate of Government, the ascend to public office; holding an integrityDirector of Public Prosecutions, Transpar- seminar for the President, Cabinet, and Parlia-ency Uganda (Tr-U), and others. It in- mentarians after elections to promote the issue ofcludes civil society training programs such corruption as a State priority; holding similaras training in investigative journalism to seminars for Local Council Leaders, RDCs andimprove the quality of investigation and Accounting Officers; demystifying the budget,reporting practices without fear of litiga- budgeting process and public finance functions;tion. monitoring elections and election-monitoring

officials; holding discussions with members ofNon-Governmental Organizations (NGOs) Rotary Clubs about corruption with a view toNGOs play a crucial role in fighting corruption enlisting their support; translating the TI Sourceand building integrity. One of the most active Book into the Ugandan situation; collaboratingNGOs in this area is Tr-U, the local chapter of with other chapters, such as TI-Denmark, toTransparency International, which is a registered promote projects and objectives of Tr-U; and

20 Good Governance in Afiica: A Case Study from Uganda

working with TI-Argentina to establish a data and debating government actions and activities.collection system and networking and In Uganda, the press is relatively free andpreparation of a TI National Source Book for assisting in teaching the public of the dangersAfrica. caused by corruption and exposing corrupt prac-

tices of government and other officials. Unfortu-The Press and Public Opinion nately however, press reports have been carriedThe Press is often referred to as the Fourth Es- out unprofessionally and as a result many paperstate, symbolizing the important societal role of face litigation. In response to this, the press jour-keeping the general populace adequately nalists associations (that is the Uganda Journal-informed about public affairs and providing ists Association (UJA), the Uganda Mediathem a forum to voice their views. In many Women Association, and so on) have joined withcountries, the government press agencies-radio organizations such as the IGG to train theirand television-are biased toward the reigning members in investigative journalism to ensuregovernment, making it essential for a provision that they expose corruption in a professionalrelating to the existence of a free, independent manner.press if opinions of government opponents are In addition, many programs incorporatingnot to be permanently suppressed. A free press, concepts of ethics, honesty, responsibility, disci-whether public or private, has a tremendous role pline, and so on are being sponsored by civil so-to play in feeding public opinion, and exposing ciety organizations on radio and television to

THE PEOPLEAnti-corruption Crusade Born

(Mukono, November 29-December 6, 1995) A unique two day workshop on integrity in Ugandaended at Colline Hotel Mukono, yesterday. According to Mr Petter Langseth of the World Bank, its thefirst time he has witnessed a seminar of high rankin government officials discuss anti-corruptionmeasures together with journalists, any-where in the world.

Ten journalists who had earlier attended a one week workshop on investigative journalism wereinvited by the Inspector Generol of Government to compliment the reviewing and drawing up of arevised anti-corruption action plan. An initial action plan had been drawn in December 1994.

The workshop was given an update on recent initiatives against international corruption by MrJeremy Pope of Transparency Centre and former Director of Public Prosecutions (DPP) Mr Masana alsogave an update on anti-corruption in Uganda and its improvement. He referred to the new powers ofthe IGG and DPP to arrest and prosecute suspects.

The participants, in a press release issued at the end of the workshop publicly declared theircommitment "to bringing about the Uganda which is cleansed of the corruption which plagued thecountry."

The leaders present are members of the National Integrity System (NIS) working group. Present werethe IGG, Mr. Augustine Ruzindona, his deputy, Mr. Psomgen and Mr. D Kato, Secretary to the IGG'soffice. Others present were officials from the Auditor General's office, the Ministry of Public Service,Decentralization Secretariat, the police, the Ministry of Education, the Ministry of Information, CentralTender Board, and the Law Development Centre.

Mr Ruzindana in his closing remarks emphasized the building of a coalition which would not onlyinvolve government officials, but also civic and clerical leaders, security officials, the press and thepu6lic. - Emmanuel Mukanga


teach civic education to parents and children. and is in the process of implementing relevantParents are advised particularly of how to raise policies.their children so that future generations are moreresistant to corruption. An Overall Strategy

There is no simple solution to containing cor-Some Lessons from the Past ruption where the menace is out of control.An analysis of the successes (comparatively There are, however, lessons to be learned fromrare) and failures (sadly numerous) of past ef- examining the experience of other countries.forts has identified certain elements. Limits of These lessons suggest the approach to bepower may exist at the top. An incoming ad- taken for developing a coherent, over-all, andministration may want to tackle corruption holistic strategy. At the end of the day, cor-effectively, but its efforts may be impeded by ruption should be-and be seen as being-athe corruption inherent in the existing bu- "high risk" and "low profit" undertaking. Thereaucracy. Second, there may be an absence of actual mix of these elements can vary widely.commitment at the highest levels, or there Reforms can be conceptualized under fourmay be a loss of public confidence because of headings: prevention, enforcement, publicunrealistic and unachievable expectations re- awareness, and institution building.sulting from overly ambitious promises.Third, reforms have been "piecemeal" and un- Prevention (Reducing Opportunitiesforcoordinated, and no one has been committed Corruption)to see them implemented and kept current. First, the simplification of government programsFourth, reforms tend to over-rely on the law, and procedures will greatly reduce the opportu-which is an uncertain instrument for changing nities for corrupt practices to occur. Modifica-individual behavior, or on enforcement, which tions could include more efficient program de-leads to repression, apparent abuses of en- signs, making them less prone to corruption-forforcement power, and the emergence of fur- example, elimination of "gatekeepers" who canther corruption. Fifth, reforms have "over- exact tolls from users; reducing the steps requiredlooked" the higher level and focused instead for government approvals and payments foron the "small fry"; the law, being seen as un- goods supplied; radical regulation simplificationfairly and unevenly applied, soon ceases to be and enforcement (not simply diminishing theapplied at all. Sixth, reforms lack a specific need for resorting to bribery but also easing busi-and achievable focus and, in failing to deliver ness transactions of all sorts and of access to pub-any "quick wins," have quickly lost public lic services generally); and reviewing payrollsupport. Seventh, where reforms are focused records to eliminate "ghost" employees and ren-and changes real, they have not endured be- dering their reappearance more difficult.cause institutional mechanisms do not survive Second, minimizing or (better yet) eliminat-changes in leadership. Finally, attempts by ing areas of discretion will further reduce corrup-government alone to achieve reforms without tion. Where elimination is impossible, clear writ-drawing in actors best able to assist-that is, ten guidelines should published and distributedcivil society and the private sector-is likely to to officials on exercising these guidelines. Sincefail. corruption thrives where the public is unaware of

Uganda has benefited from this analysis, its rights, fewer opportunities will exist for cor-


ruption if the government is demystified. Staff of appropriate "conflict of interest" regulationsmanuals should be published and made acces- (including the introduction of ethics programssible to department users, and so forth. Also im- and periodic group discussions of real-life ethicalproved work methods and procedures will reduce dilemmas drawn from their own experiences)delay in service provision. should take place.

Depersonalization of government, including A payment of a living wage in line with rea-the minimization of face-to-face contact, is one sonable needs and expectations should be insti-means of keeping out corruption. The introduc- tuted, and there should be an open, genuinelytion of random elements will eliminate the prac- competitive and transparent system of public pro-tice of particular officials interacting continually curement. Where necessary, policies should be con-with the same individuals. Staff should also be sidered to remove certain activities from the main-rotated regularly to minimize the development of stream of the public service to enable, among otherunhealthy relationships, both between individual things, better salaries to be paid there without dis-staff members and the public, and within torting civil service relativities (for example, consti-"groups" in particular areas of government ser- tuting a separate Revenue Authority).vice. Within the bureaucracy, "monopolies"in Privatization should be considered an optioncertain areas (for example, drivers' licenses) to help reduce corruption. Reasons for privatiza-should be eliminated to provide rival sources, tion go beyond minimizing corruption, butand so end unofficial "charges"-or at least drive privatization itself can lead to a reduction in op-the "price" down. portunities for corruption. It should be remem-

Managers at all levels must be made respon- bered that the process of privatization requiressible for the activities of their subordinates. This special measures of transparency to ensure thatcan be accomplished by increasing the effective- the process itself is kept reasonably clean.ness of supervision to enable superior officers to Professional bodies (accountants, auditors,check and control the work of their staff; and lawyers) should agree to declare any participationcarrying out surprise checks on the work of offic- by their members in corruption (includingers. On the other hand, officials at management money-laundering) as unprofessional activitieslevels should be certified regularly by those they and for which such members are liable to be pro-supervise as to their compliance with civil service fessionally barred. In this same vein, require-regulations and the law. Complaints channels ments should be implemented for reporting andshould be provided to enable junior officials to recording of all gifts, hospitality, and so forthcomplain about their superiors' corruption, and received by government officials, as should thethe press should be free to expose corruption. reporting and recording of all political dona-Also, good behavior should be recognized and tions.rewarded and role models acclaimed. Finally, coalitions of interest in support of

Effective monitoring of the assets, incomes corruption prevention should be constructed,and liabilities of officials with decision-making drawing in the private sector and civil society.powers should be implemented to ensure that Mechanisms should be established for civil soci-these are consistent with known income and rea- ety to feed in to the continuous processes of re-sonable expectations, and appropriate bans view, and the public should be polled periodi-should be placed on post-public employment by cally as to its perceptions of changes. A reviewthe private sector.8 The review and enforcement should be conducted of available mechanisms to


provide speedy and effective reviews of conten- corrupt firms and sales staff is another alterna-tious decisions. tive. Publication of such lists will ensure that

other countries-and competitors-are aware ofDetection of Corruption and the Enforcement the corrupt activities. Extradition arrange-of Punishments ments must guarantee that corrupt officialsIndependent mechanisms should be established who flee to the most attractive countries ofto enable investigators, prosecutors, and adjudi- refuge be returned by court order. Legal provi-cators to perform their professional duties in a sions must be made to enable corrupt profitstransparent, independent fashion, and to enforce to be seized and forfeited, whether these bethe rule of law against any who breach it irre- inside or outside the country. Finally, the usespective of their positions (and de-politicizing of ordinary civil courts should be emphasizedlaw enforcement). in order to empower private interests to sue

Adequate powers of investigation and pros- for damages in cases where they lose moneyecution consistent with international human and contracts through the corrupt activities ofrights norms should be provided. This includes others.access to all government documentation; placingthe onus of proving legitimate acquisition of Public Awarenesswealth on the person who has such wealth; giv- To provide a baseline against which progress caning investigators access to records held by lawyers be measured, governments must ascertain publicand financial advisers; and developing sound ar- perceptions of the existing levels of corruptionrangements with relevant countries for interna- and where it is taking place. It is important totional mutual legal assistance. engender the public understanding of the harm

Provisions should be established for trans- done by corruption and the fact that the corruptparent mechanisms to lift any immunities that are stealing the public's money, not money thathigh public officials enjoy by reason of their of- has been given by aid donors, and so on. Thefice, and for effective complaint-making- public must be aware of their rights to services-whether by whistle-blowers (from within and at a given price or at no cost at all. It is their dutyfrom otherdepartments) or by members of the to complain when officials behave in a corruptpublic. It is essential that no one feel unnecessar- manner in specific cases, and guidelines for filingily exposed to reprisals. One alternative may be complaints must be publicized.the implementation of telephone "hotlines." The legal and administrative environmentCounseling, preferably from outside the civil ser- must be such as to provide an enabling environ-vice, can also be provided. When necessary, pro- ment for a free press with the existence of Free-viding physical witness protection for key wit- dom of Information laws.9 Defamation laws andnesses, whether inside or outside the country, "insult" laws should be reviewed to ensure thatneeds to be provided. these cannot be used unreasonably to threaten

Mechanisms for punishing those outside and fetter the press (that is, by public figures, asthe jurisdiction must be developed. The use of legitimate objects of public interest). Members ofcivil penalties should be considered. Civil the press should enjoy protection equal to that ofpenalties, as judgments of the ordinary courts, ordinary private citizens and should under nomay be enforced, abroad unlike criminal sanc- circumstances be censored. Professional stan-tions, which generally cannot. Blacklisting dards of the press should be raised. Newspapers


should not experience discrimination evidenced The need for an Office of the Contractorby the withdrawal of government advertising, General to conduct independent oversight ofaccess to newsprint, and so on. The professional government contracting, and performance there-standards of independence and responsibility of after, should be reviewed. If there is such a need,state-owned media employees must be upheld. the Office should be ensured capacity for inde-

To ensure that the environment in which pendent oversight and evaluation and public re-civil society operates is appropriate to a free and porting of what is taking place with public con-democratic society, registration provisions should tracts and their implementation.'°be simple and inexpensive where they exist, and Public procurement must be professional-registration should be a considered a right, not a ized by means including the examination ofprivilege. present practices against "best practice" and most

transparent systems, the guarantee that theInstitution Building choice is not captive to departmental advice andAll relevant institutions must be adequately interests, and that there is involvement of "out-staffed and resourced. In the area of investigation siders." A pool of decision-makers should be or-and prosecution, independence must be guaran- ganized in such a way that there is no predict-teed. The need for an Independent Commission ability as to those involved in any particular exer-Against Corruption should be assessed, as should cise. Decision-making should be made promptlythe appropriateness of laws of evidence in a mod- in order to eliminate delay during which corrup-ern era. Penalties should be reviewed to ensure tion can take place. Regular scrutiny (and com-that they are neither too low (no deterrent) nor plaints-based scrutiny) of departmental proce-too high (deterrent to prosecutions being dures should take place.brought). Access to the courts to remedy com- A review of training needs should occur, par-plaints should be simplified and the adequacy of ticularly in-service training for civil servants at alljudicial review of administrative action reviewed. levels together with the formulation and dissemi-

Internal financial management systems nation of clearly defined ethical guidelines andshould be reviewed for adequacy and effective- rules of conduct. Also training needs of all rel-ness. The Auditor-General should be ensured evant departments and agencies should be re-independence-inter alia, through the appointing viewed.mechanism. His reports should enjoy widespread The Elections Commission should be securepublicity, and action should be made to imple- in its independence, impartiality, and public andment his recommendations. The Office should political party confidence. Transparency in allbe ensured independence and professionalism. aspects of the elections system (except, of course,Legislative mechanisms for accountability, in- the ballot) should be guaranteed. Public partici-cluding the role of Public Accounts Committee, pation in the monitoring process should be fos-must be reviewed and overhauled. Public access, tered to build confidence. Training should beto proceedings should be maximized. conducted not only for the election staff but also

The Ombudsman (or an equivalent office) for political party officials, to ensure familiarityshould be ensured adequate powers and all rec- with the system and to enable professional moni-ommendations of the office should be addressed. toring.The existence of the Office and all reports by the Capacity needs to be developed for the regu-Office should be publicized. lar polling of the public (this is presently being

Good Governance in Afiica: A Case Study from Uganda 25

developed in a number of countries, among be "owned" visiblyand supported from thethem Tanzania and Uganda). Such polls enable top. Tackling corruption is not just about re-the degree of corruption to be measured through form; it involves the public's confidence in,public participation, and so establish a "bottom and loyalty to, the State-and the State's abili-line," which can serve as a performance indicator ties to reciprocate.when later, repeat surveys are conducted. In conclusion, having an efficient civil

service and decentralized administration willNext Steps continue to challenge governments into thePossible next steps include the establishment of a 21st century. Redesigning administration fornational integrity working group (however de- responsiveness and accountability is thereforescribed or constituted), to draw together both one answer to the problems of inefficiencythe stakeholders within government (executive now being faced because of corruption andoffice, public service, judiciary, education, local other factors. In doing so, it is important thatgovernment) and coalition partners from outside civil society is involved to help to face up togovernment (civil society, religious leaders, pri- this challenge. In Uganda, this strategy is be-vate sector, relevant professional bodies and ing employed, and it is hoped that the effortsgroups representing consumer interests)." The that have been made so far will be sustainedexisting framework should be analyzed and areas and strengthened. ifor reform identified."2 An overall plan, includingshort-term, medium-term, and long-terms goals(and including a public awareness-raising pro-gram) should be designed, and responsibilitiesshould be assigned for follow-up action and re-porting back to the working group. Publicity re-lated to the establishment of the working groupshould be arranged, as should the publication ofits overall plan, its regular meetings and work,and the solicitation of inputs from the widerpublic. The plan should receive political leader-ship endorsement, and public backing of thework to be done should be published. Particularattention should be paid to achieving some"quick wins" to build public confidence."3

ConclusionReform is a long-term process where attitudesand conduct must be taught and reinforced atall levels. It should initially only tackle issueswhere it has high impact, or where there is themost value added. The reform process requiresa number of years for policy implementation.The process and commitment to reform must

Enhancing and Sustaining aResults Orientation:Experience from Uganda

Petter Langseth, Economic Development Institute

Meeting the Goals of Civil Service Reform This information can assist government at aIn many countries, programs to increase the ef- central and district level, as well as donors tofectiveness and efficiency of public management respond more effectively to the ultimate ben-have had limited success. One reason is that they eficiaries of government services-the public.

lack strategies to achieve one of the key goals of The indicators can also facilitate the task ofreform, namely improving service delivery to the ROM, upon which governments and donors

public. increasingly focus, as well as contribute in the

Results-oriented management (ROM) is an medium-term to the introduction of a perfor-important element for improving service deliv- mance appraisal system.

ery. Yet client countries often do not have the

structures or processes in place to implement The Governance and Public Sectorsuch an approach, and often programs are de- Management Programsigned with limited information about the pre- Improving public sector management is an

reform quality of service delivery. ongoing process-one in which the elements

Typically, the ability of any civil service leading to improved, country-specific publicreform program to meet its goals is difficult to sector management are uncovered, developed,

ascertain because of the lack of a "baseline" and sustained. Fundamental to this learningdescription of pre-reform services. Knowing process are several methods: piloting new ap-the baseline can help a country set realistic proaches, identifying good practice, and dis-

goals for improving service delivery to the seminating lessons learned and other successespublic. As part of civil service reform, govern- achieved.ment has to monitor these baseline indicators The focus here is on one of the EDI Gover-

in order to measure the progress of reform. nance and Public Sector Management (GPSM)

27


pilot programs, the Service Delivery Survey learned in one pilot have been used to adjust the(SDS), which attempts to adapt an existing methodology in another.methodology, Sentinel Community Surveillance, In addition to working with the SDSto the pursuit of the GPSM model's goals of cre- tools, the GPSM team responds to clientating a results orientation, enhancing transpar- demands in developing central governmentency and accountability, and ensuring leadership networks, facilitating state andsustainability through capacity building at all municipal level workshops, and sponsoringlevels while improving service delivery. Pilot initiatives through other stakeholder groupsprojects using the SDS methodology were de- within civil society. The result of this seriessigned to meet particular needs of clients in sev- of interventions is the development of aeral regions; in an iterative process. Lessons service delivery function that brings the

Figure 2: Capacity Building and the Involvement of Civil Society inImproving Service Delivery to the Public

Development- Implct

- Ouctput- cost

Adjustment EvaluationInstitutional Framework - Ins-itution-b.sed

- Policy Fornulation - Co-munity-based- Institutional Development (service delivery survey)- Budget Allocation

Government~~~~~...... r t6 ResultsC c u In i-,

wE Orientto -rnprnyad

Government CvlSciety

Leadenhip Networks -NO-S~tat Workshops -Prvt Seceor

M-1.4uicp.t Workshops

Mindset

-| CacSacity Building

JI Mn-dse. 1- Leadershi P - Skills 1I Tools


benefits closer to citizens-the customers of valued impact. Adoption of this approach bythe public sector. policy-makers and public managers can create an

A core objective of the GPSM program is enabling environment for more efficient, results-the facilitation of partnerships to help expand oriented public sector policy-making and man-government capacity in improving service deliv- agement.ery to the public. The model developed by the An emphasis on integrity strengthens andGPSM team (see Figure 2) hinges on collabora- balances this strategy. Services should be de-tion with client countries, national and interna- signed and delivered in a transparent way-so thattional NGOs, and bilateral and multilateral do- baselines of service delivery are openly estab-nors. Civil society is a crucial partner; its inclu- lished, targets are feasible but not unreasonablysion in the service delivery dialogue has a central low, and progress against the baseline is fairlyfunction in maintaining government account- measured. This process supports and comple-ability. ments the goal of efficiency and results orienta-

The program reaches beyond the traditional tion in the public sector while encouraging gov-approaches to capacity building, which promote ernments to be accountable to citizens.conventional technical tools and skill-building at Enhancing the sustainability of effective ser-the central government level, and adds emphasis vice delivery requires more attention to regularon: and meaningful evaluation, monitoring, and ad-

* Changing mindsets, or the way problems justment-the subject of this section. In collabo-are seen and goals defined; ration with teams of experts in client countries,

* Developing leadership, to motivate people the GPSM team and CIETinternational (CIET),to achieve a common goal; an international NGO, are developing institu-

• Delivering services closer to the customers; tion- and community-based information-gather-and ing and evaluation systems, such as SDS, and

* Involving civil society as "customers, " in as- programs that use both quantitative and qualita-sessing service delivery. tive data to assist in improving service delivery.

The model used by the GPSM team at EDI Guided by SDS results, a government can intro-recognizes the important roles that local, reduce and promote evidence-based planning andgional, and central governments, the private sec- management, adjusting and refining the servicetor, NGOs, and citizen organizations all have in delivery framework through policy reformula-this dynamic process. The linkages and commu- tion, institutional development, and budget real-nication between these actors must be strength- location.ened. Ties with civil society in particular-its en- The evidence-based planning methodologyergy, ideas, and resources-can vitalize the process presented here is the basis upon which govern-of resolving public sector management problems ments establish the service delivery baseline. Per-that have eluded solution for years. haps an even more important use of the method-

Improving service delivery means raising the ology is as a means to increase the involvementcost effectiveness, coverage, and impact of ser- of civil society in the process.vices. When defining service quality, the point of As stakeholders interact, it may be found thatview of citizens as customers is seriously consid- improving service delivery requires devolution ofered, reinforcing an orientation to results where a responsibility, competitive supply arrangements, orpublic action is justified if it produces a publicly private sector provision. If this leads to a redefini-


Box 1: The GPSM Program

EDI's Governance and Public Sector Management program emphasizes both the piloting of new ap-proaches to public sector management issues and the dissemination of lessons learned from such pi-lots and elsewhere.

Our approach involves working with client countries (both governments and civil society) and do-nors as partners. Accepting that there is no 'blueprint" for enhanced public sector management, wework as facilitators in a learning process, rather than as experts with all the answers.

Underlying our program are the concepts that there should be, in the public sector: a focus onclients, a client orientation in the delivery of public services, and enhanced levels of accountabilityand transparency. As a starting point, we believe that improved governance and public sector man-agement rests on improvements in three areas: strengthened institutional capacity, improved servicedelivery, and enhanced national integrity.

Reflecting these concepts, the GPSM program comprises four principal activities:* Improving Public Sector Service Delivery* Accountability and Transparency* Civil Service Reform* Public Expenditure Planning and Management

as well as one supporting activity, Multimedia Dissemination.Our current bilateral partners are Australia, Canada, Denmark, France, Ireland and Japan.

tion of the State's role, it may be necessary for the rica, the Middle East, and Latin America. Overgovernment to manage contracts as effectively as a the next four years, EDI intends to deepen andprivate sector firm. Moreover, the government may expand this product line by undertaking moremaintain responsibility for the public impact of surveys and capacity building in these regions, asservices it no longer provides, at least for the short- well as in Central/Eastern Europe, the formerto medium-term. It is clear that government must Soviet Union, and Asia.be able to evaluate, monitor, and adjust the cost, Traditionally, in undertaking a new pro-coverage, and impact of services that it may no gram, government begins with the planninglonger directly deliver, but that it continues to phase, moves to implementation, and then evalu-manage and regulate. ates the results. It is now argued however, that to

create a customer and results-oriented culture inThe Service Delivery Survey (SDS) the civil service, the last step should be first:As part of its Program on Improving Service Deliv- evaluating, through a broad-based survey, whatery-Involving Civil Society, the EDI is assisting a citizens believe are the most important publicnumber of countries to design and implement SDS services and how well these services are delivered.systems. The systems will provide essential infor- The results coming from the SDS then drive themation to help design reforms (for example, civil planning and guide the implementation of theservice reform, decentralization, privatization), proposed program.monitor results, and ultimately make services more An SDS can be many things-a tool to raiseresponsive to citizens' demands. awareness; an instrument of accountability; a

To date, SDSs-and the national capacities tool of conditionality; a management tool; ato conduct them-have been established in Af- means of shifting bureaucratic focus to results; a


vehicle for articulating choices between services. ing perceptions implies valuing the customers'Each of these uses has certain implications. opinions, which in turn helps move toward a

The ultimate goal of an SDS is to improve more customer-oriented government. Althoughservice delivery to the public. In pursuit of this some effort has been made in the past to con-goal, the SDS produces information that can be sider the issue of service delivery at the ministe-used to set a baseline of service delivery, better rial level, this survey is more comprehensive indesign a reform program, and improve service scope. The SDS is innovative in attempting todelivery management. It may also highlight areas measure the reforms from both a "top-down"'where public provision of services should be and a "bottom-up" perspective. Furthermore, theeliminated or privatized. The SDS is a measure- SDS has implications for other reforms; for ex-ment tool that combines social and economic ample, indicators measured at the district-leveldata with information on the experiences, expec- could yield information relevant to decentraliza-tations, and perceptions of citizens about service tion reforms.delivery.

The process of designing and implementing Focus on the Customerthe service delivery diagnostic tool will help as- An underlying assumption of the SDS techniquesure that the civil service reform process concen- is that citizens' opinions matter and should betrates greater attention on the public. Investigat- considered in the design and delivery of services.

Box 2: What Do Service Delivery Surveys Look Like?

Service Delivery Surveys are designed by local experts for use by public managers and policy mak-ers. While SDSs look different in each country context, they are based on similar guiding principlesand methodologies. SDSs are reiterative results-oriented evaluations schemes to:

* build local capacifies, and* deliver quantitative and qualitative data on impact, coverage and cost.SDS supplements existing institutional-based data with community-based data from both the pri-

vate and public sectors. It includes qualitative and key informant interviews, as well as institutionalreviews.

A panel of communities is chosen in a given region or country, which permits comparison be-tween communities and over time to meosure the impact of reforms.

The basic building block of the community-based data is the household survey. Since the house-hold is not subdivided by sectors, the methodology is inherently intersectoral.

A large number of nationals are trained to make the process sustainable. By emphasizing analy-sis and communication capacities, SDS can contribute substantively to national capacities for evi-dence-based planning. Thus, SDS does not require highly developed capacities to be in place; in-stead it takes off from-and develops along with-national capacities.

SDS has been implemented by the international NGO ClETinternational and EDI in 6 pilot coun-tries to date.

Typically, the costs of an SDS system are lower than surveys of similar designs. But, clients shouldplan for substantial start-up costs. A pilot and at least 2 additional cycles are recommended in orderto build strong capacity to assure the process is sustainable.

One cycle of SDS can be completed fairly rapidly, with design, data collection and entry andpreliminary analysis taking around one month, (The initial cycle will take closer to 2 months.)


In order to reorient public management toward quantitative and qualitative data. The SDS com-satisfying the customer, the customers' expecta- bines existing institutionally based data, andtions, preferences, and experiences must be community based data from both the private andknown. public sectors. It includes qualitative data col-

The SDS reveals preferences through the lected through focus groups and key informantcollection of a representative sample of views of interviews, as well as institutional reviews.ordinary citizens and others who receive or are A panel of communities is chosen in a givenentitled to receive services that the government region or country, which permits comparison ofcurrently provides (such as businesses, local gov- data between communities and over time toernments, civic associations, and central govern- measure the impact of reforms. The basic build-ment agencies). ing block of the community-based data is the

Typically, the expense of an SDS system is household survey. Since the household is notlower than surveys of similar design, start-up subdivided by sectors, the methodology is inher-costs can be substantial. A pilot cycle and at least ently intersectoral.two additional cycles are recommended in order A large number of nationals are trained toto build strong capacity to assure that the process make the process sustainable. By emphasizingis sustainable. One cycle of the SDS can be com- analysis and communication of capacities, thepleted fairly rapidly, with design, data collection SDS can contribute substantively to national ca-and entry, and preliminary analysis taking pacities for evidence-based planning. Thus, thearound one month. The initial cycle will take SDS does not require highly developed capacitiescloser to two months, in place; instead, it develops from and along with

Designed by local experts for use by public national capacities.managers and policy-makers, SDSs look different To date, SDSs have been implemented byin each country context. However, they are based CIET in 35 countries and together with EDI inon similar guiding principles and methodologies. five countries (Uganda, Tanzania, Mali, JordanAs reiterative results-oriented evaluation and Nicaragua) (see Box 3).schemes, they build local capacities, and deliver

Box 3: ClErinternational's Contributions to SDS

For almost the same cost as revealing the frequency of an indicator, such as the impact of the Minis-try of Environment's public awareness program, or public opinion on the quality of urban transport,SDS makes it possible to look behind these indicators, thanks to the contributions ofClETinternational.

By tailoring its "Sentinel Community Surveillance" (SCSI methods to SDS, CIET has helped localteams of experts produce analyses and indicators that motivate action.

The originality of CIET methods lies in its incorporation of:* Modern epidemiology to evaluate evidence for planning; and* Community voice to produce evidence, analyze it, and motivate subsequent action.SCS has been set up by CIET in 35 countries over the last decade and has covered a wide range

of sectors. With almost global access to computers, these techniques allow detailed analysis of fac-tors that contribute to impact at the national, district, municipal, and community level.


Experience from Uganda by the Ministry of Health (MoH) and those pro-As part of the Uganda Institutional Capacity vided by the Ministry of Agriculture, AnimalBuilding Project (UICBP), the Government of Industry and Fisheries (MAAIF), especially Agri-Uganda is planning to introduce results-oreinted cultural Extension Services and District Farmmanagement (ROM) into its public services at Institutes. In addition, the customs services pro-all levels. As a first step in initiating ROM, the vided by the Uganda Revenue Authority (URA)Government, through the Administrative Re- were selected to be assessed in a survey of busi-form Commission of the Ministry of Public Ser- nesses.vice, commissioned a Baseline SDS with the sup- Existing relevant data on the selected ser-port of the World Bank. The SDS was pilot- vices was reviewed. Users and potential users oftested in December 1995 and was conducted at a the services were then asked about their use ofrelatively low cost. It reviewed existing World and views about the services-data not usuallyBank macroeconomic and sector data together included in routine data collection systems. Thiswith the civil society's perceptions of services de- was achieved by a cross-design of methods:livered. Primary research, in the form of surveys 1. A household survey of 40 representativeto measure public perceptions of service delivery communities in 9 districts throughoutand observations of actual service delivery, was Uganda, covering a total of 5,564 house-conducted by teams supervised by CIET. The holds and 27,196 people.purposes of this baseline SDS were: to develop a 2. Focus group discussions, key informantsuitable methodology and establish a framework interviews, and institutional reviews inof sample sites throughout Uganda; to gather each of the sites to obtain qualitative databaseline data on key services that could form the about local conditions and views of ser-basis for producing performance criteria for these vices.services; and to build evaluative capacities within 3. Interviews with District Administrationscentral and local government in Uganda. in the sample Districts seeking their views

This locally designed and carefully focused about support for their services from cen-survey will provide information about services by tral Government.district, sector, and stakeholder, and it will facili- 4. A postal questionnaire to 53 medium andtate comparing the effects of different programs large businesses inside and outsideacross the 39 districts. It will have focused im- Kampala.pact through an easy-to-read format presenting Several baseline indicators emerged fromthe most important information policy-makers these studies that could be used by the partici-need. For example, policy-makers will receive the pating ministries to assess the effectiveness of ac-chosen indicators for the baseline and subse- tions taken to improve their services. The inten-quent periods as well as a list of programs and tion is to repeat the survey in perhaps a vear, in-the major events and activities that occurred in cluding key questions to produce a repeat mea-that year. Thus, policy-makers can assess the out- sure of these indicators.comes in the context of the programs; determine While general guidelines for service perfor-which reforms yielded the highest net marginal mance indicators can be set by central govern-benefits, and analyze the relation between inputs ment, such indicators will need to be set in detailand outcomes. locally, in relation to the local conditions and

The services selected for the baseline SDS present levels of service delivery. Levels of servicewere the services provided to rural communities delivery clearly vary considerably among districts


at present, and it would be unrealistic to expect levels and has introduced many people to thethem all to reach the same level at the same time, concept and practice of critically examining thegiven their different starting points. Thus the functioning of their services from the viewpointsetting of performance criteria for services will of consumers. The resulting skills and attitudesrequire a dialogue between central government will be important to the process of introducingand districts. ROM in Uganda.

The results of the initial SDS provide aquantitative and qualitative baseline for program Design ofan SDS Pilotmanagers in these ministries and authorities to Briefly, SDS provides a way to quantify relation-use in planning and to measure impact and cov- ships that determine who gets what. SDSerage in the future. While analysis of the initial Uganda is part of the World Bank-financed Ca-results disappointing, it should be remembered pacity Building Project. The pilot phase is cur-that it is easier to make progress from a relatively rently under way. To quantify relationships, asmodest baseline. The priorities set by the minis- was done in the Nicaragua, Tanzania and Malitries were their own, rather than extremely im- pilots, the Uganda SDS used a modified clusterposed. It is proposed to begin ROM on a pilot design that illustrates the interfaces between (a)basis within the next year, and the MAAIF is services and communities; (b) local governmentlikely to be one of the pilot ministries. These re- structures and ministries; (c) inter-ministerialsults should help them to set targets for their ser- contacts; and (d) ministry and private sector rep-vice as part of the ROM process. If they are able resentatives. Bench-marking provides a "ther-to demonstrate progress against these targets, this mometer" showing improvements made. Theshould enhance their service within the ROM pilot should be used as a starting point to moveframework. The design of the baseline SDS and to future efforts at performance measurementthe format of the results mean that they can be and should give energy and momentum to con-used for both district level planning and at the tinue the process rather than glean radical results.central ministry level; the districts are responsiblefor the actual service delivery, with the support Implementation Processand policy guidance of the central ministry. Initially, the strength of the implementation pro-

When using the results of the baseline SDS cess was in the area of ROM. Negotiations held(and future cycles of the SDS) in the ROM pro- among a core group resulted in a "T" shape strat-cess, it will be important to link data on service egy where the horizontal represents a shallow cutcoverage and perceptions to data about expendi- addressing a range of services, and the verticalture on services in different districts and internal represents a deeper, more focused series of ques-service data on level of service provision. This tions on select services for concrete recommenda-will allow the output of a service to be related to tions.the input into the service in different areas and The Director of Inspectorate was not par-will serve as a guide for effective resource man- ticularly concerned with the process as a poten-agement. Data on service expenditure are being tial counterpart. An aggressive group of ministe-accumulated through, for example, the Expendi- rial representatives were present among theture Tracking Project. members of the SDS Steering Committee in-

In addition to producing actionable results, cluding Health, Agriculture, and Finance, espe-the baseline SDS has contributed to building cially in the areas of Revenue, Customs, Licens-evaluative capacities at the national and district ing, and Exports. The Ministry of Health viewed


the process as an important tool for community which served both to raise awareness and to pro-use. Moreover, health workers' opinions may be vide important insights into what lies behind theused by the Ministry to study ministerial support quantitative data.for those workers. The Ministry of Agriculture isseeking to use the deep-cut strategy to compare THE AGRICULTURAL EXTENSION SERVICES.

new and old schemes on satisfaction and produc- MAAIF was enthusiastic about participating intion. The main innovation Agriculture plans to the SDS baseline process and was very cleartest is the new integrated support responsibilities about the ministry services it wished to be in-of extension workers. District farm institutes cluded. The Agricultural Extension Project,were also studied. started in 1993, aims to address issues of disease

control, yield improvement, and capacity build-Design of Instruments ing for delivering and supporting effective exten-The Survey was presented as a capacity build- sion services. The project promotes a United Ex-ing process, where the country would decide tension approach, whereby farmers are seen byon its use and the problems needing resolu- extension workers in groups in order to increasetion. A technical team was organized of repre- coverage of farming advice and offer peer sup-sentatives from the respective ministries and port. Of particular interest to the Ministry,NGO experts. The results are still being ana- therefore, were the farmers' perceptions of thelyzed. Site selection was a multi-stage stratifi- agricultural extension workers, and the level ofcation of nine districts. Instruments were de- expense that farmers might be prepared to incurveloped in the country by teams. Diplomatic, for their services. There was also concern thatbrokerage skills were of great importance in decentralization had led to significant staff re-keeping the instrument succinct. Focus group ductions in most districts and that, with an in-discussions are also important. crease in the number of farmers and area to be

Questionnaires involved households, key covered by each extension worker, this could leadinformants with the support of ministries, in- to a less effective service and an inferior agricul-stitutional reviews of operational costs and the tural yield.link with different institutional practices, fo- The Survey results on coverage of agricul-cus groups, and self-administered business tural extension services were revealing in theirsurveys. disclosure of the lack of differentiation between

districts involved in the Agricultural ExtensionInitial Results Project over the past three years, and those out-Although households are forthcoming with inside the project. Yet there is clearly a perceptionformation about their use and views of services, of needing and wanting an agricultural advisoryit is a new experience to be asked their opinion service, as indicated by households and in focuson what is wrong and, especially, to offer sugges- group discussions. More than half of the house-tions for improvement. Most are accustomed to holds would be willing to pay for an improvedaccepting whatever they are offered in the way of service or, in most cases, to get the service at all.service. High proportions of respondents were This indicates a large "market" for agriculturalunable to make suggestions for improvement. extension services and could guide a policy andPeople did, however, tend to be less reticent implementation review of both the presentabout giving opinions, particularly critical opin- methods of delivering the service and the func-ions of service providers, in the focus groups, tioning of the Agricultural Extension Project.

36 Good Governance in Africa: A Case Study firom Uganda

The Chief Agricultural Officers' (CAOs) the willingness to pay for services indicated byviews on decentralization were positive overall. It households could form the basis for dialogue be-allowed them to make their own decisions re- tween service providers and communities at thegarding financial and other matters-salaries district level. This could involve the setting ofcould be paid more promptly, decision-making performance criteria for service. Focus group dis-was localized and staff better controlled, control cussions shed light on reasons behind people'sof funds was more democratic, and people could choices in health services. It was explained thattake pride in district services. On the negative for some illnesses it was more appropriate to visitside, decentralization had led to problems of sec- traditional healers. Traditional healers were alsotarianism in job appointments and job promo- used by people too poor to afford the charges fortion; insecurity of tenure for administrators; con- government health services. There was a percep-trol of local politicians without much experience; tion that better service is provided by privateinsufficient funding from the center; and diffi- clinics, because that is where the majority ofculties in raising revenue through local taxes. trained doctors work. A common complaintThey suggested that service could be improved about government services was inadequate ex-by regular release of funds, more consultation amination and the lack of drugs. Some peoplebetween government and districts, and capacity- felt that money is better spent skipping the clinicbuilding for district staff faced with new respon- visit and instead using the money to buy medi-sibilities. cine elsewhere. This suggests little faith in the

The decentralized role of district administra- diagnostic abilities of staff in government facili-tions in setting performance criteria for services- ties and a belief that it is only worth paying forusing data from the SDS-will be very important. the service if it includes treatment with drugs.While general guidelines can be set by the central The information generated by the surveygovernment, these will need to be refined locally will be useful to the government in reviewing thein light of local conditions and present levels of policy of user charges. The fact that those whoservice delivery. have used government health services recently are

more willing to pay for improved services thanHEALTH CARE SERVICES. MoH was among those who have not may indicates that some

the ministries requesting to be included in the households have avoided using the services duebaseline SDS. Uganda provides health services to inability to pay. Their situation will need to bethrough a decentralized network of facilities. considered. The amount households suggest pay-Hospital services are delegated to each district, ing is quite low and a little less than they arewhile hospital management remains directly un- presently paying.der the MoH. All other health services in eachdistrict are under the management of the District Areas for ImprovementMedical Officer (DMO) as part of the district Ugandan decentralization makes it important formanagement team. Other facilities include SDS to be in districts rather than in the initialhealth centers, dispensaries and sub-dispensaries, entry point chosen in the center. Thus, EDI pro-along with mobile clinics and outreach services poses that for the next cycle, focus should be onextended from health facilities. capacity building at the district level.

Suggestions offered by households and focusgroups for improving health services, along with

Conclusion: Using Decentralizationand Popular Participation toSustain Reform Efforts

Petter Langseth, Economic Development Institute

Rebuilding Uganda will require strong and sus- governance will entail changing the emphasis

tained political will to overcome significant resis- of several public policies.tance generated by the wide scope of the reform Macroeconomic stabilization through struc-measures. Civil service reform is but one of many tural adjustment programs should be main-

important and interrelated reforms needed to tained, but the emphasis should shift to the pur-facilitate this ongoing development process. All suit of social development as defined by UNDPof the reforms initiated in Uganda will remain in its Human Development Report 1994. The

artificial forms, superimposed from the top, un- problem of abject poverty in the rural and urbanless genuine attempts are made to decentralize areas must be confronted head on. The creation

power to the grassroots level through popular of islands of extreme wealth and prosperity in the

participation. External and internal resources urban areas of Kampala and Jinja is a recipe formust be mobilized and managed efficiently and future civil disorder.

effectively to create widely and equitably distrib- Great emphasis has been placed on attract-

uted economic and spiritual prosperity. When ing external inflows of donor funds, and skills inhuman values are enhanced and all forms of de- project design and project presentation havehumanization curbed, Uganda will attain politi- been enhanced. Yet, the record of project imple-cal and cultural nationhood (Katorobo 1994). mentation has been disastrous. Scarce donor

Considerable progress has been achieved credit has been used wastefully, and most of thein rebuilding Uganda in the ten years since funds diverted and embezzled. Turnkey projects

1986, but the dangers of backsliding remain and technical assistance have been emphasizedgreat. Uganda will have to be vigilant to up- and the low capacity to retain donor funds hashold what has been achieved and to maintain resulted in excessive outflows and increased the

momentum. To spread sustained democratic country's debt burden.

37

38 Good Governance in Afiica: A Case Studyfrom Uganda

The way forward lies in plugging the holes tional level and building capacity for effectiveand stopping massive financial haemorrhage. In- local governance at the grassroots level. Decen-stead of emphasizing asset expansion, the focus tralization can create better conditions for eco-must turn to physical assets management and nomic growth and improve administrative per-maintenance. A shift must be made from rheto- formance, transparency, and accountability.ric to reality, to capacity building, enhancement Many of the demands for decentralization ofof sustainability, and genuine popular participa- federal powers have already been met by the stat-tion. The emphasis should shift from project de- ute of the Decentralization Act of 1993. Attain-sign-measured by the amount of donor fund ing the goals of the statute will test the skills andinflows-to project implementation measured by abilities of local leadership. Grassroots capacitysuccessful project execution in terms of project therefore must be built in individuals, structures,outputs, results, and impacts. and institutions to manage the local polity and

These desirable economic outcomes will de- the local economy. As such, the role of profes-pend on the establishment of a polity based on sional and voluntary organizations must bepopular support and accountability. Uganda's strengthened through: the development of morehistory of fascist regimes will not be repeated if effective mechanisms for coordinating their ac-diversified and dispersed centres of power are tivities in relation to the central and local plan-developed. The problem is that any regime can ning processes; and, the recognition of theirbenefit from overcentralization of power. Consti- rights to operate, subject only to the limits oftutionalism has been weakened by strong presi- law, and, in the case of professional associations,dents (excluding the present one) who, having to regulate professional behavior.lost popular political support, resorted to ma- Despite sweeping economic and constitu-nipulation of constitutional rules and coercion tional reforms, the need for an effective and effi-based on personalized armies. Yet, there are no cient civil service will remain an imperative and astrong centres of civilian power capable of put- prerequisite for a stable and orderly society. Suchting pressure on the regime. How then can de- stability is essential to create an environmentmocratization come about? This remains a conducive to the release of dormant productiveriddle. forces. It is the civil service that must serve as a

That the current democratization efforts stabilizing force at a time when the role of thewere, according to James Katorobo (1994), private sector in meeting society's needs is ex-spearheaded and guided by President Yoweri panded, civil society is only on the verge of fullMuseveni must not be taken for granted. A deli- involvement, and the role of government iscate balance must be established between emer- scaled-down to activities not suited togent, strong, and viable centres of local gover- privatization.nance and a strong, but not dominant, central A core objective of Uganda's effort in Nationgovernment. Relations between the centre and building is to facilitate partnerships between thelocal authorities must be grounded in negotia- civil society and the government within Ugandations and bargaining. Only the emergence of a and between the Ugandan stakeholders an theculture of tolerance can forestall the ever-present external resources that help expand government'sdanger of slipping into a convenient, but de- capacity to improve service delivery to the pub-structive, dictatorial rule. lic. The model developed and presented in this

A direct link exists between building the ca- paper hinges on collaboration with client coun-pacity for a stable constitutional order at the na- tries, national and international NGOs, and bi-


lateral and multilateral donors. Civil society is a encouraging governments to be accountable tocrucial partner, its inclusion in the service deliv- citizens.ery dialogue having a central function in main- Enhancing the sustainability of effective ser-taining government accountability. vice delivery requires more attention to regular

The Nation building effort programme and meaningful evaluation, monitoring, and ad-reaches beyond the traditional approaches to ca- justment, the subject of this paper. In collabora-pacity building-that promote conventional tion with teams of experts in client countries, thetechnical tools and skill-building at the central GPSM team and CIETinternational are develop-government level-to add an emphasis on: ing institution- and community-based informa-

* changing mindsets, or the way problems tion gathering and evaluation systems, such asare seen and goals defined, and Service Delivery Surveys, and programmes that

* developing leadership, the capacity to mo- use both quantitative and qualitative data to as-tivate people to achieve a common goal. sist in improving service delivery. Guided by Ser-

This effort (see Figure 2) recognizes the im- vice Delivery Survey results, a government canportant roles that local, regional, and central gov- introduce and promote evidence-based planningernments, the private sector, NGOs, and citizen and management, adjusting and refining the ser-organizations have in this dynamic process. The vice delivery framework through policy reformu-linkages and communication between these ac- lation, institutional development, and budgettors must be strengthened. Ties with civil society reallocation.in particular, its energy, ideas, and resources, can The evidence-based planning methodologyvitalize the process of finding answers to public presented in this paper is the basis upon whichsector management problems that have eluded governments establish the service deliverysolution for years. baseline. Perhaps an even more important use of

Improving service delivery means increasing the methodology is as a means to increase thethe cost effectiveness, coverage, and impact of involvement of civil society in the process.services. When defining service quality, the As stakeholders interact, it may be foundcustomer's point of view is taken in serious con- that improving service delivery requires devolu-sideration, reinforcing an orientation to results tion of responsibility, competitive supply ar-where a public action is justified if it produces a rangements, or private sector provision. If thispublicly valued impact. Adoption of this mindset leads to a redefinition of the role of the state, itby policy makers and public managers can create may be necessary for the government to managean enabling environment for more efficient, re- contracts as effectively as a private sector firm.sults-oriented public sector policy making and Moreover, the government may maintain respon-management. sibility for the public impact of services it no

An emphasis on integrity strengthened longer provides, at least for the short- to me-and balances this mindset. Services should be dium-term. It is clear that government must havedesigned and delivered in a transparent way so the ability to evaluate, monitor, and adjust thethat baselines of service delivery are openly cost, coverage, and impact of services that it mayestablished, targets are feasible, but not unrea- no longer directly deliver, but that it managessonably low, and progress against the baseline and regulates.is fairly measured. This process supports and Improving public sector management will becomplements the goal of efficiency and re- an ongoing process, one in which the elementssults-orientation in the public sector while leading to improved, country-specific public sec-


tor management are uncovered, developed, and served, and one which is measured by the impactsustained. Fundamental to this learning process of this approach on the service delivery outputsare several methods: piloting of new approaches, and outcomes.identification of good practice, and dissemina- Corruption diverts decision-making and thetion of lessons learned and other successes provision of services away from those who needachieved. them instead to those who can afford them. It

The book took as its starting point the at- has negative impacts on results, and thereforetached diagram (see Figure 2)-which points to containment of corruption is a central theme inan amalgam of capacity, results orientation and developing a results orientation culture.integrity as the matrix for effective service deliv- However, corruption has been an intractableery. problem for many countries, especially where it

Attempts in the North to "reinvent" govern- has become systemic to the point where many,ment along the lines of the private sector-treat- perhaps most, in government service have a stakeing the public as customers by tailoring services in its continuance.directly to their needs and expectations-has We discussed the role of combating corrup-emerged as one of the most powerful concepts of tion in improving service delivery to the publicthe decade. against the background of practical experience

A necessary ingredient in this results orienta- gained in Uganda and elsewhere.tion is a focus on integrity: the public (customer- The success of public sector reformconsumer) has emerged, at last, as the raison programmes has generally been limited by gov-d'etre for government, and the public view if the ernments lacking:processes of government are necessarily influ- an accurate picture of pre-reform serviceenced by the degree to which its processes are- deliveryor are not-corrupt and so unfair and ineffi- a mechanism to measure the impact ofcient. But the integrity elements also feed into reforms in terms of improving service de-the efficiency and effectiveness of the entire pro- liverycess. Leadership and the simplification and * the means to instill a customer orientationdemystification of government are integral to the within the organization undergoing re-attainment of this goal. form

Uganda is the trend-setter in Africa in the * a dialogue between citizens and govern-processes of reforming government, attacking ment on expectations and preferences ofcorruption and focusing on service delivery and citizens regarding service delivery, andresults orientation. * an accountability mechanism for efficient,

We explored how the government developed effective and equitable public spending.its approach in an holistic fashion. With decen- The underlying assumption of SDS is thattralization and the moving of decisions as close the opinions of citizens matter and that civil so-to those affected by them as possible, this ap- ciety should be treated as customers.proach has been fundamental to defusing cen- To make its vision of an effective, efficienttralized corruption and enhancing results orien- and highly-regarded civil service come alive, thetation. The civil service is currently being trans- Government has pioneered a number of sweep-formed into a "public" service, whose purpose ing reform measures that show the feasibility ofderives from the needs of the public being achieving its ultimate goal: sustained macroeco-


nomic stability with a delivery-oriented civil ser-vice that has clear organizational mandates andobjectives. The perennial challenge, however, isto sustain existing reforms without risking thereemergence of past "evils." The benefits mustjustify the time, effort, and resources invested inthe reform in the past and in the future. z

42 Good Governance in Afica: A Case Studyfrom Uganda


Annex 1: Summary of NationalIntegrity Activities and Eventsin FY97

Donors Conference to communicate GOU's the achievements of the National Integrity work-Governance Strategy and to clarify who is doing shops and provide a catalyst for the further devel-what, when. opment and strengthening of our country's in-

tegrity system.Corruption Survey I in Police, Judiciary, Rev-enue Authority and the Ministry of Lands. Re- Cabinet Retreat to familiarise Cabinet ministersquested by and developed in close collaboration with existing rules and conduct concerning in-with IGG. The objective of this survey will be to tegrity issues (conflict of interest, acceptance offind out the perceived extent of corruption in the gifts, monitoring of asset, relations with civil ser-country; this will facilitate the establishment of vants and leadership). A four day workshop willbaselines against which future progress in the follow up on the National Integrity Workshopsfight against corruption can be measured (a tech- and will examine the concepts of transparencynique which has been adopted with considerable and accountability underlying the Mukono In-success in Hong Kong). At the same time, the tegrity Pledge and the action plan developedinvolvement of a broad section of the public in then, and will decide on an action plan forthe conduct of the survey (both as interviewers implementation by the participants.and as interviewees) will send a positive messageof empowerment to the public at large. District Service Delivery Survey I involving

civil society in assessing public service delivery toIntergrity Workshop for Parliamentarians. A be undertaken in all 39 districts. The first oftwo-day seminar for Parliamentarians on integ- three annual surveys will be carried out in 1996,rity to define their role in building up a National with the second and third at intervals of aboutIntegrity System. The workshop will build on 12 months. The surveys will greatly assist us in

44 Good Governance in Africa: A Case Studyffrom Uganda

our efforts to improve the levels of public servicedelivery to the public, initially by establishingbaselines for existing levels of service satisfactionand thereafter to measure the impact of our ef-forts to raise these. We would expect the conductof these surveys to build local capacity so that bythe end of the series we would have developedthe expertise on the ground to conduct and ana-lyze future surveys.

Media Training designed to raise levels of skillsand of confidence. Investigative Journalismworkshops have been developed and imple-mented in partnership with (among others) localjournalist associations, recognising that the na-tional interest is served by having a strong, inde-pendent and professional media. There is a needfor these workshops to continue, by working inparticular with the journalists who have per-formed well in the courses to date, and by fur-ther raising their levels of skill and confidence.There is also a need to strengthen and deepenthis training, and to include training on Investi-gative Journalism for Editors and radio/TV re-porters.

IGG Capacity Building, institution buildingespecially to strengthen their investigative ability.

Awareness Raising Programme, inititate a pilotworkshop in the field to identify how people de-fine corruption, what messages needs to be sentto the public to fight it (build up integrity) andhow monitor progress of the awarenessprogramme.

National Integrity Workshop Ill to evaluateprogress todate and determine action for the fu-ture. W

Good Governance in Africa. A Case Studyfrom Uganda 45

Endnotes

1. This list reflects the consensus view of par- against the payment of bribes to tax investi-ticipants at EDI/TI seminars and work- gators the allegation that the tax officialsshops designed to promote national integ- threatened to over-assess them for taxrity. An alternative taxonomy, which none- should they not pay bribes to be under-as-theless covers essentially the same issues is sessed.presented in Rose-Ackerman (1996). 7. In the context of North-South corruption,

2. For a discussion, see "Defining corruption" gainers also include local suppliers and pro-by John A. Gardiner at pages 11 6-17. fessionals. They cannot bribe with the same

3. John A. Gardiner, ibid., page 119. impunity as foreign competitors, since they4. See TI Newsletter, June 1995. "A corruption are within the scope of their country's legal

case against vice president George Saitoti system. Nor can local businesses as a ruleinitiated by opposition parliamentarian claim tax deductions for bribes paid in con-Raila Odinga has also been stalled. The sec- travention of their own laws.ond man in the Moi government is accused 8. The example set by Tanzania's incomingof having been involved in a major financial President Benjamin Mkapa in publicly de-scandal. Attorney General Amos Wako took claring his assets and those of his wife, andover the case and has lifted all charges." explaining their sources, has reverberated

5. See Peter N. Grabosky, "Citizen co-produc- around the African continent.tion and corruption control," Corruption 9. In Uganda, this has helped create a situationand Reform 5: 125-51, 1990-to whom this in which the new Constitution requires thatpaper is indebted in several respects. the new Parliament enact a Freedom of In-

6. In Italy, for example, many businessmen formation Act, which will give the publicwho are presently claiming as a defense and the press a right to certain categories of


information. No similar provision exists inthe amended Tanzanian Constitution, butsuch legislation is being called for by,among others, the professional associationsof journalists there.

10. Such an office in Jamaica has served to un-cover considerable corruption in the pastseveral years in the area of government con-tracts, if not to end such practices. Belizehas recendy adopted the office.

11. This has been done in Uganda and is pres-ently under consideration in Namibia.

12. For example, work is presently being under-taken by the Presidential CommissionAgainst Corruption in Tanzania. It is, how-ever, a mistake to believe that laws and law-yers alone can rectify a problem that in-volves a need to change actual behavior-andin some cases survival methods-on a day-to-day basis.

13 The public in Uganda has generally beendissatisfied with reforms that have failed tojail senior figures, even though a significantnumber of senior civil service leaders havebeen disciplined and in a number of casesremoved from office. The approach of es-tablishing a Uganda Revenue Authority,outside the civil service and well-remuner-ated, is proving to have won public confi-dence, and tax collection has risen dramati-cally. The same model is being pursued inTanzania.


References

In "Containing Cormption and Building Opolot, Eric Ogoso and Petter Langseth (eds.).Integrity: The Contributions of Civil Society-" Proceedings ofInvestigative Journalism Work-

shops in Uganda II, Washington, DC: EDI,Ten-Point Program ofNRM, NRM Publications November 1995.

November 1986. Langseth, Petter (ed.). Proceedings of the NationalLangseth, Petter, and Rick Stapenhurst. 1997. Integrit Workshop in [Uganda] I, Washing-

"National Integrity System Country ton, DC: EDI, 1995.Studies." EDI Staff Working Paper. Langseth, Petter and Fiona Simpkins (eds.). Pro-Washington, D.C.: World Bank. ceedings of the National Integrity Workshop

"The Role of a National Integ- in Uganda II, Washington, DC: EDI, No-rity System in Fighting Corruption." vember 1995.EDI Staff Working Paper. Washington, TI Newsletter. Berlin: Transparency International,D.C.: World Bank. June 1995.

Langseth, Petter, Sandile Nogxina, Daan Grabosky, Peter N. "Citizen co-production andPrinsloo and Roger Sullivan (eds.). Civil corruption control," Corruption and Re-Service Reform in Anglophone Africa. form, 5:125-51.Washington, DC: Economic Develop- "Arusha Integrity Pledge." Tanzania: 12 Augustment Institute of the World Bank (EDI), 1995, as found in The National IntegrityApril 1995. System in Tanzania. Washington, DC: EDI,

Pope, Jeremy and Petter Langseth (eds.). Proceed- August 1995, pp. 31-33.ings of Investigative Journalism Workshops in "Mukono Declaration." Uganda: 28 NovemberUganda I, Washington, DC: EDI, August 1995, as found in Integrity Workshop in1995. Uganda II. Washington, DC: EDI, Novem-

ber 1995, p. xiii.


In "Enhancing and Sustaining a ResultsOrientation: Experience from Uganda:"

CIETinternational. "Case Study: Uganda,"Building the Community Voice into Plan-ning, 1996 pp. 23-29.

Final Report: Baseline Service Deliv-ery Survey, March 1996.Petter Langseth,Civil Service Reform in Uganda: LessonsLearned. Washington: EDI Working PapersNo. 95-05.

Langsedh, Petter. "Service Delivery Survey (SDS):A Diagnostic Tool," Civil Service Reform inAnglophone Africa. Washington: EDI.

Langan, Patricia, and Fiona Simpkins (eds.), Ser-vice Delivery Survey Pilots: Progress to Date.Washington: EDI, 1996.


About the Authors

Mr. Damian Kato is a Public Administration Government Advisor on the Civil Service Re-Specialist. He has been a successful administrator form Program in Uganda, one of the most suc-rising through the ranks after joining the Uganda cessful African cases. From 1979 to 1992, heCivil Service in 1973 to the post of Permanent held government posts in human resources man-Secretary in 1988, the highest in the Uganda agement rising to Assistant Commissioner. HeCivil Service. In 1973 he received his BA (Hons) has consulted for the World Bank, UNDP,of Political Science from Makerere University ODA-UK and several countries. His degrees in-and obtained a post-graduate diploma in Devel- clude a Ph.D. of Human Resources Manage-opment Administration from the University of ment, a MA of Public Administration, a MS ofManchester, England in 1986. He has organized Industrial Relations, and a BA of Social Workand run many courses on Human Rights Educa- and Social Administration.tion and Corruption in conjunction with theRaoul Wallenberg Institute of Human Rights Dr. Petter Langseth is a Senior Public Sectorand Humanitarian Law of the University of Management Specialist at EDI, joining theLund, Sweden, and the Economic Development World Bank in 1980. From 1986 to 1988 he wasInstitute of the World Bank (EDI). a management adviser in the Ministry of Agri-

culture, Lesotho and served as the Chief Techni-Dr. Mohammad Kimbi is a specialist in Public cal Adviser of Civil Service Reform, UgandaSector Management Reforms and Improvements, from 1992 to 1994. Prior to joining EDI, heManagement of Change, and Management of worked in a Norwegian commercial bank for fiveProjects. He is a Public Administration Specialist years. Dr. Langseth holds a MBA (1974) and awith European Development Fund/Government Dr. Occ. (1978) from St. Gallen, Switzerland,of Uganda on Rural Health focusing on decen- specializing in Human Resource Managementtralization issues. From 1992 to 1995, he was a and Change Management in the public and pri-


vate sector. Publications include: "Active Person-nel Administration" (1980), "Implementing Or-ganizational Change: A Practical Guide to Man-aging Change Efforts" (1985), "Civil Service Re-form, Lessons Learned from Uganda" (1995),and "Uganda: Landmarks in Rebuilding a Na-tion" (1995).

Mr. Jeremy Pope is a barrister and solicitor ofthe Supreme Court of New Zealand and a mem-ber of the English Bar (Inner Temple). Since1994, he has been managing director of Trans-parency International, a non-governmental orga-nization campaigning against corruption in in-ternational business transactions. He was legaladviser and co-report author for the Common-wealth Eminent Persons Group on Southern Af-rica (1986) which aided the removal of apart-heid, and was Secretary to the CommonwealthObserver Group which oversaw the indepen-dence elections in 1980 leading to an indepen-dent Zimbabwe. From 1976 to 1993 he was Le-gal Counsel to the Commonwealth Secretary-General and Director of the Secretariat's Legaland Constitutional Affairs Division at the Com-monwealth Secretariat, London. ?a

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