Decentralization & Local Development Support Program The Republic of Yemen The Pilot (2003-2006) • Findings • Recommended Reforms The National Decentralization Strategy & The National Program Ministry of Local Administration The Republic of Yemen January, 2007
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Decentralization & Local Development Support ProgramThe Republic of Yemen
The Pilot (2003-2006)•
Findings•
Recommended Reforms The National Decentralization Strategy
& The National Program
Ministry of Local AdministrationThe Republic of Yemen
January, 2007
Yemen’s System of Local Administration
Legal & Regulatory Framework:• Local Authority Law # 4, 2000 (LAL)• Republican Decree 269, 2000 – Executive Regulations of the LAL• Republican Decree 23, 2001 – Organizational By-Laws, MOLA• Republican Decree 24, 2001 – Financial By-Laws of the Local Authority• Republican Decree 265, 2001 – Organizational By-Laws of the
Governorate & District Local Authorities
Structure of the Local Authority System:• Two levels of local authority – Governorate & District• 22 Governorates & 333 Districts• The Local Authority at each level consists of:
• The elected council• The administrative Diwan Departments • The Executive Organs – Sector offices
• Appointed heads (Governors & District Directors) of the Local Councils and Local Authorities
• 425 Elected Council members @ the Governorate level • 6902 Elected Council members @ the District level
DLDSP, November 2006
Levels of Financing of Yemen’s System of Local Administration
Finance: Levels of the central subsidy – (Capital & Recurrent)
Finance: Performance of the Local Revenue System
Finance: Distribution of the National Budget Share of Local Authorities (Capital & Recurrent)
• Policy Research/ID• Development of Statutory PEM procedures
• Piloting of procedures• Budget SupportSocial Fund for Development: 8 districts• Development of Statutory
PEM procedures• Piloting of Procedures• Budget & Project Support The Government of Italy: • Policy Research• Piloting of ProceduresUSAID: 8 districts• Institutional Development• Policy Research• Piloting of Procedures• Budget SupportDANIDA: 4 districts• Institutional Development • Policy research• Piloting of Procedures• Budget SupportPublic Works project 20 districts• Piloting of Procedures• Project SupportGovernment of France 2 d• Policy Research, ID & Piloting
Local Authority SystemGLA
Primary Ministries
Decentralization & Local Development Support Program Phase 2 of Pilot: 2005-2007Areas of In-Depth Inquiry:
The Capacity Requirements of the District Local AuthorityObservations of the DLDSP Pilot @ the District level
DLA
MOLASector Ministries Authorities
MOF COCA
MOPIC
MOCS MOE MOH MOA MO
PW Other MOWE MOE
Community
Public Expenditure & Asset ManagementService Delivery/Local Development
DLDSP, November 2006
Local Authority SystemGLA
Primary Ministries
Decentralization & Local Development Support Program Phase 2 of Pilot: 2005-2007Areas of In-Depth Inquiry:
Local Finance & Financial Management
DLA
MOLASector Ministries Authorities
MOF COCA
MOPIC
MOCS MOE MOH MOA MO
PW Other MOWE MOE
Community
DLDSP, November 2006
Local Authority SystemGLA
Primary Ministries
Decentralization & Local Development Support Program Phase 2 of Pilot: 2005-2007Areas of In-Depth Inquiry:
Sector Decentralization & Functional Assignment
DLA
MOLASector Ministries Authorities
MOF COCA
MOPIC
MOCS MOE MOH MOA MO
PW Other MOWE MOE
Community
DLDSP, November 2006
Local Authority SystemGLA
Primary Ministries
Decentralization & Local Development Support Program Phase 2 of Pilot: 2005-2007Areas of In-Depth Inquiry:
Mandate & Institutional Structure of the Ministry of Local Administration
DLA
MOLASector Ministries Authorities
MOF COCA
MOPIC
MOCS MOE MOH MOA MO
PW Other MOWE MOE
Community
DLDSP, November 2006
The National Decentralization Strategy For Strengthening the System of Local Authority
DLDSP, November 2006
Objectives of a Decentralized System of Governance
An Efficient & Effective System of Local Administration• Responsive to Community Needs• Equitable, Accurate & Transparent at Allocating Public
Resources and Effective at Delivering Services and Supporting Economic Growth
Produces Local Development & Alleviates Poverty through• Improved Quality & Scope of Coverage of Public
Infrastructure and Services • Enhanced Environment for Socioeconomic Development• Safeguarding the Environment & Natural Resources
Contributes to National Development through• Growth in Locally Generated Revenues/Relieving the Center • Expansion in the Scope & Scale of Economic Activity• Efficient Utilization of Public Funds
Decentralized Governance
Local Development
National Development
Improved Services
Economic Development
Reduced Poverty
DLDSP, November 2006
Goals of the National Decentralization Strategy
Effective/EfficientLocal Authority
System
Local Development
National Development
Poverty Reduction
Local Authority System
•Improved Local Infrastructure and Service Delivery
• Local Economic Development• Improved Natural Resource Management
Policy/RegulatoryReforms
The National Decentralization StrategyInstitutional
Structure ReformCapacity
Development• LA LAW• Fiscal Policy• CS Policy • Sector Laws
• MOLA• Governorate LA• District LA
• MOLA• Gov. LA• Dist. LA • Service Delivery
OUTCOMES
OUTPUTS
DLDSP, November 2006
MANDATES
FUNCTIONS
STRUCTURES
CAPACITIES
FINANCING
Redefine the Mandate of Central Authorities & Local Authorities (Governorates & Districts) Under an Effective System of Decentralized Governance & Delineate their Relationship to One Another
Specify the Functions of Central Ministries, Governorate & Districts Local Authorities which they Must UndertakeIn Order to Fulfill Their Mandates and Clarify Division ofLabor Between them
Introduce Modifications to the Organizational Structure & Procedures of the Governorate & District Local Authorities With the Goal of Enhancing Administrative Efficiency & Maximizing Synchronized Action Among Their Components
Specify the Range of Capacities (Human, Infrastructural/Facilities, Equipment & Tools) that are Critical Prerequisites for Enabling Local Authorities to Carryout their Functions & Fulfill their Mandates Effectively and Efficiently
Introduce Modifications to Local Finance Policies to Ensure the Alignment of Levels of Funding with Administrative & Service Delivery Costs & to Enable the Achievement of National Development Targets & Improve the Local FinancialManagement System to enhance transparency
Areas of Focus of the National Decentralization Strategy
DLDSP, November 2006
Sector Ministry Min. of Civil ServiceDefines admin. criteria for HR management (inc. recruiting procedures, incentive “packages”), provides technical support on in HR mgt. to LAs
MOFAllocates central funds, provides technical support (financial management), supervises and audits
MOLASupervises LAs, supports LA capacity-building process; facilitates co-ordination between LAs and central authorities; monitors & guides local development
Ministry of Planning
Sets a national framework for LA planning; provides technical support to LAs(planning processes), facilitates co-ordination between the central government and LAs towards implementing national plans and achieving national development targets
Audits LA financial management
COCA
Gove
rnor
ate L
ocal
Auth
ority
Dist
rict L
ocal
Auth
ority
Cent
ralA
utho
rities
Com
mun
ities
Governorate Local Council
Diwan
Executive Organ/Service Unit
Sets the strategic direction of governorate-level policies/programmes, identifies priorities, ensures adequate integration of public interventions at the governorate level, promotes CS participation, supervises, controls
Provides administrative support to the GLC, EOs and other departments or units of the GLA. e.g. governorate-level strategic planning, financial & HR management, budgeting.
Guides local development in adherence to national development targets. Promotes the sustainable development of the Governorate, delivers services as specified in the sector-specific functional assignments and/or coordinates policy implementation at the Governorate level; provides technical support to District LAs; implements key projects/programmes.
Implements sector-specific policies, programmes & projects at the governorate level according to the defined functional assignments and in support of national development objectives ; ensures that service delivery adheres to national criteria; provides sector-specific technical support to Districts; facilitates community participation; provides technical feedback on the effectiveness of national policies
District Local Council
Diwan
Promotes the sustainable development of the district and its different localities; delivers service as specified in the sector-specific functional assignments and/or identifies community needs and priorities, monitors and evaluates service delivery at the local level
Sets the strategic direction for local development guided by national development objectives and the needs and priorities of its population, identifies local priorities, ensures adequate community participation, supervises, controls.Provides administrative support to the DLC and to EOs as well as other EOs and service units). e.g. HR management, financial management, planning & budgeting, implementation of the local investment programme– procurement, supervision.
Implements education policies & programmes at the local level; ensures appropriate management at local schools; identify local coverage needs; supervises school performance; facilitates community participation; provides technical feedback on national educ. policies
CBOsParticipate in the integrated planning process, as well as on the implementation of relevant local projects and programmes; monitor and evaluate service delivery.
Sets national policies, and sector development strategy; drafts regulations & defines service criteria; provides technical support & trains LAs; monitors & evaluates; and implements key national programmes & projects
Executive Organ/Service Unit
Mandates, Functions and Key Institutions: An overview
DLDSP, November 2006
Ministry of Education
Sets policies, regulations & service criteria; provides technical support, trains; monitors & evaluates and implements key national programmes& projects
Gove
rnor
ate L
evel
Dist
rict L
evel
Cent
ralL
evel
Educ
. Es
tabl
ishm
ents
Decentralizing Education: A Delegation Decentralizing Education: A Delegation –– Devolution Model An outline of the main Devolution Model An outline of the main institutional arrangements (Proposal institutional arrangements (Proposal –– Under discussion)Under discussion)
Governorate Local Council
Diwan
Education EO
Sets the strategic direction of governorate-level policies/programmes, identifies priorities, ensures adequate integration of public interventions at the governorate level, promotes CS participation, supervises, controls
Provides administrative support to the GLC and Education EO (as well as other EOs and service units ). e.g. financial & HR management, planning & budgeting.
Coordinates education policy implementation at the Governorate level; ensures that service delivery adheres to national criteria, provides technical support to District LAs; implements key projects/programmes.
Implements Governorate-level education policies, programmes; provides technical support to Districts; facilitates community participation; provides technical feedback on the effectiveness of national policies
District Local Council
Diwan
Education EO
Sets the strategic direction for local development, identifies local priorities, ensures adequate community participation, supervises, controls.
Provides administrative support to the DLC and to the Education EO (as well as other EOs and service units). e.g. HR management, financial management, planning & budgeting, implementation of the local investment programme– procurement, supervision.
Implements education policies & programmes at the local level; ensures appropriate management of local schools; identifies local coverage needs; supervises school performance; facilitates community participation; provides technical feedback on national educ. policies
Delivers service at the local level taking into consideration national policies, strategies and criteria
Educational establishments
Parents councils
Deliver the service according to national standards and criteria
Participate in schools’ decision-making processes; supervise schools performance and effectiveness of teaching-learning cycle
Gove
rnor
ate L
ADi
stric
t LA
DLDSP, November 2006
Gove
rnor
ate l
evel
Dist
rict l
evel
Cent
rall
evel
Proj
ects
Decentralizing Electricity: A De-Concentration- (proposal – under discussion)
Governorate Local Council
Sets the strategic direction of governorate-level policies/programmes, identifies priorities, ensures adequate integration of public interventions at the governorate level, promotes CS participation, supervises, controls
Provides administrative support to the GLC and Technical Unit/Department (as well as other EOs and service units ). e.g. financial & HR management, planning & budgeting.
Identifies and/or prepares project proposals to ensure better service provision at the gov. level (proposals submitted to deconcentrated branches of Electricity Authorities); provides technical support to Districts; monitors and supervises service delivery and project implementation; coordination
Sets the strategic direction for local development, identifies local priorities, ensures adequate community participation, supervises & controls the performance of the Diwan Dpts., the EOsand technical units.
Provides administrative support to the DLC and to the Technical Unit/Department (as well as other EOs and service units). e.g. HR management, financial management, planning & budgeting, implementation of the local investment programme– procurement, supervision.
Identifies needs at the local level and informs relevant authorities; provides technical support and/or co-ordination for basic maintenance, monitors and evaluates, collects local data (GIS), promotes higher levels of awareness on sustainable energy consumption
Participate in project execution on the basis of contractual arrangements
PEC(National grid system)
Rural Electrification(Off-grid systems)
PEC Projects
Defines national policies, regulations & service delivery criteria
Ensure wider coverage & improved service delivery; implement national projects to enhance electricity generation, transmission & dist.; review key local project proposals
Ensure adequate service provision at the local level; implement local projects (inc. contracting out); provides technical support to LAs; reviews & submits local proj. proposals to national authorities
PEC Branch
RE Projects
Gove
rnor
ate L
ADi
stric
t LA
Technical Unit
C e n t r a l i z e d & d e –c o n c e n t r a t e d f u n c t i o n s
O u t s o u r c e d F u n c t i o n s
Ministry of Electricity
D e v o l v e df u n c t i o n s
RE Branch
Ensures that electricity projects adhere to urban regulations and are coherent and properly synchronized with projects/other forms of interventions proposed or being implemented in other sectors; facilitates co-ordination among implementing units
Diwan
Strategic Planning Unit
District LocalCouncil
Technical Unit
Diwan
Private contractors and/or cooperatives
DLDSP, November 2006
Governorate
District
Water Basin
Communities
NWRA
Basin Committee (BC): Assists NWRA in Formulating water resource management policies and supports enforcement
National Water Resource AuthoritySets the technical water resource use/Management Guidelines for Basin
Water User Groups: Lowest level of Representation of water users organized bypurpose of use (drinking water, banana farming…)
Water User Associations: second tearOf representation of water users in the form ofGroupings of user groups by purpose
Water Consultative Committee: The forum of representation of all WUA playing an Advisory role to local authorities
Water Technical Unit: water sectortechnical unit at the district local authority
District Local Authority: Accountable to NWRA & BC to enforce water resource use policy& Integrate such policies into Dist. Dev. Plans
Water Technical Unit: water sectortechnical unit at the governorate local authority
Governorate Local Authority: Accountableto NWRA & BC to enforce water resource use & the integration of policies into Gov. dev. plans
Draft Decentralized Water Resource Governance Structure (Basin to User)
DLDSP, November 2006
Rura
l W
ater
Wat
er C
orpo
ration
s
Head of Admin
Unit
Local Council
Financial& AdminInformationSecretariat
Engineering& Technical
Services
StrategicPlanning
Revenue& Wajibat
AccountingUnit\
AgricultureE.O./Unit
HeathE.O./Unit
EducationE.O./Unit
Public Works
E.O./Unit
Service B Fisheries E.O./Unit
Culture E.O/Unit
LA Institutional Structure: Proposed Restructuring of the Governorate Local Authority and key relationships between de-concentrated & devolved organs
Media &Public
Relations
Training COCA
FinanceOffice
Authorities, Corporations
& Projects*
Industry & Trade
E.O./Unit
Planning Office
Service A
Civil ServiceOffice
AdministrativeSupport
External Financial C
ontrol
AdministrativeSupport
Technical Support and Supervision
Executive Organs & Service Units
Service C
Governorate Local Authority
De-concentrated (external) Authorities/Organs for
service delivery
Devolved Authority Existing de-concentrated (external) Authorities/Organs to be devolved/integrated into the
LA Diwan structure
*For more details on the de-concetrated Authorities & Corporations, see sector-specific institutional outlines