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MINISTRY OF LOCAL GOVERNMENT
Governance and Decentralization Sector
Strategic Plan 2013/14-2017/18
July 2013
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TABLE OF CONTENTS
TABLE OF CONTENTS ............................................................................................................ 2
ACRONYMS AND ABBREVIATIONS .................................................................................... 5
CHAPTER 1: THE DECENTRALIZATION SECTOR STRATEGIC PLAN .................. 6
1.0 Introduction .......................................................................................................................... 6
1.1 Rationale for a Strategic Plan ............................................................................................... 6
1.2 Methodology used for developing the Strategic Plan ........................................................... 6
1.3 Vision and Mission ............................................................................................................... 8
1.4 Fundamental Principles ...................................................................................................... 9
CHAPTER 2: OVERVIEW OF THE SECTOR ................................................................. 10
2.0 Introduction ........................................................................................................................ 10
2.1 Sector Achievements .......................................................................................................... 11
2.1.1 Political decentralization.................................................................................................. 11
2.1.2 Administrative Decentralization ...................................................................................... 12
2.1.3 Fiscal and Financial Decentralization .............................................................................. 12
2.1.4 Institutional Framework and capacity building ................................................................ 13
2.1.5 Local Government Capacity Building Challenges ........................................................... 14
2.1.6 Sectoral Decentralization and Service Delivery .............................................................. 14
2.1.7 Local Economic Development ......................................................................................... 15
2.1.8 Participation and Accountability ...................................................................................... 15
2.3 Policy and Regulatory Context ........................................................................................... 17
2.3.1 The Constitutional and Legal Imperatives ....................................................................... 17
2.3.2 Vision 2020 ...................................................................................................................... 17
2.3.3 The Economic Development and Poverty Reduction Strategy (EDPRS) ........................ 18
2.3.4. EDPRS 2 Thematic Areas Priorities ............................................................................... 18
2.3.5 The Government of Rwanda programme for 2010-2017 ................................................. 19
2.3.6 Decentralization Policy Revised (2012) .......................................................................... 19
2.3.7. Decentralization Implementation Plan (DIP) .................................................................. 20
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2.3.8 Community Development Policy..................................................................................... 20
2.4 Institutional Overview of the Sector ................................................................................... 20
CHAPTER 3: DECENTRALIZATION STRATEGIC FRAMEWORK ........................... 23
3.1 Overall Objective ................................................................................................................ 23
3.2 Contribution to EDPRS 2 ................................................................................................... 24
3.3 Strategic Areas of Focus / Priorities .................................................................................... 24
3.3.1: Legal Framework and Sectoral Decentralization ............................................................ 24
3.3.2: Service Delivery ............................................................................................................. 26
3.3. 3: Fiscal and Financial Decentralization ............................................................................ 27
3.3. 4: Local Government Capacity Building ........................................................................... 27
3.3. 5: Local Economic Development ...................................................................................... 28
3.3.6: Volunteerism, Participation, Accountability and Democratization ................................. 29
3.4 Contribution to EDPRS 2 Thematic Areas/Priorities and Cross-Cutting Issues................ 30
3.4.1 Accountable Governance ................................................................................................. 31
3.4.2 Rural Development .......................................................................................................... 31
3.4.3 Productivity and Youth Employment ............................................................................... 32
3.4.4 Economic Transformation ............................................................................................... 32
3.5 Cross-Cutting Issues ........................................................................................................... 33
3.6 Underpining areas of the sector .......................................................................................... 34
3.7 Result Chain ....................................................................................................................... 36
3.9 Strategies and Programs to Achieve Objectives & Outcomes ............................................. 41
3.9.1 Capacity Development for Local Governance and Decentralized service delivery ......... 41
3.9.2 Increase the capacity of JADF coordination Mechanism................................................. 41
3.9.3 Financing and Resource Mobilisation Mechanisms ........................................................ 42
3.9.4 Strengthening Imihigo reporting system .......................................................................... 42
3.9.5 Reinforce Benchmarking in the Sector: ........................................................................ 43
3.9.6 Promoting Integrated Citizen-centred Local and National Development Planning ......... 43
3.9.7 Use of ICTs for enhanced efficiency and effectiveness in service delivery ..................... 43
Chapter 4: IMPLEMENTATION OF THE SECTOR STRATEGIC PLAN .................... 45
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4.1. SEQUENCING OF INTERVENTIONS ........................................................................... 45
4.1.1. Key strategic areas .......................................................................................................... 45
4.1.2. Sequencing of the programs ........................................................................................... 45
4.1.3. Inter-dependence between programs .............................................................................. 46
4.2. ROLES AND RESPONSIBILITIES OF PARTNERS / STAKEHOLDERS ..................... 47
4.2.1 MINALOC ...................................................................................................................... 47
4.2.2 Stakeholders ..................................................................................................................... 47
4.3 MECHANISMS FOR COORDINATION AND INFORMATION SHARING ................. 49
4.3.1 Coordination at decentralised levels ................................................................................ 49
4.3.2. Decentralization Sector Working Group (DSWG) .......................................................... 50
4.3.3. Joint Sector Review Meetings ........................................................................................ 50
4.3.4 Decentralization Program Steering Committee (DPSC) .................................................. 51
4.3.5 Decentralization Focal Points in Ministries, Agencies and Provinces ............................. 52
4.4 Risk analysis and mitigation strategies ............................................................................... 53
CHAPTER 5: MONITORING AND EVALUATION PLAN .............................................. 55
5.1 Sector Monitoring Arrangements ........................................................................................ 55
5.2 Sector Evaluation Plan ........................................................................................................ 56
5.3 Focused Analytical Work .................................................................................................... 56
5.4 Reporting and Tracking Schedule ....................................................................................... 57
CHAPTER 6: COST AND FINANCING OF THE SECTOR STRATEGIC PLAN ........ 68
6.1 Funding Mechanisms .......................................................................................................... 68
6.2 Internal national resources .................................................................................................. 68
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ACRONYMS AND ABBREVIATIONS
CB Capacity Building,
CDF Communal Development Fund
CSOs Civil Society Organisations
CPAF: Common Performance Assessment Framework
DCPETA Decentralisation, Citizen Participation, Empowerment, Transparency and
Accountability
DDP District Development Plan
DIP Decentralization Implementation Plan
EDPRS Economic Development and Poverty Reduction Strategy
FBO Faith Based Organization
FDS Fiscal Decentralization Strategy
FFDP Fiscal and Financial Decentralization Policy
GDP Gross Domestic Product
GoR Government of Rwanda
HIMO Haute Intensite de Main d’Oeuvre-Labour Intensive Public Works
ICT Information Communication Technology
IDP Integrated Development Programme
IEC Information, Education, Communication
IT Information Technology
JADF Joint Action Development Forum
LED Local Economic Development
LG Local Government
LGA Local Government Authorities
M&E Monitoring and Evaluation
MGDs Millennium Development Goals
MINAGRI: Ministry of Agriculture.
MINALOC: Ministry of Local Government.
MINECOFIN: Ministry of Finance and Economic Planning.
MINEDUC: Ministry of Education.
MINICAAF: Ministry in charge of Cabinet Affairs.
MINICOM: Ministry of Trade and Industry.
MININFRA: Ministry of Infrastructure.
MINISANTE: Ministry of Health.
MTEF: Medium Term Expenditure Framework.
MIS Management Information System
MTR Mid-Term Review
NGO Non-Governmental Organization
PFM Public Finance Management
PSC Program Steering Committee
PSCBS Public Sector Capacity Building Secretariat
RDSF: Rwanda Decentralization Strategic Framework.
RGB: Rwanda Governance Board
RALGA Rwandese Association of Local Government Authorities
RRA Rwanda Revenue Authority
SA Strategic Area
SACCO Savings and Credit Cooperatives
SSP Sector Strategic Plan
SWG: Sector Working Group.
ToR: Terms of Reference.
TWG: Thematic Working Group
SMEs Small and Medium Enterprises
VUP Vision 2020 Umurenge program
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CHAPTER 1: THE DECENTRALIZATION SECTOR STRATEGIC PLAN
1.0 Introduction
This chapter briefly outlines the purpose of the Decentralization strategic plan. It also includes
a brief description of the process and methodology undertaken to enhance and finalize the
Sector Strategic Plan.
1.1 Rationale for a Strategic Plan
In the course of the elaboration of the Economic Development and Poverty Reduction
Strategy (EDPRS 2), Decentralization Sector like other sectors is required to review and
update its sector strategic plan aligning it to the priority thematic areas of EDPRS 2 which
will guide actors in the sector over the medium term.
The rationale behind carrying out this strategic planning exercise is much more than the
production of this document. Formulated strategies will help the agencies in the sector think
through what they want to achieve and how they will achieve it. Putting strategies into
practice and acting strategically ensures that the focus remains on the things that really matter.
Strategies also help the allocation of resources in line with longer term priorities. In summary,
the Decentralization Sector Strategic Plan sets the goals and objectives of the Sector, and
detail who does what, with whom, when, how and where and with what means. The strategic
Plan also aims to promote co-ordination between stakeholders and increase efficiency.
In general terms, this decentralization sector strategic plan seeks to contribute to GoR’s global
development vision and to facilitate harmonized implementation of other relevant national
policies and strategies. Thus, it has been simultaneously elaborated with Rwanda’s new
Economic Development and Poverty Reduction Strategy (EDPRS) and involved wide-ranging
consultations through workshops and meetings with representatives of Central Government
(CG), Local Government Agencies (LGA) where Provincial EDPRS II consultative meetings
were organized and Decentralization sector participated and presented its sector priorities to
Districts, the Private Sector and the Civil Society as well as with the EDPRS Sector Working
Group on Decentralization. It aims to set up sound conditions for implementing the medium-
term targets outlined in the EDPRS.
1.2 Methodology used for developing the Strategic Plan
The elaboration of this Decentralization Sector Strategic Plan (DSSP) was conducted through
a highly participatory and consultative process involving the entire Decentralization sector,
including private sector, central and decentralized institutions and development partners
(public, non-public, national and international including civil society).
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The approach and methodology adopted in developing this plan were intended to ensure
ownership, commitment and leadership by the Sector. The key elements of the methodology
include:
A comprehensive understanding of the current mandate, mission, and outputs of the
sector;
An outline of the current levels of performance by the sector to deliver its mandate;
A review of government plans and policies to understand the Government agenda that
the sector will need to contribute to during the strategy period;
A situational analysis to confirm the relevant external and internal factors that impact
on the sectors’s performance as well as carrying out a stakeholder analysis to identify
the key actors that the sector has to interact with in delivering its mandate and the
challenges that these present;
Agreement on the key challenges presented by the government agenda and the
environment which the sector will need to specifically respond to as part of its
strategy;
Confirmation of the mission, vision and core values for the sector going forward;
Identification of the Key Priority Areas of focus that the sector will focus on during
the strategy period.
This Strategic Plan has been prepared by the sector team under the leadership of the
Permanent Secretary of Ministry of Local Government, with assistance and facilitation of the
sector co-chair as well as external consultants.
This approach involved:
Assembling and reviewing a number of relevant documents for review in order to
inform the exercise. These documents include: Rwanda Decentralization Strategic
Framework (RDSF), Decentralization Implementation Plan (DIP 2011-2015), Revised
Decentralization Policy, EDPRS, Vision 2020, 7YGP, Local Government Capacity
Building Strategy, Fiscal Decentralization Policy and Strategy, Draft Community
Development (CD) and Local Economic Development (LED) Strategy and Action
Plan, Guidelines for development of sector strategies in the context of EDPRS 2
elaboration, as well as the Thematic Areas for EDPRS 2 Elaboration.
Analyses of the sector status, sector challenges and sector achievements: These
were conducted to determine the constraints, trends, opportunities and threats facing
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the Decentralization Sector. The results of these exercises, together with other relevant
information such as extracts from strategies and development plans of Rwanda were
considered.
Feedback from key stakeholders through consultative meetings and providing an
assessment of the current levels of performance by the sector and suggesting the
priorities that the sector should focus on. The SSP was also developed based on
extensive consultation with Districts where provinces and City of Kigali organized a
series of consultative meetings and sector priorities were discussed.
Quality assurance and review meetings: These helped to give technical comments,
which were incorporated in the draft of the SSP before it was finalized.
This Strategic Plan has been drawn up in detail to facilitate the Decentralization Sector to
implement the activities programmed for the five year period systematically. The
Decentralization Sector and its key stakeholders have committed itself to the development of
a strategic plan which focuses on the following major components:
Vision for inspiration;
Mission to guide realisation of the set strategic goals;
Fundamental principles as a basis on which the Decentralization Sector is built and;
Strategic goals and objectives focus on the realization the sector mission during the
strategic planning period.
1.3 Vision and Mission
According to the Decentralization policy, the Vision of Decentralization Sector is
“empowered citizens that determine how they are governed, feel responsible for and are
active participants in their personal wellbeing and sustainable local and national
development.”
According to the Decentralization policy, the Mission of the Decentralization Sector is “to
promote and ensure participatory, democratic, all-inclusive and accountable governance and
effective citizen-centered service delivery in Rwanda”
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1.4 Fundamental Principles
Decentralization Sector shall work tirelessly and ensure that the following principles are
progressively entrenched in all actions that promote good governance and service delivery in
the country:
(i) The Subsidiarity Principle: The Central Government shall have a subsidiary function,
performing only those tasks which cannot be undertaken effectively at the Local
Government level;
(ii) Respecting, preserving and upholding the principle of national unity and indivisibility
and equitable development;
(iii) Promote, adhere to and ensure respect for the principle of separation of powers
between political and administrative/technical authority;
(iv) The Local autonomy principle: Respecting the principle of local autonomy, identity,
interests and diversity;
(v) Maintaining the Government system as a single entity: Decentralization in any form, at
any level, and most of all in a unitary state that Rwanda is, does not in any way imply
that the State of Rwanda will be fragmented but rather the different Local Governments
should work together as one Government system;
(vi) Recognizing that decentralization shall be undertaken in different ways by different
sectors depending on the nature of the sector and services to be provided;
(vii) Gender equality and social inclusiveness: The Rwandan society is given equal
opportunities to participate in governance and development activities at all levels.
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CHAPTER 2: OVERVIEW OF THE SECTOR
This chapter provides a situation analysis of Decentralization sector and the context in which
it operates.
2.0 Introduction
In May 2000, the Government of Rwanda (GoR) adopted the National Decentralization
Policy which was later revised in 2011. The main thrust of the policy is to ensure political,
economic, social, managerial, administrative and technical empowerment of local populations
to fight poverty by participating in the planning and management of their development
process. Committed to the successful implementation of decentralization, GoR has taken a
number of important steps in moving the process forward. The Rwanda Decentralization
Strategic Framework (RDSF), adopted in August 2007, provided the basis for furthering the
decentralization process from 2008 to 2012 in a comprehensive and coordinated manner. The
RDSF outlines six Strategic Areas (SAs) to boost the decentralization process and further
empower local government authorities. It is aligned to the national Economic Development
and Poverty Reduction Strategy. The Decentralization Implementation plan (DIP) has been
elaborated by the GoR to implement the RDSF and addresses all the SAs of the RDSF. Since
the elaboration of the DIP, the Fiscal Decentralization Strategy (FDS) has been developed by
Government to guide the implementation of the Fiscal and Financial Decentralization Policy
(FFDP). While the RDSF and the DIP are the elaboration of the overall decentralization
framework, the FDS is the elaboration of fiscal decentralization which is universally accepted
as being an important matter of public financial management. To this end, the DIP has been
amended to reflect that the implementation of FDS lies with MINECOFIN (Chair) and
MINALOC (Co-Chair) in the fiscal decentralization steering committee under the PFM
Reform Strategy, although all of the activities of implementing FDS have been included in the
DIP so that there is one overarching decentralization document. MINALOC will report on the
achievements in and discussions on financial decentralization in the decentralization SWG
and take comments gathered in this forum back to the steering committee to foster dialogue
on this crucial issue.
Implemented in phases, along well defined decentralization implementation plans (DIPs), the
original decentralization objectives have been achieved albeit to varying degrees. Despite
impressive achievements, challenges still stand in the way of effective decentralization.
Moreover, new demands have come up as the country takes new long strides into the future.
This explains why the Policy has had to be updated to keep it focused and responsive to the
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new challenges, aspirations, and ambitions of the Government and people of Rwanda. The
revised decentralization policy which was validated by stakeholders in May 2012, states the
present status of decentralization in Rwanda as follows:
2.1 Sector Achievements
The last decade of decentralisation implementation has resulted in major positive
developments in participatory democratization and local accountability but Rwanda is still far
from where it wants to be in terms of democratic, participatory local governance, and
effective citizen-centered service delivery.
2.1.1 Political decentralization
Political decentralization generally relates two related perspectives: 1) the power to elect their
leaders (vote power); and on the other side of the spectrum 2) the right to participate, either
directly or indirectly through representation, in decision making (voice).
Increasing vote power: Prior to decentralization, leadership from the lowest to the highest
level were appointed and therefore accounted only to the appointing authority. In 1999,
elections were held at cell and sector councils, and this provided the confidence to
democratize fully by 2003 when all local leaders from cell to district level were elected,
Rwandans passed the new Constitution through a national referendum, and elected the
President and Head of State. Since 2003 free, fair and democratic elections at all levels has
been a regular occurrence and is becoming a culture that Rwandans associate with. National
unity, poverty elimination and community development take precedence in political
programmes.
Enhancing voice through active participation: Citizen’s participation aspect of political
decentralization empowers the local communities and enables them to receive and utilize the
powers that are transferred to them especially in problem analysis, priority setting, planning,
and constantly demanding accountability from their local and national leadership or any
governance actor at the local level. This aspect of political decentralization is more complex
and takes more time to manifest itself. Local governments must align themselves in such a
way that they are legally obliged to seek and promote the participation of the local
communities in setting priorities, planning and making decisions that the local governments
will implement in a whole range of socio-politico-economic activities. The performance in
civic participation as revealed by the Rwanda Governance Score Card 2010 is relatively
moderate.
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2.1.2 Administrative Decentralization
Political decisions can only be translated into concrete actions and results by subjecting them
to technical processes which are managed by administrative and management machinery. So,
political decentralization goes with administrative decentralization in terms of structures,
systems and functions.
Legally binding administrative functions are performed at all levels from Umudugudu, to cell,
sector and district levels. This administrative machinery ensures that information flows
swiftly between government and citizens, enabling effective implementation of Government
policy.
In September 2011, GOR decided to establish the Rwanda Governance Board (RGB) by
merging between Rwanda Governance Advisory Council (RGAC), National Decentralization
implementation Secretariat (NDIS) and Office responsible for the registration of CSOs (Non-
governmental organisations and FBOs) with the mission of promoting the principles of good
governance and decentralization, monitor the practices of good governance in public and
private institutions and conduct research related to governance for achieving good service
delivery, sustainable development and prosperity.
2.1.3 Fiscal and Financial Decentralization
Financial responsibility is a core component of decentralization. If LGs are to carry out
decentralized functions effectively, they must have adequate and predictable flow of income.
LG incomes will normally comprise of locally raised revenues (tax and non-tax revenue); and
Central Government subventions. As the local revenue performance is still low and incomes
from local sources still too little, the focus of fiscal decentralization is mostly around
managing Central Government subventions.
Financial resources transferred from the Central Government to Districts have over the years
increased tremendously from 47.9 billion Rwfs in 2006 to 179.2 billion in 2011/12. In
2011/12, about 33% of the previous year’s domestic revenue is transferred directly to Districts
(see table 2).
Out of the total district Budget the percentage over which Districts have discretionary control
(block grants, RLDSF development budget and own revenues) was at 53.4% in the financial
year 2011/2012.
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Table 1: Financial Transfers to Districts in Millions of Francs.
Financial
Year CDF Block grants
Earmarked
funds
Total
Domestic
Resources
% of
Domestic
Revenue
District own
revenues
2002 1,300 100 0 1,400 101,700 1.4
2003 4,000 1,500 0 5,500 117,900 4.7
2004 5,500 3,300 0 8,800 133,700 6.6
2005 3,500 3,300 0 6,800 169,600 4.0
2006 4,000 5,000 38,900 47,900 190,300 25.2
2007 6,000 8,400 57,100 71,500 242,000 29.5
2008 8,800 11,300 64,700 84,800 297,800 28.5
2009/10 48,000 16,500 78,200 142,700 385,100 37.1
2010/11 48,200 20,400 87,600 156,200 471,200 33.1 19,846
2011/12 11,400 25,000 164,758 179,200 538,400 33.3 69, 329
140,700 94,800 491,258 704,800
Source: MINECOFIN 2012. Directorate of Budget
Local revenue generation is very low: Districts generate between 5-20% and own revenues
for 2011-2012 FY were at 19.6% on average of their budgets. Urban Districts have higher
local revenue collections than their rural counterparts. To address this imbalance, mechanisms
shall be implemented to ensure balanced distribution of resources. Ministry of Finance and
Economic Planning (MINECOFIN) is in the process of commissioning a revenue potential
study for districts to determine the potential of districts after which baselines will be
determined and targets set for revenue improvement. This should form the basis for
supporting Local Governments to improve their internal revenue generation and management.
It is anticipated that with effective tax administration, within the first year of implementing
the LG tax law, local government revenues will continue to increase.
2.1.4 Institutional Framework
Rwanda Decentralization Framework provides for a range of institutional mechanisms
including National Decentralization Stakeholders Forum, Program Steering Committee,
National Decentralization Implementation Secretariat (now incorporated in Rwanda
Governance Board), and Decentralization Sector Working Group (SWG) and subsidiary
Technical Working Groups (TWG). There are also Decentralization Focal Points in Ministries
and Provinces, as well as Local Government Consultative Forum. These arrangements are
expected to complement the efforts of MINALOC and RGB by bringing together other
concerned ministries and agencies. It should be a core platform for translating the
decentralization policy as a modus operandi for all actors. However, this mechanism is not
followed in practice.
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2.1.5 Local Government Capacity Building Challenges
Institutional capacity in the LG system has improved considerably especially at district level.
Districts are handling complex operations in PFM and service delivery. However:
(i) Coordination of CB interventions for LGs has remained limited; roles and
responsibilities of institutions with a mandate to build LG capacities are not clear and
initiatives remain uncoordinated, ad hoc and generally short-term oriented, LG are not
given control and responsibility over their CB activities and thus have not been able to
assume ownership;
(ii) Capacity building is equated with training, giving little attention to organizational and
institutional aspects. Training is not effectively coordinated, there are weak standards of
training, no mechanism for validating and certification of trainings done, and there is
lack of assessment of training providers and qualifying criteria.
(iii) Capacity challenges in Local and Central Government institutions are a major limitation
to decentralisation. Existing capacities mostly focus on implementation functions that
should be performed by LGs. Central level capacity building interventions must shift
from implementation to policy conceptualization, monitoring and evaluation, capacity
building, and resource mobilization; to build the skills they require to perform these
roles.
2.1.6 Sectoral Decentralization and Service Delivery
The Rwanda Governance Scorecard (2012) indicates that quality of service delivery is one of
the least performing areas rated at 70.4%. This somewhat low rating cuts across all key
sectors as the table below demonstrates.
Table 2: Quality of service delivery rating in selected sectors
Sectoral decentralization is being undertaken differently depending on the sector and specific
service or function. Education, health, agriculture and infrastructure sectors have established
direct presence at provincial and district levels, but many of the sectoral service functions are
parallel and have not integrated with LG systems. Nonetheless, they recognize the importance
No. Service Sector/Area Rating in Percentage
1. Service delivery in Local Government 77.27%
2. Service delivery in justice sector 69.95%
3. Service delivery in land sector 73.15%
4. Service delivery in agriculture sector 77.70 %
5. Service delivery infrastructure sector 52.8%
6. Service delivery in Health Sector 75,73 %
7. Service delivery in Education Sector 80,25 %
8. Service delivery in Water Sector 56.70 %
9. Backlogs of court cases awaiting trial for more than 6
months
62%
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and ability of the LG system to deliver – through IMIHIGO and a well networked LG
structure.
2.1.7 Local Economic Development
Poverty fell from 56.7% from 2005/6 to 44.9% in 2010/11 while extreme poverty fell from
34.8% to 24.1% in the same period1. However the GoR is aiming to fast-track poverty
reduction through sustainable Local Economic Development. The Local Economic
Development approach aims to stimulate the economy, increase jobs and incomes. Since the
second phase of decentralization, Local Economic Development (LED) gained adequate
attention. Initiatives such as Integrated Development Program (IDP), Girinka, Vision 2020
Umurenge program, Ubudehe, community health insurance, crop intensification program and
land consolidation, Umurenge SACCO, Business Development Fund, Rural infrastructure
development (roads, rural electrification, ICT), urbanization and organized rural settlements,
promotion of cooperatives among others have helped reduce poverty and improve people’s
livelihoods by directly providing basic needs, creating jobs and increasing incomes. However,
most of the initiatives were central government led and coordination of the different activities
at local level can be improved.
2.1.8 Participation and Accountability
Rwanda has successfully managed to establish an efficient and effective decentralisation
model that enables citizens to access the government services at the grassroots level. This has
been achieved through the establishment of different fora, a notable one being the Joint
Action Development Forum (JADF). The JADF is a powerful instrument for leaders who
cultivate good relations with citizens, promote participation and know how to value the
viewpoints and inputs of different actors. It has provided a space for inclusive dialogues and
accountability where the voices of the people, including the marginalized and the vulnerable,
is heard and met by responsive authorities and service providers.
Citizen participation has been improved as mechanisms and processes were established to
promote citizen participation; these include Inteko z’abaturage (community assemblies),
public accountability days and open days, Ubudehe (support to vulnerable population),
Umuganda (communal work), and regular free and fair elections among others.
1 The third integrated household living conditions survey-EICV3
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Table 3: Level of Participation in different domains
No. Area of Participation Ranking
1. Decentralisation and Participation 76.70%
4. Civil Society Participation 62.57%
5. Gender Parity in Leadership 78.91%
6. Power sharing 82.85%
Source: Rwanda Governance Score Card (2012).
2.2 Sector Challenges
Despite the rapid progress made within the sector, challenges remain. Key challenges in the
sector can be summarized as follows:
I. The new decentralization law regulates in a combined legal text all local
administrative entities, irons out inconsistencies that existed especially between the
City of Kigali and its Districts, as well as clarity of the administrative and political
roles at local government level. However, gaps and inconsistencies still exist between
the decentralization laws and sector laws.
II. Sectoral decentralization is being undertaken differently depending on the sector and
specific service or function. Some sectoral agencies, notably education, health,
agriculture and infrastructure, have established direct presence at provincial and
district levels, but many of the sectoral service functions are parallel and have not
integrated with LG systems.
III. The main challenges to Local Government capacity building interventions are: (i)
uncoordinated interventions, (ii) supply driven interventions, (iii) multi-faceted, often
conflicting approaches, (iv) a plethora of funding mechanisms, and (v) local
governments’ challenge to attract, recruit, and retain a critical mass of technical and
professional personnel.
IV. The Rwanda Governance Scorecard (2012) indicates that quality of service delivery is
one of the least performing areas rated at 70.4%. This somewhat low rating and yet it
cuts across all key sectors.
V. Local Government Budgets have increased significantly over the past years, however
while overall financial resources are still not at the level to cover all needs of local
governments, the share of the budget that local governments have discretionary
control over (from own revenues and from central government transfers) is still small
and shall be increased to strengthen the decentralization process. This includes
improving own revenue collection and management.
VI. Local Economic Development is not yet sufficiently dynamic to be a driver of overall
development and poverty reduction at District level. There are still inadequate
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practical tools and options as well as limited capacities by different actors to do
participatory diagnosis; identify opportunities for private and public investment,
formulate plans of action to take up development opportunities and help establish
mechanisms to link investors to financial institutions and business development
services.
VII. Participation through decision making and demanding for accountability from
leadership is still low as illustrated by the 2012 Citizen Report Card. For instance
monitoring of services and holding leadership accountable is at 44.70% while the
formulation of District Development Plans is at 26.7%.
2.3 Policy and Regulatory Context
The Government of Rwanda is using decentralization as an instrument for people’s political
empowerment, a platform for sustainable democratization, a structural arrangement for
mobilization of economic development energies, initiatives and resources and as a means for
reconciliation, social integration and well-being.
There are numerous policies and laws that underpin Rwanda’s commitment to
Decentralization. The key ones include:
2.3.1 The Constitutional and Legal Imperatives
Decentralization is enshrined in Rwanda’s Constitution (Article 167) that provides for
decentralized entities and reiterates that they are the foundations of community development.
The law determining the organisation and functioning of the City of Kigali and the law
determining the organisation and functioning of the districts gives full effect to the
decentralized functions, which buttresses efficient and effective service delivery and local
development.
2.3.2 Vision 2020
Good governance and a capable state is one of five pillars of Vision 2020, which outlines
Rwanda’s longer term development objectives and transformations required to achieve these.
Central to this is the decentralization process adopted by the Government in the year 2000.
According to the vision 2020, the State will ensure good governance, which can be
understood as accountability, transparency and efficiency in deploying scarce resources. But
it also means a State respectful of democratic structures and processes and committed to the
rule of law and the protection of human rights in particular.
People’s participation at the grassroots level will be promoted through the decentralization
process, whereby local communities will be empowered in the decision making process,
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enabling them to address the issues that affect them. The JADF is thus expected to promote
the ideals of Vision 2020.
2.3.3 The Economic Development and Poverty Reduction Strategy (EDPRS)
The Economic Development and Poverty Reduction Strategy (EDPRS) is the medium term
plan for achieving Vision 2020 and the Millennium Development Goals, covering the period
from 2008 to 2012/13. The EDPRS sets forth three flag ship programs, namely; sustainable
growth for jobs and exports, the vision 2020 Umurenge, and governance. The governance
flagship asserts, “Government effectiveness will be improved by strengthening the role of
performance contracts (Imihigo); increasing the autonomy of local governments, while
ensuring that local authorities are accountable and responsive to the citizens…” (EDPRS Para
4. 129).
The Vision 2020 Umurenge program (VUP), another flagship of the EDPRS is an explicit
recognition of the role and importance of the decentralization system to implement the
national policies and strategies in order to achieve the MDGs and the objectives of Rwanda
Vision 2020.
Communication is emphasized in the EDPRS in terms of encouraging cooperation across
stakeholders and ensuring coordination across the public and private sectors for effective
implementation. The EDPRS will only be effective if its messages are well understood,
accepted and supported by different stakeholders, from ordinary citizens to Cabinet which can
be achieved by the use of decentralization through the JADF Mechanism.
2.3.4. EDPRS 2 Thematic Areas Priorities
EDPRS 2 aspires to attain the better quality of lives for all Rwandans through a combination
of rapid economic growth of 11.5% per annum and accelerated poverty reduction to a poverty
level of below 30% by 2018. The ambitious targets associated with EDPRS 2 mean that the
Government of Rwanda needs to apply new ways of thinking and innovation to drive the
required step change in implementation for these targets to be achieved.
In line with this, and based on initial analysis of the third household living conditions survey
(EICV3) and the fourth demographic and health survey (DHS4), in addition to discussions
held at the 9th Leadership retreat held at Gako in February, GoR identified four (4) thematic
areas which it believes reflect the emerging priorities that must be addressed to attain
Rwanda’s ambitious economic growth and poverty reduction targets. These are:
1. Economic Transformation
2. Rural Development
3. Skills development and Youth employment and,
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4. Accountable Governance
2.3.5 The Government of Rwanda programme for 2010-2017
The governance commitments of the Government’s program 2010-2017 include among
others; (i) to further good governance by continued empowerment of the population to
participate in the decision making over issues that affect them, making the village level LG
(Umudugudu) a solid LG level for mobilization, resolving issues and conflicts, and a place
where the population participate in the governance of the country; and (ii) furthering
partnerships between the public, private, and non-governmental sectors through Joint Action
Development Forum (JADF) at sector and district levels and JADF to take part in the
formulation of “Imihigo”-performance contracts, (iii) citizens service satisfaction at 80%, (iv)
National Service commenced, (v) Rwanda Reconciliation social barometer at least 95%, (v)
Rwanda in the first 10 countries with less corruption incidence.
2.3.6 Decentralization Policy Revised (2012)
The revised National Decentralization Policy seeks to establish and empower decentralized
administration in the areas of devolution, delegation and deconcentration. In order to realize
the overall goal of deepening and sustain grassroots-based democratic governance and
promote equitable local development by enhancing citizen participation and strengthening the
local government system, while maintaining effective functional and mutually accountable
linkages between central and Local Governments entities.
The revised decentralization policy will focus on the following strategic areas:
(i) Building fiscally stronger and autonomous Local Governments and empowering the
population through well-articulated and locally owned Local Economic Development
(LED) strategies; (ii) Deepening participatory, democratic and accountable local
governance systems; (iii) Building capacity for effective local service delivery and
ensuring efficient services delivery through further sectoral decentralisation,
(iii) Leveraging regional integration to scale-up opportunities for youth employment
creation, local economic empowerment, cross-border trade and security;
(iv) Consolidating national unity, cohesion and peace through resilient, synergetic local
systems; (v) Reviewing administrative structures and territorial entities to enhance
planned urban development in line with the long-term national vision; and Using ICTs to
efficiently and effectively deliver services, increasing citizen’s empowerment through
participation, as well as promoting transparency and accountability.
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2.3.7. Decentralization Implementation Plan (DIP)
The recent evaluation of the decentralization process and regular consultations between
stakeholders has indicated a number of challenges hampering optimal functioning of the
decentralization framework. These challenges evolve around:
1) Institutional and Legal Framework; 2) Sectoral Decentralization; 3) Service delivery; 4)
Fiscal and Financial Decentralization; 5) Capacity Building interventions in LG; 6) Local
Economic Development; and Volunteerism, Participation, Accountability and
Democratization.
The GoR remains committed to the successful implementation of decentralization, and the 3rd
phase Decentralization Implementation Plan (DIP) activities, outputs and outcomes cover a
wide range of development and governance areas to deal with these identified challenges.
2.3.8 Community Development Policy
The revised Community Development Policy aims to mobilise and empower the Rwandan
community to exercise its powers in decision making in order to promote its development,
commensurate with the progress of decentralization. The policy, among other things, takes
into account the challenges the community is still confronted with extreme poverty, illiteracy,
environmental degradation, widespread use of traditional farming methods, a culture of
deference to authority and weak collaboration which all constrain development.
2.4 Institutional Overview of the Sector
The implementation of decentralisation strategic plan will be coordinated by the Ministry of
Local Government (MINALOC). The other actors which form the key institutions for
Decentralization sector include the various levels of GoR administration and its coordination
bodies, and the development partners, including civil society organizations (CSOs), RALGA,
donors and the private sector. Their roles and responsibilities vis-à-vis community
decentralization are set out below:
1. The Umudugudu Committee: The Umudugudu committee is the lowest level
oversight and decision making body. It mobilises, sensitises and supports the
population to collectively define and resolve their economic and social problems. It
oversees the collection of basic data and information from the community and its
transmission to higher administrative levels for further analysis and utilization to
inform policy and administrative decisions.
2. The Development Advisory Committee established at the cell level and comprises
individuals who have gone through the Itorero process. The committee will advise the
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Akagari council. It will promote economic development and social cohesion and
champion the mindset change required to underpin these developments.
3. The Sector (Umurenge) Council: The Sector council coordinates all activities of its
Cells, harmonises the data collected from the Cells for onward submission to the
District. It oversees the provision of basic community services and is in the frontline
for participatory problem solving and analysis. It sensitises the population to
implement Government programmes and to be patriotic. It ensures proper
management of public resources, coordinates specific Government Programmes and
promotes ICT.
4. The District council: The District ensures urban, economic and demographic
development, builds the capacity of Sectors to provide better services to the
population as articulated in the District Development Plans. The District council
makes decisions on the implementation of the Action Plan prepared by the District
Executive Committee. It advises the Executive Committee on matters pertaining to
community development. It controls the budget of the District and advises the
executive committee on financial and activity execution. The District council also
coordinates and analyses vital statistics of socio-economic development of the
population, emphasises transparent management of public resources, mobilises funds
to invest in the District, and puts emphasis on scientific research in the District’s
development. Finally, it promotes ICT and social welfare of the population, and
mobilises other resources that promote development.
5. The Provincial Administration: Coordinates District Development Plans and ensures
the availability of necessary resources for implementation; ensures that the governance
mechanisms are promoting a culture of peace, transparency and participation at
District level and that governance practices in Districts are in harmony with the
national policies, laws and regulations; promotes development oriented research .
6. Rwanda Association of Local Government Authorities (RALGA): RALGA promotes
development and good governance of Districts and towns including City of Kigali.
The association promotes transparency, accountability and democracy which are all
central sustainable development. Decentralization strategic plan will therefore
reinforce RALGA to easily implement its programmes through mobilization and
sensitization of the community in development activities and good governance.
7. The Central Government: While MINALOC is the central overseer of the plan
implementation, other technical Ministries have key roles to play especially
MINECOFIN, MINAGRI, MININFRA, MINIRENA, MINEDUC, MINISANTE,
MINICOM and MIFOTRA. Under the leadership of MINALOC, they:
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Develop policies, programs and strategies at national level;
Mobilise required resources for the implementation of the programs;
Build capacity of the administrative organs charged with the implementation of
national programs;
Evaluate and monitor implementation of these policies and programs.
Harmonise the community-based initiatives with the sectoral strategies, norms
and standards.
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CHAPTER: 3 DECENTRALIZATION STRATEGIC FRAMEWORK
This Strategic Plan has been drawn up in detail to facilitate the Decentralization Sector to
implement the activities programmed for the five year period systematically. The
Decentralization Sector and its key stakeholders have committed itself to the development of
a strategic plan which focuses on the following major objectives:
3.1 Overall Objective
The overall objective of Decentralisation is to deepen and sustain grassroots-based democratic
governance and promote equitable local development by enhancing citizen participation and
strengthening the local government system, while maintaining effective functional and
mutually accountable linkages between central and Local Governments entities.
In order to realize this objective, the following specific objectives will be pursued:
(i) To enhance and sustain citizens’ participation in initiating, making, implementing,
monitoring and evaluating decisions and plans that affect them by transferring power,
authority and resources from central to local government and lower levels, and ensuring
that all levels have adequate capacities and motivations to promote genuine
participation.
(ii) To promote and entrench a culture of accountability and transparency in governance
and service delivery by strengthening national and local accountability mechanisms to
make them more relevant, credible, conducive, supportive/attractive to all citizens,
leaders and non-state entities.
(iii) To fast-track and sustain equitable local economic development as a basis for
enhancing local fiscal autonomy, employment and poverty reduction, by empowering
local communities and local governments to explore and utilize local potentials,
prioritize and proactively engage in economic transformation activities at local, national
and regional levels, and ensure fiscal discipline.
(iv) To enhance effectiveness and efficiency in the planning, monitoring, and delivery of
services by promoting joint development planning between central and local
governments and ensuring that service delivery responsibilities and corresponding
public expenditure are undertaken at the lowest levels possible.
(v) To consolidate national unity and identity (ubunyarwanda) by fostering, enhancing
and sustaining the spirit of reconciliation, social cohesion and common belonging as a
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nation hence ensuring lasting peace and security as well as community of purpose for
sustainable national development.
(vi) To build and consolidate volunteerism, community work and self-reliance based on
cultural and other values of collective responsibility, personal worth and productive
involvement.
(vii) To fast-track and translate the regional integration agenda into politically meaningful,
economically fruitful venture for Rwandans in all corners of the country, and as a strong
anchor for national stability, peace and unity.
3.2 Contribution to EDPRS 2
The strategic planning process identified several strategic issues for the decentralization sector
to focus on for the period 2013/14-2017/18. It was agreed that the decentralization sector
institutions and partners focus on six strategic areas to guide the implementation of
decentralization sector’s key priority programmes and activities.
In comparison with the previous generation of Sector Strategies and EDPRS1 priorities for
the Decentralization sector, the Strategic Plan makes clear the new direction of the sector and
new innovations that will drive Rwanda to achieve its Vision 2020 goals. These are also
considered as critical priorities for the achievement of the mission statement described above.
The six strategic areas of focus are:
i) Legal framework and Sectoral Decentralization
ii) Service Delivery
iii) Fiscal and Financial Decentralization
iv) Capacity building
v) Local Economic Development
vi) Volunteerism, Participation, Accountability and Democratization
3.3 Strategic Areas of Focus / Priorities
3.3.1: Legal Framework and Sectoral Decentralization
The decentralization policy has been revised. Decentralization laws (determining the
organization and functioning of local administrative entities) have been reviewed and
updated. The new decentralization law regulates in a combined legal text all local
administrative entities, irons out inconsistencies that existed especially between the City of
Kigali and its Districts, as well as clarity of the administrative and political roles at local
government level. However, gaps and inconsistencies still exist between the decentralization
laws and sector laws such as land law, forestry law and laws on environment. To eliminate
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these inconsistencies, it requires identification and a detailed review of all laws that impact on
decentralisation.
Moreover, more responsibilities are devolved to LGs (and more specifically to Districts). This
is making Districts overstretched and adjustments must be done to delegate activities further
to sub-District entities giving enough time and space to Districts to execute what is retained at
their level, while effectively planning, monitoring, supporting and coordinating the lower
levels of local government (sectors, cells, and villages).
This calls for adjustments in LGs organizational structures, roles and functions, staff numbers,
and functional linkages between Central Government and Local Government.
Within the 3rd phase of decentralization, it is envisaged that services are taken closer to the
population. We will therefore continue to empower Local Government entities closest to the
population especially cell and village levels by establishing legal and regulatory framework
that allows them to deliver services in an efficient and effective manner. The Government
aspires that by bringing services closer to the population, citizens will have a direct role in the
management of issues and affairs, and have greater in decision making.
The objective of sectoral decentralization is to ensure that there is no ambiguity on what
services are decentralised and what services are retained by the sectoral ministries/central
government. Policy and strategy documents must clearly indicate the institutional
arrangements that will be created / strengthened / revamped to achieve better results regarding
sectoral decentralization. Such measures might include strengthening line ministries’
participation in the Decentralization Sector Working Group and re-organizing the
decentralization focal points in ministries to increase their commitment to the process. This
was envisioned in the first and second phases of decentralization but remained largely
inactive for most sectors.
Sectoral decentralization is being undertaken differently depending on the sector and specific
service or function. Some sectoral agencies, notably education, health, agriculture and
infrastructure, have established direct presence at provincial and district levels, but many of
the sectoral service functions are parallel and have not integrated with LG systems.
Nonetheless, they recognize the importance and ability of the LG system to deliver. Sector
ministries have to be provided with sufficient guidance on decentralisation and how they can
effectively integrate into the LG system for more cost-effective service delivery. The hallmark
of decentralization is taking governance and service delivery to the people. Critical to this is
the resources that accompany roles and responsibilities. The critical success factor for sectoral
decentralization shall be matching resources with decentralized services.
Outcome 1: Coherent and harmonised decentralized structures, policy guidelines and
laws to improve the effective implementation of decentralization.
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Outputs:
1.1 Institutional structures, policies and legal frameworks reflecting the updated roles and
responsibilities of decentralized entities are developed, adopted and implemented.
1.2 Sector regulatory frameworks that are relevant to decentralization are identified and
harmonised with the updated decentralization regulatory framework.
Outcome 2: Sectoral Ministries, Departments and Agencies operational frameworks
harmonized with decentralization policy and principles.
Outputs:
2.1 An inventory of services to be decentralised by each sector Ministry, Department and
Agency is conducted.
2.2 Decentralized services are costed and allocated resources are commensurate with
responsibilities to enhance upwards and downwards accountability;
2.3 Effective coordination of sectoral Decentralization with all line Ministries/Departments
and Agencies is operational.
3.3.2: Service Delivery
Service delivery is more meaningful when the population have an opportunity to provide
feedback on the quality and timeliness of the services delivered. Through various avenues,
namely; the Rwanda Governance Scorecard and Rwanda Citizen Scorecard, the citizens
raised their voices on service delivery. The verdict has been issued and Government has
listened. The Seven years Government program 2011-2017, has set a target of service
delivery satisfaction at 80%. Through nationwide sensitization and campaigns, Offering
quality and fast services-“Gutanga serivisi zinoze kandi zihuse” is becoming a “motto” for
both the central and local government leadership. However, this will be better achieved by
furthering the modernisation of how services are delivered. Central to this modernisation is
the use of Information Communication Technologies (ICTs).
Outcome 3: Increased efficiency and effectiveness in service delivery by Local
Governments.
Outputs:
3.1 Citizen report cards and Community Score card mechanisms are institutionalised and
citizens are satisfied with quality and timeliness of services.
3.2 An in-depth survey on identification service delivery gaps is conducted;
3.3 Service delivery charters for decentralised services are developed and disseminated.
3.4 Automation and computerisation of service delivery (use of ICTs) to the extent possible.
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3.3. 3: Fiscal and Financial Decentralization
Fiscal transfer mechanisms have evolved making the transfer route shorter by eliminating
inter-agency transfers. Effective financial year 2012/13, no more inter-entity transfers are
allowed and all funds for activities to be spent in districts will be transferred directly to
Districts. This decision is already helping to streamline inter-governmental relations and bring
local governments and sectoral ministries to the same planning and budgeting table.
Key issues that will have to be addressed in the long run are: (i) ensuring effective tax
administration by the Local Governments, and (ii) increasing budget and revenue base in
Local Governments, (iii) improving financial management for non-budget agencies, planning
and budgeting in Local Government.
Outcome 4: Efficient, Sustainable resource mobilization, administration, transfer
systems and capacities at Local Governments developed and enhanced.
Outputs:
4.1 Enhanced local administrative entities revenue collection and administration performance;
4.2 Improved access to sub-national borrowing for financing local capital infrastructures;
4.3 Improved comprehensiveness and transparency of intergovernmental fiscal relations;
4.4 Improved bottom-up participation of LGs in budget preparation and approval processes;
4.5 Enhanced predictability and control in budget execution of local governments;
4.6 Improved accounting and reporting of local administrative entities;
4.7 Improved PFM systems and capacities at subsidiary entities levels (service delivery units);
4.8 Improved PFM capacities at local administrative entities level.
3.3. 4: Local Government Capacity Building
Capacity building for Local Governments is an important area that has received attention and
resources, yet results remain unsatisfactory. The main challenges to Local Government
capacity building interventions are: (i) uncoordinated interventions, (ii) supply driven
interventions, (iii) multi-faceted, often conflicting approaches, (iv) a plethora of funding
mechanisms, and (v) local governments’ challenge to attract, recruit, and retain a critical mass
of technical and professional personnel.
To address these challenges, the Government of Rwanda has taken firm decisions, including;
(i) assigning the role of coordination to Rwanda Governance Board, and (ii) ensuring that
Local Government capacity building interventions are demand driven and owned by Districts.
These decisions are slowly, but surely improving LG capacity building harmonisation, quality
and relevance.
Outcome 5: LG Capacity building is harmonized, well-coordinated and demand driven
to address local needs.
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Outputs:
5.1 Capacity building plans in all Districts are developed, implemented and monitored
and/or updated;
5.2 Induction training is institutionalised and mandatory;
5.3 Harmonized funding mechanism for LG capacity building (Basket fund/pooled funding)
is established and operational; and guidelines for managing the fund are issued;
5.4 Local Government Coaching program for priority areas is operationalized in all
Districts;
5.5 A staff retention strategy for Local Governments is developed and implemented;
5.6 Adequate infrastructure and facilities at Decentralized entities are established;
5.7 Local Government Institute Operationalized and Strengthened.
3.3. 5: Local Economic Development
Local Economic Development aims to stimulate the economy, increase jobs and incomes.
Since the second phase of decentralization, Local Economic Development (LED) gained
adequate attention. Initiatives such as Integrated Development Program (IDP), Girinka,
Vision 2020 Umurenge program, Ubudehe, community health insurance, crop intensification
program and land consolidation, Umurenge SACCO, Business Development Fund, Rural
infrastructure development (roads, rural electrification, ICT), urbanization and organized
rural settlements, promotion of cooperatives among others have helped reduce poverty and
improve people’s livelihoods by directly providing basic needs, creating jobs and increasing
incomes. However, most of the initiatives were central government led. There are still
inadequate practical tools and options as well as limited capacities by different stakeholders to
do participatory diagnosis, identify opportunities for private and public investment, formulate
plans of action and develop partnerships to take up these opportunities and help establish
mechanisms to link investors to financial institutions and business development services. Well
implemented LED will create more jobs, raise people’s (men, women and youths) incomes by
promoting their access to finance, mobilizing the population for saving as well as influencing
settlement patterns.
Outcome 6: Creating vibrant local economies that are attractive to investments and
skills
Outputs:
6.1 Community and Local Economic Development strategy is developed and
implemented;
6.2 LED action plan for each District is developed and implemented,
6.3 Public-private partnerships to attract, retain and facilitate private capital investments
especially in rural areas and strategic sectors are promoted,
6.4 Access to finance forums are established and operationalized in Local Governments,
6.5 Local development, land use and settlement planning is integrated and coordinated
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3.3.6: Volunteerism, Participation, Accountability and Democratization
Volunteerism
Volunteering and volunteerism are strongly embedded in the Rwanda culture. Volunteerism
in Rwanda’s tradition featured through self-help and mutual aid activities as well as caring for
the weak and rendering community service. The main motivation behind volunteerism in
Rwanda is to alleviate social economic constraints experienced by individuals or their
communities and improve their quality of life.
It has become apparent that Rwandans are eager to contribute time, resources, and skills to
help fellow citizens, promote socio-economic activities, advocate for others, and demonstrate
love, concern and respect. Indeed, the social, economic, and historical issues and challenges
in Rwanda provide an excellent opportunity for people to contribute their time, energies, and
skills to contribute to building Rwanda.
Voluntary community initiatives constitute the highest form of ownership of development by
citizens. Citizen-centered governance processes are characterized by high level of trust among
the people, and between the people and their leadership. Voluntary efforts at the local level,
and the results they have created in different domains – from transitional justice to conflict
resolution; from public health and hygiene to security, poverty reduction and education –
demonstrate how Rwandans have taken up the responsibility of developing their communities
and country, through decentralization.
The Government recognizes that the scale-up, continued effectiveness and sustainability of
voluntary efforts at community level will depend on how those involved are mobilized,
motivated and appreciated, and how the different mechanisms are coordinated and synergized
to create greater and sustainable impact. The Government will ensure that the spirit of
volunteerism is upheld, nurtured and promoted, while carefully avoiding the risk of alienation
by external incentives.
Participation, Accountability and Democratisation.
Presently, there are a number of avenues for citizens’ participation which include among
others, National Dialogue, Decentralization Sector Working Group at National Level, JADF
at District and Sector Levels, Councils from the Village to the District and City of Kigali,
Community Assemblies (Inteko z’abaturage), public open and accountability days, as well as
monthly community works. Imihigo preparation and evaluation exercise is another area of
citizen participation that has yielded good results.
Participation is also evidenced through the vote (electing leadership at different levels).For
instance, in 2010, voter turnout in Presidential elections was at 97%, while turnout for local
30
government elections in early 2011 was 93%2. This means people are exercising their voting
rights. However, participation through decision making and demanding for accountability
from leadership is still low. For example involvement of citizens in monitoring of services
and holding leadership accountable is at 44.70% as illustrated in the CRC 2012
The strategy will try to address the fundamental aspects of effective citizen participation by
establishing and strengthening systems, processes, and mechanisms to enhance bottom up
accountability and participation. For effective participation of citizens in matters affecting
their daily lives and influencing decisions that suit their needs, the sector will innovatively
design mechanisms that will promote their voice and bottom up accountability. The elected
have to be accountable to their electorate. These will include among others the use of social
media platform, and strengthening community radios.
Outcome 7: Enhanced volunteerism, bottom up/downwards accountability and Citizens
participation and democratization
Outputs:
7.1 Bottom up/downwards accountability in Local Government enhanced;
7.2 Community Participation strengthened through community Radios to promote citizen
participation in matters affecting them and awareness of government programs;
7.3 Social Media Platform established in Local Governments to promote citizen
participation voice and accountability;
7.4 Citizen Participation in LG Planning, Budgeting and in Monitoring is re-enforced and
operationalized;
7.5 Stakeholders (Private sector and Civil Society) participation in planning,
implementation and monitoring processes at District is improved;
7.6 National service program to foster volunteerism is established and operationalized;
7.7 Mechanisms for effective, gender-responsive and social inclusion in decision-making
and governance processes are reinforced and operationalized.
3.4 Contribution to EDPRS 2 Thematic Areas/Priorities and Cross-Cutting Issues
This section outlines how the Decentralization sector will contribute to the thematic areas of
Accountable Governance and Rural Development (to which it is a key contributing sector);
productivity and youth employment; and economic transformation as well as the cross-cutting
issues of: capacity building; regional integration; gender and family; environment, climate
change and disaster management; disability and social inclusion; and HIV/AIDS and non-
communicable diseases.
2 National Electoral Commission Records. www.comelena.gov.rw
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3.4.1 Accountable Governance
The overall objective of the accountable governance thematic area is to ensure that citizens
are effectively involved in both planning and implementation process and hold leaders
accountable to better service delivery. Citizen engagement, ownership and more efficient
governance are herein seen as pre-requisites for success of the EDPRS implementation. The
decentralization sector is directly contributing to this objective and the specific objectives,
namely: to (1) Increase citizens participation and mobilization, (2) to ensure better service
delivery in all sectors and to (3) Promote Public Accountability and Democratic Governance.
Central to this is people’s empowerment and participation in making decisions over issues
that affect them most.
The decentralization sector itself, as outlined in this strategy is pursuing the same objectives.
Citizen participation will be improved in local government planning, implementation of
activities and monitoring at District level, through means like the Joint Action Development
For a, Public Private Dialogue and targeted consultations. Systems and structures will be
established to promote people’s voice and holding authorities accountable in the development
that affects the local communities. Accountability at local government level will be promoted
through means like the open days, pre-budget hearings, publication of relevant data and
reports, and regular dialogue between the elected local leaders and the local communities.
3.4.2 Rural Development
Decentralization Sector will also contribute to all specific objectives of the rural development
thematic area, namely: 1) rural poverty is significantly reduced in all Districts; 2) growth can
be inclusive and equitably distributed; and 3) economic transformation occurs within the rural
population to generate income for the rural population. Specifically, the sector will be
spearheading the elaboration of Community and Local Economic Development Strategies and
their implementation plans in all Districts. Fiscal and Financial decentralization will be
strengthened and special emphasis put on the measures to increase District own revenue
potentials and increase discretionary budgets for equitable growth in all parts of Rwanda. The
concept of Local Economic Development will not only lead to development of the rural areas,
it will also trigger job creation for the people. District capacity building is looked at in terms
of human, infrastructural and institutional capacities that are requisite to local development
and answering to individual needs.
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The sector will also develop and implement a strategic, multi-sector, and multi-disciplinary
approach to urban planning, investment, and development. All these activities are ultimately
meant to contribute to poverty reduction, specifically in the rural areas.
3.4.3 Productivity and Youth Employment
Youth makes 40.2% of the population and of these, 200,000 young adults attain working age
annually; unemployment in the youths is about 28.6%, while under-employment is about
27%. This is exacerbated by limited employability skills and limited access to finance,
information, and ment
oring.
During the decentralisation sector strategic plan period, efforts will be harnessed to:
Include women and youths in planning, budgeting, and policy-making in a meaningful
way at local government level;
Promote women and youths economic opportunities as a part of the local economic
development strategies of the districts; and
Ensure that essential public services provided by local governments like health and
education benefit women and the youth.
Decentralization sector will also contribute to productivity and youth employment through
promoting skills development and productivity in Local Government capacity building.
3.4.4 Economic Transformation
Decentralization will have a key role to play in:
Facilitating economic growth. By promoting provision of quality and timely service
delivery, the sector will be contributing greatly towards economic growth. The sector
will promote all programs aimed at bringing public services like education, or
infrastructures such as electricity and roads nearer to the last consumer to ensure that
the economic potentials of all Districts can be unlocked. The use of all possible
facilities including online authentication to reduce the normal red tape measures in
service delivery will further promote efficiency and increased satisfaction of the
citizens.
Ensuring that economic growth is equitable so that all sections of the population,
including the poorest, benefit from the rapid economic growth envisaged over the
EDPRS2 period. The Decentralization sector, through programs such as Vision 2020
Umurenge (VUP), Ubudehe and others will contribute greatly to improve distribution
33
of resources and thus a more equitable growth. Through more local economic
development, local jobs will be created and allow more citizens to benefit from
increased revenue.
Public Private Partnerships will be promoted to boost investments and business in
order to better leverage public resources for local development.
Local Government structures create an enabling doing business environment through
improving service delivery and infrastructure development.
3.5 Cross-Cutting Issues
Cross cutting issues such as capacity building; regional integration; gender and family;
environment and climate change, disaster management; disability and social inclusion; and
HIV/AIDS and non-communicable diseases will be taken into consideration for the
implementation of the Decentralization Strategic plan and specifically in the realization of
specific projects.
The sector is commited to promoting capacity building for local goverments by
coordinating and harmonizing all capacity building interventions. More efforts will be
invested in the establishment of functional Local Government Institute that will be
offfering professional programs suited and tailored to individual local needs and
challenge. Pay and rentation mechanisms will be catered for in the phase of EDPRS 2.
People centred service delivery approach that is non-discriminatory involving all
categories of the citizens and raising their voice in decision making in matters
affecting them will actively address the cross-cutting issue of disability and social
exclusion.
The cross-cutting issue of gender and family will also be systematically addressed.
Gender disaggregated data collection will be carried out in order to understand the
extent to which decentralization programmes consider the different roles of men and
women and meet their particular needs; and the findings will be used to inform
decentralization policy and programming. Particular attention will be given to
improving role played by women in different levels of local government
administration and working out how best the sector will explicitly address all
identified gender dynamics and gaps related to the sector.
34
Regional integration at local level with neighbouring countries, across borders shall be
strengthened through promotion and facilitation of cross border trade, joint
environmental management and monitoring, establishment of joint permanent
commissions for promotion of peace and regional security. Moreover the local LED
action plans will identify specific regional comparative advantages and strive to
develop these potentials.
3.6 Underpinning areas of the sector
3.6.1 Evidence based Planning and M&E
The Sector has identified evidence based Planning and M&E as a critical and underpinning
area that is critical to its success.
Local Government plans seek to address needs that would impede service delivery and
poverty reduction. The point of departure for evidence based planning is that needs are
determined by reviewing the situation and conducting assessments as well as involving
citizens in identifying key development priorities. From assessments, priorities are determined
and the plans respond to the priorities of the population.
The District Development Plan (DDP) is a most important implementation tool. It helps to
make sure that public funds are used in the best way possible. An evidence based plan makes
sure that each District’s plan addresses specific situation in each District responding to real
problems of the citizens. In the absence of the evidence based plans, programs’ coordination
becomes difficult, resources are wasted and monitoring and accountability becomes
complicated. Key strategies to addressing this area include; providing Districts with tools for
data collection, and ensuring that each District has a complete set of data updated regularly.
Outcome 8: Enhanced Evidence based planning and M&E.
Outputs:
8.1 A robust decentralization M&E system developed and implemented.
8.2 Complete profiles for disaggregated administrative statistics for each District
developed and regularly updated.
8.3 Citizen report cards and Community Score card mechanisms are strengthened
8.4 Integrated Development Planning (between central and local level) are
strengthened.
Outcome 9: Improved Communication and Coordination among Decentralization sector
stakeholders.
Outputs:
9.1 MINALOC Communication strategy developed and implemented.
9.2 Local Government Communication Strategy Developed and Implemented.
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9.3 Sector coordination is institutionalized, sector dialogue is improved and
coordination mechanisms are respected.
3.7 Result Chain
This section develops the hierarchical chain of results to be achieved when the sector strategy is fully implemented. It shows which Goal/Impact,
will be achieved as a result of outcomes that will also be achieved by implementing related outputs of which are results of implemented
activities. The results chain is based on Results Based Management (RBM) principles and was developed in consistency with international
standards and practices.
Figure 1: Results Chain
37
Impact: Contribution of
Decentralisation Sector to
accountable Governance and
poverty redaction increased
Outcome1: Coherent and
harmonized decentralized
structures, policy guidelines
and laws to improve the
effective implementation of
decentralization.
Outcome 4: Efficient, Sustainable resource
mobilization, administration, transfer
systems and capacities at Local
Governments developed and enhanced.
Output 1: Institutional
structures, policies and legal
frameworks reflecting the
updated roles and
responsibilities of decentralized
entities are developed, adopted
and implemented. Community
and Local Economic
Development strategy is
developed.
Output 2: Sector regulatory
frameworks that are relevant to
decentralization are identified and
harmonised with the updated
decentralization regulatory
.framework.
Output 2: Improved access to sub-national
borrowing for financing local capital infrastructures.
Output3: Improved comprehensiveness
and transparency of intergovernmental
fiscal relations.
Output 5: Enhanced predictability and control in budget execution of local
governments.
Output4: Improved bottom-up participation of LGs in budget
preparation and approval processes.
Thematic areas: Economic Transformation Productivity and Youth Employment Rural Development Accountable Governance
Output 7: Improved PFM systems and
capacities at subsidiary entities levels
(service delivery units).
Output 1: Enhanced local administrative entities revenue collection and administration
performance.
Output 6: Improved accounting and
reporting of local administrative entities.
Outcome2: Sectoral
Ministries, Departments
and Agencies operational
frameworks harmonized.
with decentralization
policy and principles.
Outcome3: Increased
efficiency and
effectiveness in service
delivery by Local
Governments.
Outcome5: LG Capacity
building is harmonized,
well-coordinated and
demand driven to address
local needs.
Output 1: An inventory of services
to be decentralised by each sector
Ministry, Department and Agency is
conducted.
Output 2 Decentralized services
are costed and allocated resources
are commensurate with
responsibilities to enhance
upwards and downwards
accountability.
Output 3 Effective coordination of
sectoral Decentralization with all
line Ministries/Departments and
Agencies is operational.
Output 1: Citizen
report cards and
Community Score
card mechanisms are
institutionalised and
citizens are satisfied
with quality and
timeliness of services.
Output 2: An in-depth
survey on
identification service
delivery gaps is
conducted
Output 3: Service
delivery charters for
decentralised
services are
developed and
disseminated.
Output 4:
Automation and
computerisation of
service delivery (use
of ICTs) to the
extent possible
Output 8: Improved PFM capacities at
local administrative entities level.
Output 1: Capacity building plans in all
Districts are developed,
implemented and monitored and/or
updated.
Output 3: Harmonized funding mechanism
for LG capacity building (Basket
fund/pooled funding) is
established and operational; and
guidelines for managing the fund
are issued.
Output 2: Induction training is
institutionalized and mandatory.
Output 4: Local Government Coaching
program for priority areas is
operationalized in all Districts
Output 5: A staff retention strategy for
Local Governments is developed
and implemented
Output 6: Adequate
infrastructure and facilities at
Decentralized entities are
established
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Impact: Contribution of
Decentralisation Sector to
accountable Governance and
poverty redaction increased
Outcome 6: Creating
vibrant local economies
that are attractive to
investments and skills.
Outcome 7: Enhanced volunteerism,
bottom up accountability and Citizens
participation and democratization.
Output 1: Community and Local
Economic Development strategy is
developed
Output 2: Community and Local
Economic Development Strategy Implementation Plan developed
Output 3: Local Economic potentialities
(competitiveness) assessment for each
District conducted
Output 2: Community Radios strengthened to
promote citizen participation in matters
affecting them and awareness of government
programs
Output3: Social Media Platform established
in Local Governments to promote citizen
participation voice and accountability.
Output 5: Stakeholders (Private sector and
Civil Society) participation in planning, implementation and monitoring processes at
District is improved.
Output 4: Citizen Participation in LG Planning,
Budgeting and in Monitoring is re-enforced and
operationalized.
Thematic areas: Economic Transformation Productivity and Youth Employment Rural Development Accountable Governance
Output 4: LED plan for each District is developed and implemented
Output 5: Public-private partnerships to attract, retain and facilitate private capital investments especially in rural areas and strategic sectors promoted Output 7: Mechanisms for effective, gender-
responsive and social inclusion in decision-
making and governance processes are
reinforced and operationalized operationalized
Output 1: Bottom up accountability in Local
Government enhanced
Output 6: National service program to foster
volunteerism is established and
operationalized.
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Table 4: Decentralisation Sector Strategic Plan: Objective-Indicator Matrix
Strategic Area Outcomes Verifiable Indicators EDPRS 2 Thematic Area
contributed to
SA 1. Legal
Framework and
Sectoral
Decentralization
1. Coherent and harmonised
decentralized structures, policy
guidelines and laws to improve
the effective implementation of
decentralization
1. Percentage of staff positions filled in revised
organizational structures that match with the
mandates of Local Governments approved by
Districts councils and Sectoral Ministries. (KPI)
Accountable Governance.
2. Sectoral ministries and
agencies operational frameworks
harmonized with
decentralization policy and
principles.
2. Percentage of costed decentralized activities and
services to ensure budgets are commensurate with
responsibilities.
Rural Development,
Accountable Governance
and Economic
Transformation.
SA 2. Service
Delivery
3. Increased efficiency and
effectiveness in service delivery
by Local Governments.
3. Percentage of citizens expressing satisfaction with
the quality and timeliness of service delivery at
local level (KPI)
Rural Development,
Accountable Governance
and Economic
Transformation. 4. No. of Districts and sub-district entities with
service delivery charters
SA 3. Fiscal and
Financial
Decentralization
4. Efficient and financially
autonomous Local Governments
are established for sustainable
development.
5. Percentage increase of the expenditures at District
level over which Local Governments have
discretionary powers (KPI)
Rural Development,
Accountable Governance
and Economic
Transformation. 6. Percentage of local own revenues in relation to
their total District budget
7. Percentage of internal and external audit
recommendations fully implemented
SA 4. Capacity
Building
5. Capacity building
interventions are harmonised,
well-coordinated adequately and
demand driven to address local
8. Percentage of Local Government Officials (both
elected and recruited) and District Councillors
receiving capacity building for the positions they
hold.
Rural Development,
Accountable Governance,
Productivity and Youth
Employment and
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needs. 9. Percentage of District capacity building planned
activities that are implemented.
Economic
Transformation.
10. Rate of Local Government Staff turnover
reduced by x%.
SA 5. Local
Economic
Development
6. Creating vibrant local
economies that are attractive to
investments and skills.
11. Increase in the number of Projects of Public-
Private Partnership model in Local Government.
Rural Development and
Economic
Transformation. 12. Percentage of population living in organized
settlements.
13. Percentage of private entrepreneurs and
cooperatives who are satisfied with the business
environment for LED.
14. Percentage of adult population working with
financial institutions
15. Number of new SMEs registered in the
District.
SA 6. Volunteerism,
Participation,
Accountability and
Democratization
7. Enhanced volunteerism,
bottom up accountability and
Citizens participation and
democratization
16. Percentage of citizens satisfied with their
participation in decision making (gender
disaggregated) at local level. (KPI)
Accountable Governance.
17. Percentage of the population that perceives the
District Administration as transparent,
accountable and citizen oriented
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3.9 Strategies and Programs to Achieve Objectives & Outcomes
This section provides details on which strategies and programs will be used and how to achieve
the sector objectives and outcomes. The following are key strategies and programmes that
Decentralization sector will adopt during the EDPRS 2 period:
3.9.1 Capacity Development for Local Governance and Decentralized service delivery
Policy and institutional reforms in Rwanda happen in a constant quest to bring about
effectiveness and efficiency through rationalization and integration. This requires that capacity
development becomes a continuous long-term venture. Government acknowledges that capacity
development for decentralisation is still not well coordinated, insufficiently funded and
inadequately monitored. It is also supply-oriented, mostly dependant on available funding rather
than on needs. But some initiatives are underway to streamline capacity development in
decentralisation, including a recently formulated LG capacity development strategy.
The Government shall ensure that Central Government entities have the requisite ability and
confidence to decentralize and consistently provide guidance to decentralized entities, and that
all Local Governments have capacity to attract, grow, productively deploy, and retain the level
of competence and talent desired in order to function effectively in all decentralized domains.
The Government will take appropriate measures to support Local Governments that are unable
to attract staff in professional domains deemed essential, to ensure equitable development.
Capacity building activities shall be undertaken in a coherent, systemic, coordinated, consistent,
and incremental manner so as to realize maximum results in a cost-effective way. More so,
capacity development in LGs shall, in addition to human aspects, address institutional and
organizational aspects of capacity development, including appropriate deployment, supervision,
facilitation and retention to realise optimum results.
3.9.2 Increase the capacity of JADF coordination Mechanism
Existence of the JADFs is a good step forward and provides a good space for dialogue and
sharing of practices. Recent review however revealed that JADFs commissions at Sector
(Umurenge) level not yet really functional. For JADF to be an effective coordination and
knowledge sharing body and membership alone is not enough which calls for a need to increase
42
the capacity of JADF coordination committees and active participation of all JADF partners is
necessary to contribute to Local Economic Development. Continuing promoting effective citizen
participation for sustainable development and strengthen JADF mechanism will ensure
collaboration and partnership between the LGs, private sector and the civil society.
3.9.3 Financing and Resource Mobilisation Mechanisms
To develop fiscally strong and autonomous Local Governments, politically empowered and
wealthy citizens in the next one decade, is a big ambitious task that the decentralization sector in
particular and the Government of Rwanda in general is committed to. Successful implementation
of this strategic plan will require considerable amount of funding that is reliable. As has already
been demonstrated through different policy and legal instruments for fiscal decentralisation,
including setting up a Local Government development support fund, the GoR is committed to
ensuring that whatever resources will be required to realize the policy are mobilized and availed
on time.
The Government will mobilize funding from the following sources, besides existing public
sources:
(i) Community resources especially grassroots-based voluntary activities;
(ii) Private investment in local development projects;
(iii) Mobilizing and effectively aligning efforts of civil society organizations, including
NGOs and faith-based organizations already involved in local development activities.
(iv) Mobilizing traditional development partners, and interesting other partners through
organizing regular round-table dialogue sessions;
(v) Establish a sector wide approach mechanism for decentralization to ensure effective
programming.
3.9.4 Strengthening Imihigo reporting system
The Imihigo performance contract practice has played a great role in the implementation of
national policies and priorities. MINALOC/MINECOFIN/PMO will develop an integrated and
unified reporting format and system for use between LG and CG this will further reduce the
burden on LG of having to respond to too many reporting requirements.
43
3.9.5 Reinforce Benchmarking in the Sector:
Decentralization sector will continue to set up the customized standards and benchmarks in
relation to international best practices on decentralization. The sector will also continue to
document all Rwanda’s home grown initiatives and disseminating them to all stakeholders. The
on-going IDP model projects will also be considered and reinforced among other district
priorities.
3.9.6 Promoting Integrated Citizen-centred Local and National Development Planning
The Government emphasizes the wellbeing of the Rwandan citizens as the focal point for all
actions related to development. All planning whether they are village plans or district and
national plans; regardless of the sector or development domain, and no matter whether its short-
term annual plans or long-term visions, must focus on transforming the citizens. This means that
there must be inter-connectedness in all planning processes and outcomes.
The decade of implementing programmes such as Ubudehe and Vision 2020 Umurenge
Programme (VUP), has demonstrated the need and possibility of development domains to singly
focus on the citizens’ welfare. There are, however, still some disconnect between Local
Government planning and Central Government’s strategic planning. The Decentralization sector
will have to ensure that Local and national planning become more integrated, and the inter-
governmental planning processes have strong, legally-backed linkages, through Imihigo and
other performance management systems.
Development planning shall be integrated, participatory, evidence-based, and focused on
addressing the priority needs of citizens, taking into consideration, the overall national
development Vision and constraints of the resource envelope.
3.9.7 Use of ICTs for enhanced efficiency and effectiveness in service delivery
The defining feature of ICTs is their ability to help institutions and individuals to collect,
manage, store, retrieve and distribute information and knowledge. Information and knowledge
management is critical for decentralization as well as economic development. For Rwanda, ICTs
will break the physical, economic and socio-cultural barriers to communication. The
Decentralization sector recognizes that for decentralization to be successful as a tool for spurring
44
democratic governance and equitable economic growth, information, data, and knowledge must
be acquired quickly, and dispersed rapidly, widely and inexpensively.
The Decentralization sector will increase access to, awareness and usage of ICTs within LGs
and communities. Through e-government applications, services provided to citizens shall be
provided in the most efficient and effective manner. The Decentralization sector shall ensure ICT
plays a central role in expanding civic education and functional literacy, and in increasing
citizen’s participation, transparency and accountability.
The point on “linkage to budget programmes is missing. According the guidelines we
should have here a table with three columns.
45
CHAPTER 4: IMPLEMENTATION OF THE SECTOR STRATEGIC PLAN
This chapter intends to portray the implementation strategy of the Sector Strategic Plan. Key
features of this chapter include the sequencing of interventions, roles and responsibilities of
partners and stakeholders in sector as well as mechanisms for coordination and information
sharing between stakeholders in the sector. This part also draws a risk analysis and discusses
the mitigation strategies once risks are identified.
4.1. SEQUENCING OF INTERVENTIONS
4.1.1. Key strategic areas
The Decentralization sector has identified six key strategic areas which will play an important
role in the implementation of the SSP. These include:
Legal Framework and Sectoral Decentralization
Service Delivery
Fiscal and Financial Decentralization
Local Government Capacity building
Local Economic Development
Volunteerism, Participation, Accountability and Democratization
4.1.2. Sequencing of the programs
For some of the above interventions to be implemented, the Decentralization sector will need
to design policies which will guide the legal frameworks and implementation plans. This aids
the policy framework of Sectoral decentralization, Local Economic Development and
Volunteerism, Participation, Accountability and Democratization. Legal and institutional
frameworks will also be key instruments for the implementation of the identified programs.
However, such programs whose legal and institutional frameworks are in place will need to be
implemented without delay. These are mainly Service delivery, Fiscal and Financial
Decentralization, Capacity building. Those whose policy development is still ongoing (Local
Economic Development and Sectoral Decentralization) will probably impact the legal and
institutional frame work by creating a need for revision.
46
4.1.3. Inter-dependence between programs
Among the six key strategic areas there are close relationships and interdependences. Though
service delivery might be a crosscutting program, we find it more related to sectoral
decentralization, which involves decentralizing different services and activities which were
provided at central government level.
Further, Local Economic Development is more linked to fiscal and financial decentralization
than any other program.
There are, however, some programs which are more or less cross-cutting. These are capacity
building which is required to perform other programs, legal and institutional frameworks
which are prior to implementation and evidence-based planning which involves gathering
informative data with the objective to have an effective planning.
Sectoral
Decentralization Service Delivery
Cross cutting:
- Local Government Capacity Building
- Legal and Institutional Framework
- Citizen Centred and Evidence based planning
- Stake holder Coordination
Local Economic
Development
Volunteerism, Participation,
Accountability and
Democratization
Fiscal and
Financial
Decentralization
DECENTRALIZATION
47
Lastly, the volunteerism, participation, accountability and democratization program will stand
alone as an enabling factor to participation and effective decentralization.
4.2. ROLES AND RESPONSIBILITIES OF PARTNERS / STAKEHOLDERS
4.2.1 MINALOC
The Ministry of Local Government leads the implementation of Decentralization Policy and
Good Governance Programs. Specifically, the Ministry has seven core functions with respect
to Decentralization which are:
Develop and disseminate sector related policies, strategies and programmes,
Develop legal frameworks,
Build institutional and human resource capacities of decentralised entities,
Monitor and evaluate the implementation of sector related policies, strategies and
programmes,
Oversee the functioning of institutions supervised by the Ministry,
Promote effective intergovernmental relations and communication with the private
sector and other stakeholders,
Mobilise resources for sector activities, including promoting partnerships for joint
development efforts by stakeholders at local level.
MINALOC will co-ordinate the implementation of this strategic plan and will continue to lead
the multi-stakeholder Decentralization Sector Working Group. In collaboration with partners,
MINALOC will oversee and draw up an annual implementation plan for the sector and
monitor progress against it.
Other central Government Ministries will continue to play their complementary role in the
implementation of Decentralization Strategic plan and it is now a sector priority on
strengthening sectoral Decentralization.
4.2.2 Stakeholders
In addition to Public Institutions, Decentralization stakeholders comprise of civil society
organizations, private sector and development partners. Their roles in community
development are set out below:
48
I. The Civil Society Organizations (CSOs): The role of the CSOs in community
development is to:
Organise with administrative authorities at central and local level,
consultative forums and thematic groups to debate on issues pertaining to
local development;
Get involved in all phases of development programmes, from the
conception to the evaluation phase;
Act as a catalyst of development initiatives and propose appropriate actions
to the Government;
Contribute to the construction and promotion of positive values (solidarity,
unity, truth etc);
Consult the population in order to represent and protect its interests;
Provide feedback to the population on commitments made, on policies and
lessons learnt.
II. The Private Sector: The Private sector (including consultancy firms, SME/SMI,
construction companies, economic interest groups) is involved in community
development mainly through implementation of public infrastructure programs
(rural and urban roads, urban sewerage), whether initiated by Central government
Ministries or by LGs. In so doing, they contribute to community development,
which promotes transparency and enhances the Public - Private Partnership. The
role of Private Sector is to:
Produce goods and services necessary for the implementation of programs,
projects and community actions;
Develop a local infrastructure through public works private investment;
Act as a catalyst in the promotion of rural economy and of local
investments;
Provide financial support, to community initiatives through the system of
micro-finance and build viable microfinance institutions;
Create local employment for people not employed in the public sector;
Increase mutual accountability in implementation of public works by
instituting checks and balances ;
Contribute to the broadening of the knowledge base by investing their
profits into research and development, innovations and skills development.
III. The development partners (donors): The role of the donors is to:
Provide financial (through budget support) and technical support to
targeted interventions in the Districts;
49
Contribute to the financing of programmes, projects or any other
community development activities;
Support and advise the government on improving coordination
including the harmonisation of interventions;
Organise and participate in consultative meetings with all stakeholders
through clusters or joint action development fora;
Assist local organs each in its domain of expertise, in the conception,
development, implementation, monitoring and evaluation of
development projects;
Build capacity of local institutions and communities and provide
financial support in form of grants or credits;
Assist technically in utilisation of proven new technologies.
4.3 MECHANISMS FOR COORDINATION AND INFORMATION SHARING
The Decentralization Sector Strategic plan will be managed through different structures as
outlined below. The structures will be complemented and reinforced by the wider operations
of all central government entities (ministries and agencies) and local governments in line with
the mandate, roles and responsibilities defined for each level of government.
4.3.1 Coordination at decentralised levels
The Joint Action Development Forum (JADF) is the coordination structure at District level.
The District JADF is the mechanism through which the District administration and its
stakeholders will meet to discuss and coordinate development planning, monitoring and
evaluation. The JADF is a forum through which frank discussion and dialogue should occur
in order to support the local government administration in management of the development
process in its district; nevertheless, it is important to note that the JADF is not a forum for
decision-making or negotiation of external aid.
The goals of the JADF are:
To solicit inputs from service providers and other stakeholders in the district for joint
planning, monitoring and evaluation of Performance-Based Contracts and, thus,
service delivery
To foster greater aid effectiveness through the effective allocation and use of external
finance aimed at achieving objectives identified through District Development Plan
and Performance-Based Contracts
50
To coordinate and monitor development activities in a district in order to ensure
alignment with both the Rwanda Aid Policy and the Fiscal and Financial
Decentralization Policy
Although the JADF provides stakeholders with an opportunity to voice opinions on planning,
monitoring and evaluation, these processes will be fully owned and finalized by the district
government itself, in consultation with central government.
4.3.2. Decentralization Sector Working Group (DSWG)
The Decentralization Sector Working Group (DSWG) comprises technical representatives of
all MDAs (Including at least one districts high level representative per province),
Development Partners and Civil Society supporting DIP implementation through the DIP
basket fund or other related technical and financial contributions.
The DSWG will be chaired by the Permanent Secretary of MINALOC and co-chaired by the
lead donor on decentralization. It will be the forum for coordination of technical and
management inputs for the DIP. The DSWG will meet on a quarterly basis and its tasks will
include to:
Review DIP work plans, progress reports and financial reports, and advise DPSC
members as necessary;
Provide information on own initiatives to facilitate co-ordination with DIP
implementation where necessary;
Review technical inputs to the DIP;
Participate in field visits to review DIP implementation and issues arising at local
government level; and;
Participate in joint annual reviews of DIP implementation.
Technical Working Groups will be established under the DSWG. These include Capacity
Building, LED, Evidence-based Planning and Civic Participation, Voice and Accountability.
These TWGs will be meeting on a monthly basis.
4.3.3. Joint Sector Review Meetings
The Joint Sector Review (JSR) forums bring together all Sector Working Group (SWG)
stakeholders to engage in policy dialogue and to ensure ownership, accountability and
51
transparency of the EDPRS 2 implementation and monitoring process. Two such forums will
be held annually, in March-April and September-October. The March-April JSR will be
mainly forward looking focusing on the midyear Sector Strategy progress report and updating
of the EDPRS Results and Policy Matrix and CPAF. The September-October JSR will
primarily backward looking focusing on the sector performance and budget execution for the
previous fiscal year while identifying key priorities for the preparation of the budget for the
following fiscal year.
4.3.4 Decentralization Program Steering Committee (DPSC)
The Program Steering Committee chaired by the Minister of MINALOC will steer, oversee
and supervise implementation of the DIP. The DPSC will include the Ministers of
MINECOFIN, MIFOTRA, MINAGRI, MININFRA, MINEDUC, MINISANTE, and
MINIRENA, MINICOM (and other ministries as associated members); the Rwandese
Association of Local Government Authorities (RALGA). The DPSC's main mission will be to
provide strategic advice and support for coordination and harmonization of all stakeholders’
support to the DIP and serve as its decision-making body. The DPSC will meet at least once a
year (and anytime when it is deemed necessary) and have responsibility for the following
tasks:
Cultivate and assure sustained political commitment for the implementation of
Decentralization Policy;
Review the Decentralization Policy and strategy and provide direction on how these
could be strengthened;
Evaluate and where necessary agree on strategies to ensure integration of
decentralization principles in all national reform programs;
Review RDSF implementation progress report and analyze challenges, including the
strategic co-ordination of various initiatives, and deciding on the way forward;
Mobilize adequate resources for DIP implementation;
Manage DIP risks and provide guidance on mitigation mechanisms.
52
To ensure effective functioning of this important policy orientation body, the DPSC will be
supported by the Decentralization Department in Rwanda Governance Board which will serve
as its secretariat.
4.3.5 Decentralization Focal Points in Ministries, Agencies and Provinces
Planning Directors in MDAs, Provinces and Districts are designated to be Decentralization
Focal Points. These officers will be associate members of the DSWG and provide support for
harmonizing and coordinating decentralized sectoral initiatives within the Decentralization
sector.
In relation to the Decentralization strategic plan, the Focal Points will:
Provide DPSC Secretariat (in RGB) with information on Decentralization strategic
plan related initiatives and funding to facilitate co-ordination and avoid duplication;
Facilitate implementation of the Decentralization strategic plan in their respective
areas of responsibility – including direct support to local governments;
Ensure that their respective MDAs fulfill their designated roles and responsibilities as
envisaged within the Decentralization sector;
Provide timely and relevant information to respective DPSC members to support high
level decision-making with implications to the Decentralization sector;
Participate in DSWG meetings/forums when deemed necessary.
These Focal persons will meet in the framework of Local Government Consultative Forum to
exchange information and best practices between different level of government. This forum
will be convened twice a year and will be chaired by a high ranking official in MINALOC
having decentralization in his/her attributions.
Local Government staff at all levels will facilitate DIP activities in collaboration with
implementing partners including civil society and private contractors. They will contribute to
the monitoring and evaluation framework for the DIP through their engagement in the Joint
Action Development Forums (JADF).
The JADF Permanent Secretaries in collaboration with the District Director of Planning will
spearhead this activity by reporting progress of inputs and outputs in agreed formats to
DSWG, facilitating and participating in periodic field reviews and the annual joint reviews by
all DIP stakeholders.
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4.4 Risk analysis and mitigation strategies
The following are key identified risks and their respective mitigation strategies:
I. The GoR has maintained the Vision of creating well planned cities, towns and other
urban centres as power houses of the economy and to enhance off-farm employment.
It is appreciated that the existing Local Government structures do not have sufficient
institutional and administrative arrangements for urban development. Consequently,
the district authorities have limited guidance, technical competences and other
resources to plan for and manage urban-specific services.
The Government will promote, facilitate and guide the creation of urban centres of different
levels from cities, municipalities, towns and trading centres and ensure that they are
appropriately delineated, graded according to international standards and provided with
basic infrastructure and other amenities to serve as regional and area-based springboards for
economic growth and social transformation.
II. Insufficient financial resources available for increased and sustained coverage of
decentralized programmes. Increased decentralized entities will require increased
resource flows from both Government and donor sources that are both sustained and
predictable. In the absence of such resources, sustainable scale-up will not be
possible.
In order to mitigate this risk a financing strategy will be developed for the strategy which will
identify sources of funding to enable sustainable coverage.
III. Information requests from districts by the Central Government tend to exert pressure
on the Local Government personnel and systems, which could compromise their
ability to deliver on their mandate in addition to concerns for quality of data.
The Government will ensure that districts have capacity to generate, analyse and utilize
comprehensive, scientifically credible data for decision making in respect to their planning
and performance measurement, as well as the capacity to store and share such data and
information with other stakeholders in ways that are timely, convenient and cost-effective,
while maintaining the information security and integrity rules.
54
IV. No inter-entity transfers are now allowed and Local Governments have to budget for
and receive funds directly from Treasury. Entrusting huge public funds to Local
Governments presents enormous challenges – it calls for strengthening local and
national institutional structures for public financial management; local capacity to
increase and sustain local government revenue mobilization. Local revenue collection
also presently does not exceed 20% of the estimated potential.
The Government will ensure that all Local Governments are effective and efficient in
planning, budgeting, disbursing and accounting for public funds, while enhancing or
maintaining their fiscal autonomy. Central Government entities will be strengthened to
decentralize and fully integrate their activities within the Local Government system.
V. A number of challenges have been identified in the decentralisation policy process
to-date, these relate to some actors’ inadequate ability to articulate, own, communicate
and receive feedback on government policy issues with clarity and confidence.
The Government will ensure that the whole approach of communicating and managing
information within the decentralisation sector implementation is revisited. The Government
shall adopt and endeavour to build a culture of appreciating communication as a two-way
process that enhances collaboration and minimizes conflict; espouses feedback; empowers
subordinates especially at lower level; builds and exudes confidence and reliability; and
reflects mutual respect. The Central Government shall take a lead to demonstrate good
practices for Local Government actors to learn and practice.
VI. National policies and initiatives are dynamic with their number continuing to scale up,
while little qualitative guidance is given to LGs and few (if any) staff is seconded to
support new dynamics. Therefore, districts lack capacities to tend to the specific
priorities of their electorate.
There is a need to match the number of national initiatives with human, technical, and
financial resources as well as strengthening guidance and monitoring for implementation.
55
CHAPTER 5: MONITORING AND EVALUATION PLAN
This chapter outlines the key monitoring and evaluation systems and process in the sector and
goes on to present M & E. Tables A, B, C and D set out key indicators, policy actions to be
implemented and targets to be achieved within the strategic plan period.
The monitoring and evaluation (M&E) framework is a key element of the Sector Strategic
Plan. M&E aims to ensure the safe management of resources and that the programmes of the
sector attain expected results and thereby have an impact on the objectives of the sector. A
good M&E system provides good quality information on time, enabling the sector to report on
good progress, or to alert the sector of bad progress and, pending further analysis, to devise
remedial actions.
M&E will be performed at various levels, and it will involve many partners of the sector and
beneficiaries. At the level of the central government, the sector will hold sector working group
meetings to monitor progress and will conduct an annual Joint Sector Review meetings.
The Decentralization sector established technical working groups that have clear terms of
reference and specific areas of focus and will regularly guide the thorough and carryout in-
depth analysis of critical issues within the sector. These Technical Working Groups are
chaired by a government agency and co-chaired by a Development partner.
5.1 Sector Monitoring Arrangements
Regular monitoring of performance will continue to be carried out through the Joint Sector
Reviews which take place twice a year (backward and forward looking). These reviews assess
performance against sector key performance indicators and policy actions agreed upon within
the Decentralization Sector Working Group. The Decentralization Sector Working Group and
its technical working groups will also continue to assess progress of activities quarterly
against the detailed sector implementation plan.
Recognising the need for a strengthened monitoring and evaluation system, the
decentralization sector is committed to development of a robust and more comprehensive
system that better captures information on all programmes and initiatives across the sector
using common indicators. Given the scarcity of baseline data on key performance indicators,
56
the sector is thinking on how to creatively set up a functional sector M&E framework during
the EDPRS II period that is tailored to sector specific needs and reality and frequency in data
collection. This will enable the sector to progressively capture more systematic information
on all programmes across the sector.
The sector M&E framework will be complemented and further strengthened by the
development of a strong management information system (MIS) within the sector. The design
of the sector MIS is envisaged to be completed within the first two years of the EDPRS 2
implementation to guide a robust Monitoring and Evaluation System.
The sector MIS will be comprehensive and integrating key indicators at sector and district
levels and data disaggregated by gender and other categories. The MIS will thus enable the
generation of a wide range of M&E reports and analysis to inform programme planning and
management, as well as the refinement of programme design.
There will be interfaces with the MIS at national and decentralised levels and information into
the MIS will regularly be updated by all concerned authorities at different levels. Local
Government will benefit most from the integrated and synchronized MIS system for Local
Government since it will be solving the problem of multiple reporting requirements from
Local to Central Government.
5.2 Sector Evaluation Plan
Starting with the initial year of EDPRS II implementation, the sector will have harmonized it
survey plans with the M&E Reporting requirements and agreed upon a set of indicators, data
sources, frequency of data collection and reporting requirements on key sector performance
indicators. The evaluation will disaggregate data to look at the impacts on particular programs
and areas contributing decentralization and how all the performance indicators are regularly
assessed. This kind of evaluation will be a basis for the regular improvement of
Decentralization Policy and Programs in Rwanda.
5.3 Focused Analytical Work
The sector will also carry out some specific pieces of analytical work that respond to issues
identified through routine monitoring and which support key priorities under this strategy.
Planned analytical work includes the following:
57
Local Economic potentialities (competitiveness) assessment for each District conducted,
to help the sector in understanding different potentials specific to different localities to
inform investments and development planning.
Sectoral Decentralization Survey in Rwanda, to help the sector understand the extent to
which sector Ministries and Agencies are complying with decentralization principles and
objectives;
Additional studies are expected to be carried out in response to issues emerging from routine
monitoring and needs identified in future years.
5.4 Reporting and Tracking Schedule
Monitoring and evaluation of the Decentralization Strategic Plan (DSP) will take place at
different stages during the implementation period 2013/14-2017/18. The following constitute
Decentralization Strategic Plan (DSP) reporting and tracking schedules:
Semi-annual reports: These will be completed in December of each FY.
Annual reports/reviews: These will be completed every July at the end of the FY.
Mid-Term Review (MTR): This will be undertaken in the third year of Implementation
of the Decentralization Strategic Plan to assess progress of the Strategy by all
stakeholders and examine the extent to which expected outcomes and outputs are
being delivered and results progressively achieved. In addition to this, the MTR will
examine the extent to which the broader policy environment remains conducive to the
achievement of expected results. The MTR will finally make recommendations for the
remaining period of the DSP.
Final evaluation will determine the extent to which the DSP has contributed, over its
entire duration to the achievement of expected outcomes in the overall context of
decentralization.
58
Annex 1: SECTOR PRIORITIES AND OUTCOMES MATRIX
(1)
THEMATIC OUTCOME
(2)
SECTOR PRIORITY
(3)
SECTOR
OUTCOME
(4)
SECTOR OUTCOME INDICATOR
Strengthened
accountability
Legal Framework and Sectoral
Decentralization
Coherent and harmonised
decentralized structures, policy
guidelines and laws to improve the
effective implementation of
decentralization.
Percentage of staff positions filled in revised organizational
structures that match with the mandates of Local Governments
approved by Districts councils and Sectoral Ministries. (KPI)
Sectoral Ministries, Departments and
Agencies operational frameworks
harmonized with decentralization
policy and principles.
Percentage of costed decentralized services to ensure budgets
are commensurate with responsibilities.
Improved citizens’ scores
on the provision of services
Service Delivery Increased efficiency and effectiveness
in service delivery by Local
Governments
Percentage of citizens expressing satisfaction with the quality
and timeliness of service delivery at local level (KPI)
No. of Districts and sub-district entities with service delivery
charters.
Fiscal and Financial
Decentralization
Efficient and financially autonomous
Local Governments for sustainable
development are enhanced.
Percentage increase of the expenditures at District level over
which Local Governments have discretionary powers (KPI)
Percentage of local own revenues in relation to their total
District budget (KPI)
Percentage of internal and external audit recommendations fully
implemented
Capacity Building Capacity building interventions are
harmonized, well-coordinated and
demand driven to address local needs.
Percentage of Local Government Officials (both elected and
recruited) and District Councillors receiving various capacity
building interventions for the positions they hold.
Percentage of District capacity building planned activities that
are implemented.
Rate of Local Government Staff turnover reduced by x%.
59
Enhanced rural settlements
which facilitate access to
basic services, farm and
off-farm economic
activities through
integrated District land-use
plans
Local Economic Development Creating vibrant local economies that
are attractive to investments and skills % of population living in organized settlements,
Increase in the number of Projects of Public-Private Partnership
model in Local Government.
Percentage of entrepreneurs and cooperatives who are satisfied
with the business environment for LED
Percentage of adult population working with financial
institutions.
Number of new SMEs registered in the District.
Increased participation by
women and men in
planning processes and
solving their own problems
Volunteerism, Participation
and Accountability
Enhanced volunteerism, bottom up
accountability and Citizens
participation and democratization
Percentage of citizens satisfied with their participation in
decision making at local level. (KPI)
Percentage of the population that perceives the District
Administration as transparent, accountable and citizen oriented
(KPI)
Enhanced rural settlements which facilitate access to basic services, farm and off-farm economic activities through integrated district land-use plans
Creating vibrant local economies that are attractive to investments and skills
60
ANNEX 2: SECTOR MONITORING MATRIX
SECTOR
OUTCOME
SECTOR OUTCOME
INDICATOR
BASELINE
(2012/13)
2013/14 2014/15 2015/16 2016/17 2017/18 Means of
Verif.
Reporting
Responsibility3
Target Actual Target Actual Target Actual Target Actual Target Actual
Coherent and
harmonised
decentralized
structures, policy
guidelines and
laws to improve
the effective
implementation
of
decentralization
Percentage of staff
positions filled in
revised organizational
structures that match
with the mandates of
Local Governments
approved by Districts
councils and Sectoral
Ministries.
59% 70% 75% 80% 85% 90% Adopted
LGs
structures
by
cabinet
meeting
of
Ministers
MINALOC,
MIFOTRA
Districts
Increased
efficiency and
effectiveness in
service delivery
by Local
Governments
Percentage of citizens
expressing
satisfaction with the
quality and timeliness
of service delivery at
local level (KPI)
70.4% 72% 73.5% 75%
80% 85% Service
delivery
surveys
Districts,
MINALOC
No. of Districts and
sub-district entities
with service delivery
charters
0 30
Distric
t
416
sectors
2148ce
lls
Improved
service
delivery
Districts,
MINALOC
Efficient and
financially
autonomous
Local
Governments are
Percentage increase
of the expenditures at
District level over
which Local
Governments have
discretionary powers
53.4%4
55% 57% 60% 62% 64% Revenue
collection
reports
Districts
MINALOC
3 Ministry, Department or Agency 4 This refers to share of total local government budget made up by own revenues, RLDSF contribution to local development projects and Block Grants.
61
established for
sustainable
development.
(KPI) MINECOFIN
Percentage of local
revenues in relation to
total budget (KPI)
19.6% 20% 21% 22% 23% 24% District
revenue
inspectio
n reports
Districts,
MINALOC
Percentage of internal
and external audit
recommendations
fully implemented
63% 65% 70% 75% 78% 80% Audit
reports
recomme
ndations
inspectio
n reports
MINECOFIN
MINALOC
Capacity building
interventions are
harmonised, well-
coordinated,
adequately and
demand driven to
address local
needs.
Percentage of Local
Government Officials
(both elected and
recruited) and District
Councillors receiving
various capacity
building interventions
for the positions they
hold.
20 25 30 45 50 65 Training
surveys
Districts
MINALOC
Percentage of District
capacity building
planned activities that
are implemented.
(KPI)
0 50 60 70 80 85 Capacity
Building
District
funded
plans
survey
Districts
MINALOC
PSCBS
62
Creating vibrant
local economies
that are attractive
to investments
and skills.
Percentage of
population living in
planned settlements
(KPI)
37.5% 43% 50% 56% 63% 70% Rural
settlemen
t surveys
MINALOC
RHA
Percentage of adult
population working
with financial
institutions
72% 74% 76% 78% 79% 80% Access to
finance
reports
MINICOFIN,
MINICOM
Enhanced
volunteerism,
bottom up
accountability
and Citizens
participation and
democratization
Percentage of citizens
satisfied with their
participation in
decision making at
local level. (KPI)
76.7% 78% 80% 80% 85% 90% Perceptio
ns
surveys
MINALOC
RGB
GMO
Percentage of the
population that
perceives the District
Administration as
transparent,
accountable and
citizen oriented (KPI)
44.7% 46% 48% 50% 52% 54% Perceptio
ns
surveys
like CRC
&CSC
MINALOC
RGB
63
ANNEX 3: SECTOR PRIORITY/POLICY OUTPUT MATRIX
5 These are output and should be stated in output language. State both the ‘action’ to be taken and the expected result, e.g. training organized and 500 teachers trained.
THEMATIC
OUTCOME
SECTOR
OUTCOME
SECTOR
OUTPUT
(Aggregated)
PRIORITY/POLICY OUTPUT
(ANNUAL OUTPUT)5
2013/14 2014/15 2015/16 2016/17 20117/18
Strengthened
accountability
Coherent and
harmonised
decentralized
structures, policy
guidelines and laws
to improve the
effective
implementation of
decentralization.
Organizational
structures and legal
frameworks to reflect
the updated roles and
responsibilities of
decentralized entities
are developed.
Revised
organizational
structures that
match with the
responsibilities
of the Districts
approved by
cabinet.
Legal
Instruments
(laws and
orders) relating
to the revised
LG structures
approved by
cabinet.
Strengthened mechanisms in place on downward accountability over LGs
Enhanced mechanisms in place on downward accountability over LGs
Enhanced mechanisms in place on downward accountability over LGs
Sectoral Ministries,
Departments and
Agencies
operational
frameworks
harmonized with
decentralization
policy and
principles.
An inventory of
services to be
decentralised by each
sector Ministry,
Department and
Agency is done.
Inventory of
services and
responsibilities
at Decentralized
levels
established and
approved by
competent
authorities.
Costing
guidelines for
decentralized
services and
responsibilities
according to the
inventory are
provided to
sector
Ministries and
Local
Governments.
Communication and
coordination
strategy among and
between sector
Ministries and local
governments is
developed and
approved by
stakeholders.
Developed communication and coordination strategy among and between sector Ministries and local governments is monitored and evaluated
Developed communication and coordination strategy among and between sector Ministries and local governments enhanced by stakeholders.
Improved citizens’ scores on the provision of services
Increased efficiency
and effectiveness in
service delivery by
Local Governments.
Citizen report cards
and Community
Score card
mechanisms are
institutionalised
Citizen report
cards and
Community
Score card
survey 2013
conducted and
published
Citizen report
cards and
Community
Score card
survey 2014
conducted and
published
Citizen report cards
and Community
Score card survey
2015 conducted and
published
Monitoring Citizen
report cards and
Community Score
card survey 2016
conducted and
published
Monitoring Citizen
report cards and
Community Score card
survey 2017 conducted
and published
64
Survey on service
delivery gaps
conducted and
service delivery
charters developed
Service
Delivery
charters for
Local
Governments
are developed
and Published.
An independent
in-depth survey
on
identification
service delivery
gaps is
conducted and
presented to the
Sector Working
Group.
Monitoring and
evaluating findings
of the survey on
identification
service delivery
gaps
Monitoring and
evaluating findings of
the survey on
identification service
delivery gaps
Enhancing service
delivery at LGs entities
Automation and
computerization of
service delivery (use
of ICTs) to the extent
possible
Potential and
requirements for
computerization and
automation are
identified and
presented to the
sector working
group.
Required ICT
infrastructure for
computerized service
delivery is available
in Districts and
Sectors
Civil registration service
fully Automated and
computerised.
Enhanced
rural
settlements
which
facilitate
access to
basic
services, farm
and off-farm
economic
activities
through
integrated
Efficient and
financially
autonomous Local
Governments for
sustainable
development are
enhanced.
Enhanced local
administrative
entities revenue
collection and
administration
performance.
Local
Government
revenue
potential study
is validated by
Fiscal
Decentralizatio
n Steering
Committee.
Validated Local
Government
revenue
potential study
is implemented
by Fiscal
Decentralizatio
n Steering
Committee.
Assessment on the
performance of LG in
utilising revenue
potentials
65
district land-
use plans
Improved access to
sub-national
borrowing for
financing local
capital
infrastructures.
Conduct a feasibility
study of the capacity
of local
administrative
entities to access
borrowing
mechanisms
Develop procedural
guidelines and
legislation for sub
national entities to
access loans.
Conduct capacity
building of local
administrative entities on
the borrowing
mechanisms.
Improved PFM
Systems, capacities
and practices at local
administrative
entities.
Undertake
PEFA at local
administrative
entities’ level to
have a
benchmark to
assess PFM
capacity
reforms at
decentralised
level.
Recommendatio
ns from the
PEFA are
integrated in
Local
Government
Capacity
Building Plans
and reporting.
IFMIS application
to integrate narrative
and financial
reporting
dimensions
modified.
IFMIS application to
integrate narrative
and financial
reporting dimensions
modified and used
effectively
Strengthened
accountability
Capacity building
interventions are
harmonized, well-
coordinated and
demand driven to
address local needs.
Capacity building
plans in all Districts
are developed
implemented and
monitored and/or
updated;
5 Year District
capacity
building plans
are approved by
District
councils.
Basket fund
(pooled
funding)
mechanism for
LG capacity
building is
established and
operational.
Induction training
guidelines and
instructions are
developed and
disseminated to
decentralized
entities.
Local Government
Institute
Operationalized
Local Government
Coaching program
for priority areas and
staff retention
strategy are
operationalized in all
Districts.
Coaching
program
manual and
procedures
developed
Coaching
program
implemented in
all Districts
A staff retention
strategy for Local
Governments is
developed and
approved by cabinet.
Approved staff
retention strategy for
Local Governments
by cabinet.is
implemented
accordingly
66
Enhanced
rural
settlements
which
facilitate
access to
basic
services, farm
and off-farm
economic
activities
through
integrated
district land-
use plans.
Creating vibrant
local economies
that are attractive to
investments and
skills.
Public-private
partnerships to
attract, retain and
facilitate private
capital investments
especially in rural
areas and strategic
sectors is promoted
LED plans and
strategies for
each District
are developed
and validated
by District
council.
Community and
Local
Economic
Development
Strategy
Implementation
Plan validated
by SWG.
Access to finance
awareness
campaigns in Local
Governments
conducted.
Local Government
Public Private
Partnership (PPP)
strategy developed
and validated by the
SWG.
Local Government
Public Private
Partnership (PPP)
strategy developed is
implemented the
stakeholders.
Increased
participation
by women
and men in
planning
processes and
solving their
own
problems
Enhanced
volunteerism,
bottom up
accountability and
Citizens
participation and
democratization
Citizen Participation
in LG Planning,
Budgeting and
Monitoring
mechanisms are re-
enforced and
operationalized.
Gender
sensitive
citizens’ guide
for participatory
planning and
budgeting
processes are
developed and
disseminated
Social Media
Platform is
established in
Local
Governments to
promote citizen
participation
voice and
accountability
Conduct a survey on
social Media
Platform in Local
Governments to
promote citizen
participation voice
and accountability
Private sector and
Civil Society
participation in
planning,
National
Service
Implementation
plan developed.
Presidential
order on
National
Service
developed and
National service
activities well
communicated to
the population
National services
values embedded in
all sectors of the
government
National services impact
assessment conducted
67
implementation and
monitoring processes
at District is
improved.
adopted by
cabinet.
National service
program to foster
volunteerism is
established and
operationalized.
National service
program to
foster
volunteerism is
implemented.
National service
program to
foster
volunteerism is
strengthened.
National service p
National service
program to foster
volunteerism is
enhanced.
National service p
National service
program to foster
volunteerism is
enhanced.
Mechanisms for
effective, gender-
responsive and social
inclusion in decision-
making and
governance processes
are reinforced and
operationalized.
Effective,
gender-
responsive and
social inclusion
in decision-
making and
governance
strengthened.
Mechanisms for
effective,
gender-
responsive and
social inclusion
in decision-
making and
governance
enhanced.
Conducted a survey
on effective, gender-
responsive and
social inclusion in
decision-making and
governance
processes
strengthened.
Implement
recommendations
from the survey on
gender-responsive
and social inclusion.
68
CHAPTER 6: COST AND FINANCING OF THE SECTOR STRATEGIC PLAN
This Chapter should outline the costing and proposed financing for the Sector Strategy.
6.1 Funding Mechanisms
Implementation of the Decentralization Strategic Plan will be through its program (DIP) and
action plans will be financed by internal and external resources.
6.2 Internal national resources
National financial resources supporting Decentralization Strategic Plan are channelled
through a number of systems and include:
National budget allocations to government institutions contributing to decentralization
process implementation;
Local Governments’ own revenues (tax and non-tax);
Intergovernmental fiscal transfers for service delivery (block grants, earmarked grants
and capacity development funds).
Decentralization Strategic Plan is meant to reinforce coordination and harmonization in use of
these resources with the overall purpose of more efficiently achieving Decentralization Policy
objectives. Here, efficient implementation of the Fiscal and Financial Decentralization Policy
represents a key priority as intergovernmental fiscal relations play a central role in the success
of the decentralization process by shaping the relations between central government and
districts.
69
Annex 1 Documents consulted Musoni, P. (200?). Decentralisation and good governance in Rwanda.
NDIS (??). Developing the Capacity of Joint Action Development Forums. Strengthening the
Joint Action Development Mechanism for Better Accountability, Improved Service
Delivery and Local Economic Development. A Project proposal by: The National
Decentralisation Implementation Secretariat (NDIS).
Republic of Rwanda (July 2000). Rwanda Vision 2020.
Republic of Rwanda (May 2001). National Decentralization Policy.
Republic of Rwanda (2003). Constitution of Rwanda.
Republic of Rwanda (2005). Making Decentralized Service. Delivery Work in Rwanda.
Putting the People at the Centre of Service Provision. Policy note based on discussions at
the 2005 National Conference on Decentralization, Accountability, and Service Delivery.
Republic of Rwanda (Jun. 2007). Administrative procedures manual for local governments in
Rwanda.
Republic of Rwanda (Aug 2007). Rwanda Decentralization Strategic Framework. Towards a
sector-wide approach for decentralization implementation.
Republic of Rwanda (Sep. 2007). Economic Development and Poverty Reduction Strategy
2008-2012.
Republic of Rwanda (Feb. 2008). Rwanda Decentralization Implementation Program 2008-
2012 (DIP).
Republic of Rwanda (Apr. 2008). Community Development Policy (Apr. 2008).
Republic of Rwanda (Aug 2008). Rwanda: Joint Governance Assessment report.
ANNEX 1: List of Stakeholders consulted Annex
Guidelines for development of Sector Strategies in the context of EDPRS 2 elaboration
