Romeo D.N. Gbartea
INTRODUCTION
Decentralization and sustainable development are essential issues to the post conflict reconstruction and governing processes of Liberia and these concepts can not be overemphasized. The paper interrogates the historical context of decentralization, conceptual clarifications of decentralization and sustainable development, the establishment of local governance in Liberia, the centralized problem, decentralization and the Poverty Reduction Strategy (PRS), Why decentralization for Liberia, the Government Commission and the decentralization policy, the threat of decentralization, the next strategic phase of decentralization and conclusion.
The Historical context:
The Perspective of Decentralization in Africa:
TheapplicabilityofDecentralization in Africa is as old as the foundation of the continent. Anglophone and lusophone African countries have seen multiple pre-and post-colonial decentralizations (Ahwoi, 2000:2; UNCDF 2000; Mamdani 1996; Mbassi 1995:23). Some francophone Central African countries also decentralized just before independence (Weinstein 1972:263-266). Decentralized governments both the “indirect rule” and association or assimilation by the French were set up to manage the rural world (Mamdani, 1996). In post colonial local government had two prominent features: (i) ruling group[s] sought to control local level public affairs, and (ii) local social groups generally avoided or disregarded sub national political –administrative organizations. After independence, governments across Africa continued to use local governments as administrative units, and major functions of local governments- such as health care, education, road construction and local taxation-were transferred to central government control (Ribot, 2002). Decentralization has been used in Africa to expand the reach of the state, so reforms took the shape of deconcentration-extending central administration into the local arena.
The Establishment of Liberia and Local Government
Liberia is a country located on the west coast of Africa and has had independence since 1847. The colony was the base for the settlement of freed slaves that arrived in 1822 on the Perseverance Island. Unlike most countries on the continent of Africa that were colonized by Europeans, Liberia is an exception to colonization. The country public administrative system has three equal and distinct branches: the Legislative, the law making body of the state; the Judiciary, the interpreter of the law and the Executive Branch, the enforcer of the law.
Over the period of time, especially in the quarter of the nineteenth century, there was a rapid decline of the economy of Liberia that requires new strategies. In 1880, G.W. Gibson proposed a scheme by which full citizenship would extend to indigenous communities in return for increased production of agricultural commodities (sawyer, 1992). In 1881, a group of Liberians organized the Liberia Interior Association as private effort to “promote our commercial, agricultural, and political interests in the interior” and to “impress the government and nation with a due sense of the importance of these interests to the country” (Observer, 1881). In 1869-1870, an interior department was enacted into law by the Legislators. The real intent of the Liberia’s Government interior policy was the expansionist policy by Europeans (Sawyer, 1992).
In the midst of an interior policy, a bureaucratic structure by central government was orchestrated. For instance, President Coleman proposed to make each ethnic group an administrative unit, each would contain a military detachment whose commander would be the administrative head of the unit and operate in consultation with an indigenous person to be called the “general superintendent”, responsible to settle internal dispute, and receive government stipend (Annual Message of William Coleman, 1896). President Arthur Barclay indicated in his plan that each district was to be administered by a commissioner appointed by the President and responsible to him through the secretary of the interior. The plan further strengthens the authority of the central government. In spite of President William V.S.Tubman 1949 rules to improve the administration of the hinterland, there was still a difficult challenge to encourage participatory governance where the local people will have an exclusive control over the management of local administration. The 1986 constitution of Liberia strictly emphasized the appointment of Superintendent and other county officials for the administration of local government. The Political, Administrative and fiscal responsibilities of the local government structure is indeed in the hands of central authority.
The Centralized Problem:
The old centralized governance issue in the unitary nation-state (Liberia) is an onerous problem to sustainable development. This centralized system has impeded the bottom –to- top developmental initiatives, subordinate participatory governance system, increased poverty and constrained local dwellers to focus on central government for everything. In fact, the role of sub national structures is not clearly defined, thus reinforcing the centralized structure of government.
Conceptual clarifications:
Decentralization:
It is process of transferring power from or decision making from the central government to local government structure. A decentralized system encourages fewer tiers in the organizational structure, wider span of control, and a bottom- to -top flow of decision making. In a centralized system, the decision making process is a top-to- bottom approach. Today, Ethiopia, Ghana, Mali, Namibia, Nigeria, Senegal, South Africa and Uganda have constitutions that are explicitly pro-decentralized (UNCDF 2000; Totemeyer 2000:95).
Kauzya (2005) viewed decentralization as a policy of high priority and used instrument of people empowerment, a platform for sustainable democratization, a structure for the mobilization of resources for economic development, a veritable instrument of reconciliation, social integration and well being in post-conflict environments, and a vehicle for the promotion of a culture of political, economic, civic and managerial/administrative good governance.
Let’s consider three different forms of decentralization.
I. Political Decentralization: The process where the citizens or their elected officials will have power in public decision making. It encourages a pluralistic politics or representative democratic system of government. The citizens or their representatives will have the opportunity of formulating policies and ensuring those policies are implemented. For instance, the National Policy on Decentralization and Local Governance is advocating for the election of superintendent and other local county officials. When the local people elect their officials, they will be accountable to their people. The policy to improve the welfare of the local inhabitants will be established.
II. Administrative Decentralization: it is the transferring of planning, financing and management of certain public functions from the central to the local authority. The local officials should have some authority to administer or control local functionaries. Administrative decentralization has three forms, namely: Deconcentration, Delegation and Devolution.
A. Deconcentration: The form of decentralization in which the central authority redistributes authority through their autonomy agencies or functionaries of government. In essence, the responsibilities of central government officials will be shifted in regions, counties or districts. The administration is managed by the central government authority.
B. Delegation: it is the form of decentralization in which the central government authority transfer responsibilities for decision making and administration of public functions to semi-autonomous agencies that is not definitely controlled by central government, but eventually answerable to it.
C. Devolution: this is the form of decentralization in which the central government gives some political, administrative and fiscal powers to the local government. This is exactly what the National Policy on Decentralization and local governance is emphasizing. For example, the Political aspect of the policy emphasizes the election of superintendent and other local officials.
III. Fiscal decentralization: This is the process whereby some financial or monetary responsibilities are transferred from the central government to the local government structure. When political power is devolved, the local government authority will need to have some financial responsibility to raise taxes, or collect revenue to ensure that there is substantial development in the local structures.
Sustainable development: is the deliberate and systematic policy of ensuring the survival of a state in such conditions that the social, economic and political necessities that are important for the enjoyment of the good life and ensuring the greatest good for the greatest numbers are available now without this constituting a denial for the capacity of being able to enjoy the same benefits to generations yet unborn in the foreseeable future (Babawale, 2008). It also an entrenched socio-economic and political development that generation unborn can experience. This is the type of development that Liberia needs.
Why decentralization for Liberia?
For too long our centralized system in Liberia has not provided a sustainable development, transparency, and good governance. The public administrative system of governance is archaic and it is not significantly impacting the development process of the country. The functionaries of central government are not performing the tasks of a prudent public delivery system. A decentralized system of government will improve the post conflict rebuilding process. Decentralized governance is being cherished as the most unique governance platform; it can ensure the intervention of poverty reduction, sustainable development and participatory governance. This proposition indicates that decentralization provides greater community participation in the evolution, implementation, monitoring and evaluation of programs. Consequently, Liberia needs a decentralized governance system especially through devolution, to ensure sustainable development, people empowerment, and poverty reduction.
Decentralization and the PRS:
The Government of Liberia has developed a symbolic uniqueness for a decentralized governance system. The Government policy document which is the Poverty Reduction Strategy sees decentralization as the way to improve governance over time, increase transparency of government processes, enhance accountability, promote democracy and reduce poverty and ensuring the fulfillment of the Government’s responsibilities to serve the Liberian people. But, what is the Government doing to ensure that the mandate of the PRS is implemented to the fullest?
The Governance Commission and the Decentralization Policy:
The Poverty Reduction Strategy gives the responsibility to the Governance Commission, Ministry of Internal Affairs and the Ministry of Planning & Economic Affairs to develop a comprehensive decentralization policy to be completed in mid-2009. The Governance Commission understanding the relevance of sustainable development and post conflict reconstruction challenges worked sincerely with stakeholders: local leaders, political parties’ leaders, Media & Civil Society organizations, Youths, Women organizations, Technicians of Ministries and agencies of Government, University Lecturers and University Students to develop the National Policy on Decentralization and Local Governance. The Commission further enhances the sensitization program by conducting fifteen Decentralization County -to- County civic engagement dialogues. The Commission contracted fourteen National and local media institutions: Star Radio, Truth F.M., Voice of Sinoe (Sinoe County), Voice of Sasstown (Grd. Kru County), Radio Kintoma (Lofa County), Stone F.M. (Margibi), Liberia Broadcasting system (LBS), Life F.M. (Lofa County), Radio Gbarnga (Bong County), Radio Saclapea- (Nimba County), Radio Gbehzohn- (Grd.Bassa), Radio Gbarpolu- (Gbarpolu County),and Radio Cape Mount- Cape Mount County to sensitize the public on the National Policy on Decentralization and Local Governance. The Commission has conducted two studies: Decentralization Fiscal Impact and the Traditional Role of Chiefs under a decentralized governance system. The Governance Commission made four presentations to the Cabinet. The Cabinet approved the National Policy on Decentralization and Local Governance in November, 2009 but up to date, the policy has not been forwarded to the National Legislature for enactment. This is the challenge to the Government.
Threat of Decentralization:
Decentralization is often influenced by the tendency of any central authority to attempt to hang onto and concentrate powers (Manor, 1999). Decentralization becomes threat when the central authority does not want to transfer some powers to the local authorities. The basis for loosing control in the local authority is the best fear. Is this the scenario with Liberia? Ironically, the leadership in Liberia has realized the importance of transferring some authorities but the political will is difficult to be exerted. Where do they stand on the issue of transferring some powers? Since the National Policy on Decentralization and Local Governance was developed, it has not been forwarded to the National Legislature for enactment and subsequent constitution amendment. When the Government develops the spirit of “Political Will”, it willstrengthen the objectives of participatory governance, local ownership and poverty reduction as it enshrined in the Poverty Reduction Strategy framework. When policy makers evolved a policy, there should a homogenous courage to ensure that the policy development process reaches its logical conclusion. Some central political actors are certainly threatened by decentralization. Some are simply reluctant to release powers. Others are threatened by new local authorities to maintain political allies in rural areas. Others are threatened by new local authorities who may change their political base (Ribot, 2002). Policy developer needs to find a comprehensive way to negotiate beyond the threat of decentralization.
The next strategic phase of Decentralization for Liberia:
The Governance Commission of Liberia is developing a more reasonable approaching to the process of decentralization in the post conflict of Liberia since there is some delay for enactment. The National Legislature has not made the National Policy on Decentralization and Local Governance a priority for constitutional referendum. The Commission has envisaged that the process of Deconcentration is the best framework that can be used now to ensure that the process of efficiency and effective delivery of goods and services can be enhanced in the sub-national structure while the stage of devolution is gradually being pursued. Please note that the National Policy on Decentralization and Local Governance has emphasized that it will take ten years incremental period before the process of devolution can evolved. This is the significant challenge that Commission is faced with but it has realized that the process of deconcentratioin is not border on constitutional provision therefore it can serve as an offshoot of the devolution process. The Process of Deconcentration is not a constitutional issue in the National Policy on Decentralization and Local Governance therefore the Commission has deemed it expedient to ensure that process of decentralization should begin with deconcentration. What is more unique in the governance reform process is not to be confrontation with other stakeholders but rather engaged the process with high degree of tolerance to achieve the reasonable objective will improve the process of participatory governance in the country. During the Governance Commission two Inter-Agency dialogues in the development of an implementation strategy framework that occurred in May and August of 2010, every Ministry and Agency of Government represented at the dialogue emphasized the process of deconcentration.
The Ministries and Agencies at the two conferences have developed framework in the direction of deconcentration. Presently, the Ministry of Health and Social Welfare has organized and begin to put into perspective the process of deconcentration. In fact, the Ministry has developed an elaborate National Health Policy strictly in the perspective of deconcentration. This initiative of the Ministry has fast track the deconcentration process in the country and its practical approach is a decent case to follow. The process of deconcentration in Liberia has been silently operational but there is no structured mechanism that has produced indicators that can be visible. The centralized governance system has created a condition where there has been no sampling of deconcentration. Some best practices have shown that for the process of devolution to be institutionalized, deconcentration should be first be a reality. To this extent, the Commission has developed in its 2011 workplan strictly in the direction of deconcentration. Some strategic framework in the direction of deconcentration has been put into perspective. For post conflict Liberia governance system to be more relevant and participatory, there must a widely accepted decentralization process beginning with deconcentration. When Liberia is not decentralized, it will be so difficult for the sub-national structures to be developed. Every strategic and constructive means must be enhanced to ensure that the country is decentralized. When development is participatory and well structured in the face of decentralization, there will be sustainable development.
Conclusion:
The National Policy on Decentralization and Local Governance is an institutional framework that will strengthen local participatory governance. It needs to be forwarded to the National Legislature for enactment and subsequent constitutional amendment. For our nascent democratic system to be more structured, transparent and participatory, Policy makers and implementers should avoid the threat of decentralization and consider it as one of the key pinnacle for sustainable development that generation unborn can experience. When the citizens are part of the decision making process of the country, they take ownership. This is the cardinal objective of decentralization. There are some countries in Africa and other parts of the world that have a decentralized government and they are doing exceptional well. Practical examples are: Ghana, Lithuania, India and Rwanda. Through the history of turbulent time as failed nation-state, political actors will have to be sincere to define the government in a way that there will be a wide participation of citizens into state affairs. This is so because the demand for governance reform that introduces decentralization is widespread throughout Liberia. The system of shared authority also strengthens the system of governance and enhances the legitimacy of government institutions (Sawyer, 2010). Decentralization is the best framework for Liberia governance and public administrative system”.
About the Author:
The author is a researcher and teaches Industrial /Urban Sociology, Social Change and Personnel Research Methodology at the University of Liberia. He holds two Bachelor of Arts Degrees: Sociology & History from the University of Liberia; and hold a Master of Science (M.Sc) degree with specialty in Industrial Sociology from the University of Ibadan, Nigeria. He conducted a research on the socio-economic impact on the proliferation of small arms in Liberia. He has written series of articles and papers on the Liberian and Nigerian societies. He is currently conducting research on the “Youth Participation in Local Governance; what are the problems and prospects for state building or nation building for NAYMOTE, a democratic institution.