Decentralisation and recentralisation in the historical development of the local government system in zimbabwe

Local government as an institution constitutes one of the many resources at the disposal of central government for achieving certain ends. The local government system is therefore a means directly related to some perceived ends although in certain cases it can also be pursued as an end in itself. In many countries including Zimbabwe the ends of local government are often unclear and multidimensional including the promotion of local democracy and participation in national politics and development; providing structural framework for the provision of local services, promoting local administrative efficiency and in rather few cases, providing a framework for local economic development.

In many countries local government system is used to either strengthen a top-down hierarchical approach or a bottom-up or horizontal approach to administration and national economic development. Such goals of local government inevitably result in different types of philosophy, administrative theories and strategies, decentralisation models, organisational structures, centre-local relations and the nature of powers ceded to local government by central government. The main theme of this paper is that within the context of Zimbabwe, there has been a major discrepancy between the largely territorial goals or ends to be achieved by post colonial local government transformation and its continuing functional organisation inherited from colonialism. This contradiction is described in the title as decentralisation and recentralisation.     

THE INSTITUTIONAL AND ORGANIZATIONAL CAPABILITIES OF LOCAL GOVERNMENT

Local government is the subject of official review. This paper suggests that any review of the system of local government should consider at the outset the purposes or values which provide the rationale for local government, and should examine how the institutional framework and prevailing organizational practices promote or hinder achievement of those values. The values of local government as traditionally understood are summarized and aspects of the institutional framework and organizational practices are explored.     

Modernisation or Backward Step? Women Councillors and New Decision-Making Structures in Local Government

Following the 1997 general election New Labour took power with a commitment to ‘modernising’ government, including local government. This modernisation was based upon a variety of approaches including the introduction of new decision-making structures, improving local democracy, improving local financial accountability, creating a new ethical framework for councillors and council employees and improving local services. It is with the first two of these and their potential impact upon women councillors that this article is concerned. It analyses past evidence on women's participation in local government in the UK and examines the impact of the new political structures on progression to senior posts in local government.     

Implementing 'Best Value': Local Public Services in Transition

This paper examines the impacts of the 'Best Value' regime on the management of local public services in the UK. It argues that the regime marks an important shift in the framework of national regulation of local authorities and the services they provide but that the initiatives developed by the councils which have been piloting the new framework reflect a variety of approaches to local implementation. This suggests not the arrival of a new, hegemonic 'outcomes-focused paradigm' but a more gradual transition characterized by the co-existence and interaction of hierarchical, market based and collaborative frameworks for co-ordinating service delivery. The search for 'citizen-centred' services is likely to lead to a shift in the 'mix of governing structures' with an increasing number of services structured around 'cross-cutting issues', specific client groups or local communities. However, these more integrated approaches to local service delivery frequently require internal re-structuring as well as more effective collabor-ation with other local service providers and with local people. They may not therefore lead to immediate improvements in public services and will require local and central government to embrace new approaches to learning.     

PAYING FOR LOCAL GOVERNMENT: CHARGING FOR SERVICES

The latest Green Paper on reform of local government finance was published in January 1986. It represents an attempt to achieve local accountability which the present system is regarded as having failed to achieve. Increased use of fees and charges is seen as 'an even more direct way of ensuring that local people can see what they are getting for what they are paying' and, at the same time, 'has benefits in terms of efficiency as well as accountability'. This article critically appraises just what is meant by 'realistic charging policies', 'efficient use of resources' and 'effective pricing policies'. Realistic pricing policies are then outlined based on radical improvements in the nature and quality of information available to local authorities. The danger of a blinkered approach to increased use of charging is stressed and factors to be considered when reviewing charging are discussed.     

PUBLIC SECTOR PAY BARGAINING: COMPARABILITY, DECENTRALIZATION AND CONTROL

Public sector pay, as a key component of public expenditure, has been a major issue for government since the mid-1970s. This article analyses public services pay bargaining since 1979 and examines the continuing tension between the control of public sector pay levels on the one hand and the wish to make pay levels more responsive to external market forces on the other.
The article concentrates on the changes in pay bargaining in the public services. It does not purport to provide a detailed economic analysis of the outcomes of the various phases in public sector pay policy, but does attempt to explain the process implications of the political contingencies and rationale driving government policy on pay determination. In particular it notes the resilience of national pay-setting arrangements and pay comparability throughout most of the period under review, despite the political rhetoric, emphasizing the pragmatism of government policy. The latter section of the article reviews the current policy, with its emphasis on decentralized pay determination, and considers these new developments within the context of private sector collective bargaining theory.
The evidence from the private sector suggests that pay determination in the private sector is complex and that levels of bargaining relate to various factors. Decentralization is neither a panacea for poor performance nor necessarily problem free. Devolved pay determination can lead to problems of control over costs and, in the context of high levels of trade union organization, to pay'leapfrogging'. The article concludes that there is a continuing contradiction between the role of the government as an employer, keen to devolve pay decisions to local level, and that of economic regulator with responsibility for the wider economy. This continuing tension indicates that decentralized pay bargaining in the public sector will be limited in its scope by some form of central government control.     

Politicians,organisations and the public ‐ the provision of gypsy sites

Under the Best Value regime, the government requires local authorities to involve the public in determining the provision of services. Indeed, the Best Value legislation provides a legal basis for consulting citizens and the local community in relation to better management of local government functions. The guidance on Best Value also encourages local authorities to place performance management within a community strategy framework. These combined actions will, it is hoped, result in more innovative, effective and efficient provision. Arguably, however, the success of increased participation will be influenced by how and why the public are involved. This study draws on case study research to ask whether involving the public does result in innovative changes and to what extent those involved are empowered through the process, concluding that success for both the authority and service users is influenced by factors such as cost structures and whether the original intent includes careful consideration of how those involved might benefit from the process.     

Public Service Performance and Trust in Government: The Problem of Causality

Abstract

Concerns for restoring citizens' trust in government are at the core of public sector modernization. Public distrust is often blamed on the bad functioning of public services, and in political discourse well‐functioning public services are said to create trust in government. This is a very rational and mechanistic reasoning, only part of which corresponds to reality. The link between performance and trust can only be made when very specific conditions are present. The core of the discussion deals with causality: it is obvious that performance of the public administration has a certain impact on trust in government, but existing levels of trust in government may also have an impact on perceptions of government performance. In this article, we outline a framework for research on this performance–trust relation.     

APPLICATIONS OF PRINCIPAL-AGENT MODELS TO GOVERNMENT CONTRACTING AND ACCOUNTABILITY DECISION MAKING

ABSTRACT

This paper surveys literature from Economics, Accounting, and Management to address theoretical issues in Public Administration regarding government provided services in order to contribute to a formal connection between principal-agent models in these disciplines and public policy administration decision-making. In particular, it addresses the question: What theoretical properties of the services themselves might guide (a) the choice of producer of the services (government or outsourcing firm/contractor), and (b) the accountability imposed for the work produced. It is found that a theoretical framework of principal-agent models that includes the decision of whether to contract out can be useful as a first step in systematically formulating the government's decision for a variety of goods/services. This provides an alterative to the identification of key decision properties “from the ground up” for each good or service the government provides.     

Karen Mossberger,Susan E. Clarke and Peter John (Eds), The Oxford Handbook of Urban Politics

This article discusses the current state of the ethical framework for local government, which developed under the broader Modernisation Agenda of the Local Government Act 2000. It argues that the local government framework stands at a crossroads between the high road and the low road of ethics. Whereas the low road leads down the path of compliance and quantifiable performance measures, the high road is far more ambitious and leads to a culture of ethical governance. Recent developments - such as upcoming Section 66 regulations and the expansion of the role of the monitoring officer - have highlighted the choice between these two paths. This article will analyse the scope of unethical activity in local government, primarily in England, and map the regulatory terrain of the local government ethical framework. It identifies precursors to the framework and examines the way in which the Local Government Act 2000 built upon, and deviated from, the recommendations of the third report of the Committee for Standards in Public Life. Finally it discusses what has happened since the LGA 2000 Act was implemented, and assesses whether the framework is now poised to go down the high road of ethical culture or low road of compliance.     

Glasgow: Anatomy of a fiscal crisis

Ostensibly, the reorganisation of Scottish local government in 1996 was intended to create a more local, more efficient and more accountable system of local government. However, simultaneously, through grant abatement, the government intensified its fiscal squeeze on local government, seeking in real terms reductions in local authority expenditure. Contrary to assurances from ministers, both developments occasioned disruption for local authorities, with Glasgow in particular experiencing a severe period of fiscal stress. This paper outlines a research framework for identifying potential causal factors behind the acute nature of Glasgow's fiscal crisis, whilst considering the budgetary constraints within which Scottish (and indeed British) local authorities must operate. Finally, it focuses on the impact and resolution of the crisis and highlights the crucial role that the decisions of central government have played in shaping the response of one major local authority.     

The Effect of New Legislation on the Disclosure of Performance Indicators: The Case of Spanish Local Governments

This article analyzes the effect of new accounting legislation on the disclosure of performance indicators in the financial statements of Spanish local governments. Based on agency and institutional theories, the article also assesses whether the disclosure of performance indicators is used to make the monitoring of local government performance easier for stakeholders or merely to project an image of good management. The results show that the enactment of new legislation has only led to a partial implementation, most local governments disclosing financial and budgetary indicators but very few providing indicators related to the performance of public services. The institutional theory (symbolic value) seems to be the rationale that best explains this pattern of disclosure.     

Symposium Introduction: Local Responses to ‘Austerity’

This introduction to the symposium sets out the context for local government in the United Kingdom at the current time. It outlines the scale of the reductions in funding since 2010, showing how uneven these cuts have been across the country and the reasons for this. It also describes the increased exposure to risk of both local government and of the citizens and communities it serves. The central question for the papers which follow is how local government is responding to these twin challenges. The papers provide insights from a number of detailed studies of individual authorities, exploring the strategies adopted to manage in response. The analyses focus on the distributive consequences for individuals and communities, but they also reflect on the wider consequences for local government itself. A particular concern is whether local responses are changing as austerity moves from its initial to its later phase.     

Notes on Contributors

Social services departments have been an integral feature of local authorities in England for delivering social services since 1970 with a distinct identity, a largely uniform set of social service functions and similar organisational structure. This model of a unified social services department has survived major structural reorganisations in local government, the community care initiatives and social services modernisation agendas. This paper reviews recent government initiatives to promote closer collaboration between health and social services and identifies the different models now in place or being put into place. These include formal partnerships, integrated management, integrated care trusts and the example of fully integrated health and social services trusts. The paper considers whether such developments along with the establishment of new children's trusts will finally mean the disintegration of local authority social services departments, whether the Seebohm vision has been abandoned and what future there is for social care within local government.     

PSYCHOLOGICAL BARRIERS IN THE ROAD TO SUSTAINABLE DEVELOPMENT: EVIDENCE FROM PUBLIC SECTOR PROCUREMENT

This article provides a conceptual framework for understanding key psychological barriers to implementing sustainable development in procurement process by local government and health care authorities. This task is an important one as a comprehension of psychological barriers is a prerequisite for understanding how individuals engage with the often more visible technical, budgetary or regulatory barriers in sustainable procurement. The article highlights how progress towards sustainable procurement is hampered by a combination of (1) individual factors; (2) organizational factors; (3) small group adaptation processes; (4) adaptation processes within the organization; and (5) external adaptation processes between organizations. The framework thus contributes to filling the conceptual space between human agent and organizational structure by pointing to the importance of cognitive filters and ideational resources that interact at various levels within an organization and in the complex network of formal or informal partners that surround it.     

Local Politics,Central Power: The Future of Representative Local Government in England

When Labour took power in 1997, local government was battered and bruised, but it had survived, and indeed retained much of its vitality. What would happen next? Where the Conservatives had used the language of competition, New Labour promoted its policies around an ideology of modernisation, and rapidly introduced a new legal framework, new powers and strong incentives to improve performance. But by 2004, in the run-up to another general election, Labour increasingly emphasised the rights of consumers to choose providers of services, and the value of involving the private sector in public sector provision. There were proposals to take the finance for education and social services out of local authority control. A complex geography of partnerships and networks had developed, which required small executives of salaried councillors, far fewer than the large numbers needed by the committee system. But turnout in local elections remained low, and membership of both Labour and Conservative parties declined. The paper uses a simple stakeholder analysis to show how councillors and local activists were marginalised. It suggests that the government has a choice: it could either accept that the era of multi-skilled councillors responsible for the multi-purpose local authorities is ending, or it could radically rationalise the present quangos, partnerships and other governance structures to re-create it.     

Searching for the best structure for American local government

Citizens, practitioners and academicians involved in local government have for decades debated the best structure for local public organizations; at the polar ends of this debate are those advocating rational administration and those advocating political responsiveness. The conventional wisdom equates rational administration with reformed structures like the council-manager plan and political responsiveness with structures which have an elected chief executive officer. The debate is unresolvable within this value-driven framework, and these ideological positions do not seem to be helping in the design of governmental structures which “work” in a practical and meaningful way. The paper argues for a “functional” model of local government structure based on how much citizens and administrators can know and oversee with competence. The analysis leads to a significant rethinking of the role of governing bodies, administrators, and the general management position in American local government.     

Africa’s Pasts and Africa’s Historians

Creation of local government districts has become an enterprise in Uganda, with many stakeholders having diverse opinions about the government's motives. This article examines the questions: What are the proclaimed and hidden or implicit intentions of the government? What evidence is available to provide reasonable interpretation of government action according to a particular rationale? By triangulating primary and secondary data and using a deductive approach, the study concludes that the initial intention of the government to create new districts to bring services and government closer to the people was consistent with the country's constitution and decentralisation policy. However, since 1997, and especially since 2006, other rationales have come to the fore, though not communicated as such in public policy statements. While we do not exclude ethnic rationale, the article finds more evidence that points to political patronage and a variant of gerrymandering (namely, that of splitting up districts while not redrawing boundaries).     

LONDON DOCKLANDS: AN ANALYSIS OF POWER RELATIONS BETWEEN UDCs AND LOCAL GOVERNMENT

This article sets up a framework for examining the differences and relations between Urban Development Corporations and local government. It analyses the interest to which the two sorts of body are responsive, the organizational structures which condition their relationship and the styles of decision-making through which they operate. This framework is used to analyse the London docklands experience with the objective of distinguishing the special aspects of this case from those which are likely to be generally applicable.