THYOLO DISTRICT COUNCIL

Table of Contents

Foreword.

Preface

Abbreviations.

1.0Introduction and Background.

1.1 Introduction..

1.2 The Planning Process...1.3 Institutional Background of the Council1.4 Structure of the Report...

2.0The Status of the Decentralization Process at Council level.

3.0Lessons Learned during the implementation of the DDPs

and the National Decentralisation Programme.

3.1 Review of progress made since 1998.

3.2 Key Lessons Learned during implementation of the DDPs and National Decentralisation Programme.

4.0 The Situation Analysis (SWOT Analysis)..

4.1 Strengths

4.2 Weaknesses.

4.3 Opportunities.

4.4 Threats

5.0 Key Strategic Issues/Challenges6.0Mandate, Vision, Mission and Core Values7.0Implications of the Malawi Growth and Development

Strategy on Decentralisation8.0 The Strategic Direction

8.1 Strategic Outcomes and OutcomeTargets

9.0Monitoring and Evaluation

Annexure

Annexure 1: Outputs and Annual Output Targets, and Implementation Plans

Annexure 2: List of Members of the Planning Team

FOREWORDDowa District Council is a local authority in Malawi established under section 146 of the Republican Constitution. Moreover, following the adoption of the Decentralization Policy and the Local Government Act of 1998, the Malawi Government has devolved certain political, social and fiscal powers to local authorities whose responsibility is, among others, to promote infrastructural and economic development through formulation and execution of local development plans and encouragement of business enterprises.Dowa District Council promotes and regulates socio-economic development through policy implementation and enforcement, local democratic participation, capacity building, resource mobilization, and implementation of district development plans in collaboration with stakeholders for the benefit of local communities. Its goal is to ensure sustainable social economic growth by the delivery of public services within its administrative boundary and possibly beyond. The delivery of the above-mentioned functions requires clear focus and a sense of direction in order to achieve them. But the Council encounters many challenges in the implementation of the development programmes and projects, and the provision of services due to the fact that the tasks of the implementing departments are not harmonized and mainstreamed in the form of a single and unified document. It is against this background that Dowa District Council has decided to come up with its Strategic and Implementation Plan.

The intention is to strengthen the capacity of the Council to ably take a leading role in the implementation, monitoring and evaluation of socio-economic development programmes at the grassroots level.

The Strategic and Implementation Planning process will give this Council clear direction for future operations, and will further ensure that the Councils plans, mandates and vision are aligned to the national legal and policy frameworks, e.g. Vision 2020, Malawi Growth and Development Strategy (MGDS) as Government of Malawis overarching policy, Integrated Rural Development Strategy (IRDS), Local Government Act (LGA), Decentralization Policy, HIV and AIDS Policy, Gender and other cross cutting issues, and any other relevant policy and legislation in Malawi, thereby, promoting efficiency and effectiveness in service delivery.In the long-term, it is intended that the Councils Strategic and Implementation Plan would not only facilitate the consolidation of democracy in the district, but will also achieve people empowerment and improvement of the socio economic development of the local people in line with the Government of Malawis overarching policy framework.

James S.A. ManyeteraDISTRICT COMMISSIONER

PREFACE

Dowa District Council is one of the districts under the Malawi Local Government Strengthening and Investment Programme (MLOGSIP) support. One of the activities in the annual work plan is the production of the Strategic Plan. This Strategic Plan has, therefore, been formulated to operationalise the implementation of the District Development Plan (DDP) and the Sector Investment Plans (SIPs) as a means of improving service delivery in the district.In essence, the development of the strategic plans was part of the overall public sector reform program aimed at promoting good governance, gender balance and equity, accountability, efficiency and effectiveness and the elimination of duplication of roles and responsibilities amongst ministries, departments and other government agencies (MDAs). The need to develop Strategic and Implementation Plans which are aligned to the MGDS was, therefore, a felt need for Dowa District Council.It is, however, a fact that Dowa District Council did not have adequate financial resources for the development of its Strategic and Implementation Plans. It is with this background that the Ministry of Local Government and Rural Development (MLGRD) in conjunction with the Department of Public Service Management (DPSM) sought for financial assistance from the Local Development Fund (LDF) Technical Support Team (TST) to fund the process of facilitating the development of Strategic and Implementation Plans for the district.

The Ministry of Local Government and Rural Development in conjunction with DPSM organized a working session at Pottery Lodze in Dedza in July 2011 to allow the District Management Team members of Dowa District Council to develop their Strategic Plans. The process involved establishment of a Planning Team from the Council Secretariat. The process also involved facilitators drawn from the Ministry of Local Government and Rural Development, specifically, the Human Resources Section and the Decentralisation Section, and the Department of Public Service Management to guide and give direction on the assignment.

The exercise to facilitate the development of this Strategic and Implementation Plan followed a participatory approach. The initiative was aimed at building the capacity of the Council directors to ably develop those plans. The delivery methodology included the transfer of new knowledge (facilitator to participant), transfer of skills and tools for the review of available literature and relevant documents, and the development of Strategic and Implementation Plans. The increased capacities would eventually enable the Council to implement and monitor its various socio-economic programs.

Dowa District Council Strategic and Implementation Plan has been developed to cover a period of five years from July, 2011 to June 2016 in line with Malawi Growth and Development Strategy II. The Council is guided by such national planning instruments as the District Development Planning System (DDPS) and the Public Sector Investment Programme (PSIP) which form the basis for the formulation of the Development Budget of the Council. It is thus the view of this Council that the Strategic Plan will provide direction and guidance as it performs its functions to achieve the vision and also the targets of the district development plans and the Sector Investment Plans.The Strategic Plan is a very important document because it sets out the means of achieving the vision and the aspirations of the people of Dowa in the systematic, effective and efficient manner. The Strategic and Implementation Plan is a single document which will improve the relationships among the various stakeholders implementing the plans at the district level, thereby, giving an opportunity for sector devolution to be strengthened further.

This Strategic and Implementation Plan is also a framework which provides the basis for mobilization of resources for the implementation of different development programmes at the district level. It should be mentioned, however, that this Strategic Plan is the first document of its kind in the history of Dowa District Council. The Strategic and Implementation Plan, therefore, comes alongside the following other documents which this Council has produced since the advent of decentralization:

The District Socio-Economic Profile of 2000, 2008 and 2010.

The District Development Plan of 2002, 2008 and 2010.

The District HIV/AIDS Plan of 2002.

The Draft District VAPs Document of 2006.

Dowa District Council is committed to this Strategic Plan as it will assist development stakeholders to achieve the vision of being the best reliable provider of sustained quality socio-economic services.C.H. MzilahowaDIRECTOR OF PLANNING AND DEVELOPMENT

ACKNOWLEDGEMENT

Dowa District Council is grateful to the Ministry of Local Government and Rural Development and the Department of Public Service Management for considering this Council to be amongst the Councils that have benefitted from the reform programme. The Council is of the view that it has gained the necessary skills and competences, which are required in the formulation of the Strategic and Implementation Plans.Special gratitudes extend to the Planning Team which was composed of the following members:-

NameDesignation

Dr R. PiringuDistrict Health Officer

Mr E.G.N YamikaniDistrict Agriculture Development Officer

Mr D.M. BandaDirector of Administration

Mr C.H. MzilahowaDirector of Planning and Development

Mr J.S.A ManyeteraDistrict Commissioner

Mr C.K. NyandoDirector of Public Works

Mr L.F. ChakhotaDistrict Education Manager

Mr M. DondaDirector of Finance (Acting)

Furthermore, this Council is also thanking Messers Salim Sumaisi, CHRM&D and Darwin Pangani, CLGOD from the Ministry of Local Government and Rural Development; and Messers Abel Mwamlima and Eric Yesaya including Mrs Khumbo Segula from the DPSM for their technical and moral support.

Lastly, Dowa District Council would like to commend the Executive Director of the Local Development Fund TST for the financial and material contribution towards the development of this Strategic and Implementation Plan.

LIST OF ACRONYMS

ADC

Area Development Committee

CBM

Community Based Management

CEO

Chief Executive Officer

CHRM&DController of Human Resource Management and Development

CIDA-GAP Canadian International Development AgencyGovernment Assistance Project

CLGODChief Local Government Officer for DecentralisationDC

District Commissioner

DDCs

District Development Committees

DDP

District Development Plan

DDPS

District Development Planning System

DEC

District Executive Committee

DLGS

Director of Local Government Services

DPD

Director of Planning and Development

DPSM

Department of Public Service Management

DPW

Director of Public Works

DRD

Director of Rural Development

DWDODistrict Water Development Officer

HRD

Human Resource Development

HSC

Health Service CommissionIEC

Information, Education and CommunicationIPC

Internal Procurement Committee

IRDS

Integrated Rural Development Strategy

LASCOM Local Authorities Service Commission

LDF TSTLocal Development Fund Technical Support Team

MEO

Monitoring and Evaluation Officer

MDGs

Millennium Development Goals

MGDS

Malawi Growth and Development Strategy

MLGRDMinistry of Local Government and Rural Development

NGOs

Non-Governmental Organizations

NLGFCNational Local Government Finance Committee

PSIP

Public Sector Investment Programme

SEP

Social Economic Profile

SIPs

Sector Investment Plans

TOT

Training of Trainers

TSC

Teaching Service Commission

VDC

Village Development Committee

1.0 Introduction and Background

1.1 IntroductionDowa District with a population of 556,678 faces a wide range of development challenges. About 54% of the population lives below the national poverty line, and most of the social indicators which define poverty are still poor despite the three year implementation of the first District Development Plans of 2002/2007. As a way of contributing to poverty reduction, the District Executive Committee (DEC) instituted a Task Force to critically revise the District Socio-Economic Profile (SEP) which has been updated using the District Development Planning System (DDPS) to identify and prioritise major issues affecting the district.The need for a Strategic and Implementation Plan for Dowa District Council cannot be over-emphasized as it acts as a framework for providing a clear direction for future operations and to meet its mandate. In essence this is the first Five-Year Strategic and Implementation Plan for the period 2011/12 to 2015/16. It presents the strategic direction of the Council and the implementation process. The objective of developing the Strategic Plan [SP] is to provide guidance to the local authority to achieve optimal performance in fulfilling its vision and mandate, roles and social responsibilities for implementing the National Decentralization Programme.It is with the above background that the MLGRD and the Department of Public Services Management [DPSM] facilitated the development of the Councils Strategic and Implementation Plan for the period 2011/12 2015/16.

To ensure that the needs of the communities are incorporated, in line with the decentralization process, the district has produced a consolidated Village Action Plans document with an analysis of issues at village, area and district levels. The output of the whole process is the list of prioritized issues indicated as follows:

High prevalence of HIV and AIDS and malnutrition

Inadequate planning systems Food Insecurity

High environmental degradation Inadequate rural infrastructure

High child and maternal mortality rates Low revenue generation base Inadequate institutional capacity High illiteracy levels in the district

Low income among disadvantaged groupsThese issues will be addressed through a set of projects and programmes time framed over the 5 year period. To achieve significant poverty reduction, the Strategic Plan has taken a balanced approach based on the economic and social perspective; the argument is that social development alone, without consideration to economic factors, cannot reduce poverty. The development strategies of the district are also aligned to the five thematic areas of the Malawi Growth and Development Strategy, i.e. sustainable economic growth, social protection and disaster management, social development, infrastructural development and good governance. Basically this implies that the Millennium Development Goals [MDGs] and targets are being addressed by the same Strategic Plan.

1.2 The Planning ProcessThis Strategic Plan has been developed in a highly consultative and participatory manner. Firstly, a seven-day strategic planning workshop was held which drew participants from the Senior Management team of the Council. The facilitators conducted presentations on the Strategic Planning process and on the status of decentralization in Malawi. The workshop was aimed at building consensus and consolidating information got from the members of the directorates to build on key strategic issues that would result in the Strategic Plan.

The formulation of the Strategic Plan has taken into account the National Policy Framework. Of greater significance is the fact that the Strategic Plan is built around the Malawi Growth and Development Strategy. Other main policies and strategies which have been taken into account are:

Vision 2020: - reflects the long term aspirations of Malawians and forms the basis for the formulation of short and mid-term policies. It defines national goals, policies and strategies that assist the government, private sector and the society in general to improve development management.

Integrated Rural Development Strategy (IRDS): - objective is to resuscitate the rural economies and advance the cause of rural areas as potential engines of economic growth to contribute towards own development and to broad national development agenda as defined in the MGDS agenda. The IRDS aims at attaining socially cohesive and stable rural communities with viable institutions, sustainable economies and universal access to social amenities, able to attract and retain skilled and knowledgeable people who are equipped to contribute to growth and development. The intention of IRDS is to harness available local resources and capitalize on potential synergies among various state and non-state programmes in order to promote and support more rapid and equitable rural transformation. The objectives will be achieved through strengthening coordination of key players within Local Governments, Wards and Villages and between Central Government and Local Governments, the Private Sector and non-governmental institutions both at planning, financing and implementation of bankable projects. 1.3 Institutional Background of the CouncilThe Malawi Government inherited a decentralized system of Local Government at independence in 1964, based on the 1962 Local Government Act. This Act introduced local elections and devolved more powers and functions to District Councils which among others included education, roads and public health.

In 1967, the Government created the District Development Committees (DDCs) which were parallel administration structures, with similar mandates as Local Authorities. With their political support, the DDCs gradually took over some of the responsibilities of the local authorities. In due course, this resulted into a scramble for limited resources, with DDCs receiving a lions share. Local Governments were sidelined in the decision making process, despite being mandated by an Act of Parliament.

During the one party era, the Public Service was characterized by a highly centralized decision-making process. The centre through the Ministry of Local Government used to dictate on the Council functions such as development, management, nomination of election candidate, and so on. Furthermore, the capacity in Councils was very low; consequently the Ministry of Local Government seconded civil servants to occupy key positions to man the Councils. These civil servants were not answerable to the Councils but to their masters at the Ministry headquarters. This frustrated development efforts of the Councils. With the introduction of multiparty politics in 1994, the role of the Councils slowly began to be significantly recognized. In 1998 Parliament enacted the New Local Government Act no. 42 and adopted the Decentralisation Policy. The Policy and Act provided for the creation of a conducive environment for local empowerment of the grassroots and provided the legal basis for policy implementation, through local authorities. The new Act and Policy also allows the masses to nominate and elect their leaders thereby participating in decision making.The objectives of Local Governments are to further the constitutional order based on democratic principles, accountability, transparency and participation of the people in decision-making and development processes.

The country had the first crop of elected Councilors under a multiparty dispensation in 2000-2005. To date the Councils are yet to elect new office bearers.In line with the Decentralisation Policy and the Act, Government is now channeling an increasing amount of resources from the national budget directly to district, municipal or city Councils. The recently launched Local Development Fund (LDF) provides additional financial resources for implementing programmes and projects that address local development needs. All these resources require a proper framework for overseeing the implementation of such programmes and projects. This is why it is important to understand the institutional set up of the Councils. The institutional structure allows a district to tackle its peculiar problems and therefore empowers it to take part in the attainment of the Millennium Development Goals.

The Local Government System in Malawi is comprised of the Council and its sub-committees at the top. Under the Council, we have the Area Development Committees (ADC) and Village Development Committees (VDC). The planning process starts at the VDC level with the formulation of Village Action Plans which are a set of key priority needs from the village. These are then forwarded to the ADC which is an amalgamation of all the villages under a Traditional Authority. Having passed through the ADC, the priorities are then consolidated into the District Development Plan (DDP). The DDP represents the priorities of the entire district. In the formulation of the DDP the issues are aligned to the national policies as enshrined in the MGDS and the secretariat provides technical guidance on its formulation and thereafter the Council approves the DDP.

Dowa District Council is made up of two bodies, namely: an elected Council, composed of Councillors and other members; and also an administrative body called the Council Secretariat. Whilst Councillors are elected to serve a five year term, the Council Secretariat is managed by permanent Council employees. The Head of the secretariat is the District Commissioner (DC) who is a controlling officer.Just as a Council has various Committees to deal with specific issues, the Council Secretariat has Directorates. Each Directorate is headed by a Director who is answerable to the DC. The following are some of the Directorates that the new Council establishment has:1. Directorate of Administration2. Directorate of Agriculture, Environmental Affairs and Natural Resources

3. Directorate of Planning and Development

4. Directorate of Education, Youth and Sports

5. Directorate of Finance

6. Directorate of Health and Social Services

7. Directorate of Public Works.

1.4 Structure of the ReportThis Strategic Plan is structured into nine (9) sections and (2) annexes as follows:-

Section One: Presents the introduction and briefly describes the background to the process of formulating this Strategic Plan. It also presents the planning process, institutional background of the Council and the structure of the report.

Section Two presents the status of the decentralization process at council level highlighting the sectors that have been devolved.

Section Three reviews the progress made since 1998 and also presents key lessons learnt during the implementation of the District Plans.

Section Four presents the situation analysis and highlights the strength, weakness, opportunities and threats of the Council.

Section Five presents the key strategic issues and challenges which the Council experiences.

Section Six presents the mandate, vision, mission and core values of the council.

Section Seven describes the implication of the Malawi Growth and Development Strategy.

Section Eight presents the strategic direction highlighting strategic outcomes and outcomes target.

Section Nine presents the Monitoring and Evaluation of the implementation of the Councils Strategic Plan and Implementation Plan.

The last part of this report presents annexure to this Strategic and Implementation Plan which are Outputs and Annual Outputs Targets and the Implementation Plan; and the list of members of the Planning Team.

2.0The Status of Decentralization process at the Council levelDecentralisation is the process by which Central Government gradually transfers some of its administrative responsibilities over public functions, political power, and financial resources to Local Governments (Councils). This process gives Local Governments the authority and resources to provide the necessary services in areas under their jurisdiction.In 2000, the Ministry of Local Government and Rural Development prepared a ten -year implementation programme to operationalise the National Decentralisation Policy. The first phase was implemented from 2001 to 2004 and has since been reviewed. A One-Year Crash programme preceded the first phase. A follow-up National Decentralisation Programme was prepared to be running from 2005-2009. Due to a number of factors this NDP II 2005-2009 was not officially launched and only limited progress has been attained since. The postponement of Local Government Elections made it difficult for the MLGRD to justify the programme to the development partners. Starting an initiative to address the capacity issues that came out from the review of the NDP I the MLGRD conducted a Capacity Needs Assessment that led to the development of a Capacity Development Strategy. In order to align a Capacity Programme to the national implementation programme the former NDP II was updated to the present NDP II 2008-2013.

The National Decentralisation Programme II [2008-2013] The National Decentralisation Programme II 2008-2013 has been developed through a multiple stakeholders participatory approach. Just like the initial programme, this revised NDP II programme was through a consultative process under the leadership of the Ministry of Local Government and Rural Development. Critical guiding factors have been considered as follows:

The need to deepen decentralisation process so that fundamental socio -economic and political transformation is achieved;

The need for a smooth and speedy but orderly Sector Devolution Process;

The need to develop operational linkages between the Decentralisation Policy and other Strategic National Policy Frameworks;

The need to improve the management of the programme activities and;

The need to establish sound Monitoring and Evaluation Structures.

The NDP II (2008/2013) has four components as follows:

Sector Devolution Institutional Development and Capacity Building Fiscal Devolution and Financial Management Local Development Planning and Financing Mechanisms.

Sector Devolution is the transfer of selected functions from Sectors, from National & Regional Headquarters level to the Local Authorities. The functions devolved are determined by the individual Sector. Usually these are functions for which the Councils are better placed to implement than the centre. To successfully transfer defined functions from central sectors and other Ministries and Departments to Local Governments and integrate these into Local Governments, appropriate laws and policies will be amended to be consistent with the Local Government Act 1998. Support for Local Governments to build their capacities to prepare by-laws that will guide the management of the devolved functions will also have to be provided.

At the centre 11 sectors have so far prepared their devolutions plans: Education, Health, Agriculture, Natural Resources and Environmental Affairs, Water, Gender and Community Services, Lands and Physical Planning, Transport and Public Infrastructure, Commerce, Housing, and Labour. Nine sectors have prepared Guidelines to guide absorption and implementation of devolved activities in Councils, namely: Health, Agriculture, Water, Gender and Community Services, Transport and Public Works, Commerce, Housing, Education, and Labour. The Councils are currently managing some devolved functions. In addition, the budgets for 14 Sectors have been devolved to Councils from Treasury.

Since the Decentralization Policy was enacted in 1998, the following sectors have devolved their functions to Dowa District Council:

Health

Education

Immigration

Agriculture

Gender, Youth and Community Services

Water development

Housing

Commerce and Industry

Natural Resources and Environmental Affairs

Lands, Valuation and Surveys

3.0Lessons Learnt during the Implementation of DDPs and the National Decentralisation Programme3.1 Review of progress made since 1998

Since 1998, Dowa District Council has put in place decentralization structures at community level as a way of enhancing community participation. The district has managed to establish 9 Area Development Committees, 9 Area Executive Committees and 136 Village Development Committees as main structures. There are other supporting structures dealing with specific aspects under the VDC such as Village Health Committees, Village Natural Resource Committees, and Community Based Organisations among others.

The Council has also managed to put in place a vibrant District Executive Committee (DEC) which provides all the technical expertise to the Council and other stakeholders for the socio-Economic development of the district. Various sub committees give a hand to the DEC by performing various functions on behalf of DEC and report to it. Table 1 is a summary of achievements and emerging issues in the district.Table 1: Achievements and Emerging IssuesComponent Achievements Outstanding Issues /Emerging issues

1. Legal Reforms The Local Government Act was amended to;

Reconcile the term of office for the elected members of Councils as provided for in the Local Government Act and the Local Government Elections Act.

Align the Local Government Act to the Constitution on the functions of LASCOM Drafting of the proposed amendments of the Local Government Act and subsequent passing of the amendments

Amending of various laws so that they are in harmony with the Local Government Act

A comprehensive review of the Local Government Act was conducted.

Ministries of Education, Lands and Physical Planning and Housing, and Natural Resources (Environmental Affairs) revised their acts in line the National Decentralisation Policy.

2. Institutional Development Central institutions like The National Local Government Finance Committee and MALGA were established and are functional

A number of partnerships with development partners to technically and financially support the Decentralisation process namely UNDP/UNCDF, ADB, GTZ and NORAD were established. A Government/Donor Technical Committee that reviews implementation was established. Implement the new organisational structures for Local Governments

The need to restructure the management of the NDP

The need to transform the NLGFC into a commission

The need to restructure the MoLGRD

A number of both career development as well as short -term performance improvement capacity building initiative have been provided to staff both at the Council and the centre

Vehicles and equipments (like computers) have been procured and provided to Local Governments. Ability of Local Governments to retain staff

New Organizational Structures for each Council were developed.

Human Resource Management System was developed

More staff for Local Governments were recruited and posted

3. Building a Democratic Culture Increased awareness of the Decentralisation

Policy and understanding of the role of Local Governments, elected local officials and civil society among Malawians Open (public) debates on Council operations

Role conflicts between Councillors and Members of Parliament

4. Fiscal Reforms An Intergovernmental Fiscal Transfer System was approved by Parliament

General Resource Fund from Government is being transferred to Local Governments.

Development Funds including DDF, MASAF, the NRA Road Fund, HIPIC and the Environmental Fund are being distributed and transferred to Local Governments

Some sectors like Agriculture, Gender, Commerce, Water, Housing, and Education started direct sectoral fund transfer Central Government not meeting the 5% GRF

Accountable institution for devolved funds

5. Financial Accounting and Management Completed preparation of final accounts of Local Governments

Conducted auditing of some Council accounts

Developed Financial Reporting Guidelines

Local Governments preparing and regularly submitting financial reports

Computerization of IFMIS in Local Governments

Developed an integrated Pay Roll System

Transfer of funds to Local Governments being published Completion of the computerization of accounting

The need to link the National IFMIS and the Council IFMIS

6. Sector Devolution 10 Sectors (Education, Health, Agriculture, Natural Resources and Environmental Affairs, Water, Gender and Community Services, Lands and Physical Plans, Transport and Public Works, Commerce, Housing) prepared their Devolution Plans and 7 sectors (Health, Agriculture, Water, Gender and Community Services, Transport and Public Works, Commerce, Housing) prepared their Sector Devolution Guidelines to guide the absorption and implementation of devolved functions

Some sectors commenced (Agriculture, Gender, Commerce, Water, Housing, and Education) transferring some functions to the Local Governments

Guidelines for managing devolution prepared by 7 line ministries

Local Governments have started managing some of the devolved functions Central Structures of the devolving sector ministries not drawn.

Preparation of sector devolution plans and guidelines for some ministries

Commencement of transfer of sectoral funds by some sectors

Orientation of the Local Governments and communities on what devolution is and its implications for their day to day activities

The need to come up with specific and effective measures for overcoming resistance to the devolution process

Lack of a clear devolution strategy

Re-organization of some line ministries has affected the structures of the prepared devolution plans. The need to prepare new strategic plans in view of the devolution of functions

7. Local Development and Financing Mechanisms Completed the installation of electronic data base and preparation of all District Socio-Economic Profiles and District Development Plans

Increasingly development projects are being implemented by Local Governments

District Councils implementing projects as defined in the Development Planning System

More donors funding projects through the District Development Fund Linking of the District Development Planning System to the National systems

Preparation of Village Action Plans

Creation of Local Development Funds in Urban Councils The need to focus on promotion of Local Economic Development

Geographical focusing by Donors not a viable approach to funding Development Projects.

The need to update the District Development Plans

The need to develop a basket financing mechanism

3.2 Key Lessons Learned during implementation of the DDPs and National Decentralisation Programme3.2.1Key Challenges

During the period 1998 to date the implementation of the National Decentralisation Programme has faced a number of challenges. Some of them are as follows: Inadequate funding, staffing and lack of necessary equipment for the provision of public services As determined by the Constitution, local government elections must be held within one year after general elections. This has not been done as Local Councils have now been dissolved. This is an obvious obstacle to effective Local Government System.

Pace in the implementation of Devolution has slowed down.

Inadequate office space to conveniently accommodate the new structure of the Council in that offices are spread all over district. Vacancies and Inadequacies in certain skills and capacities at the Local Authority level.

Approved Establishments / structure for Councils not yet put into effect/implemented

Staff and members of the Council need proper training to effectively deliver quality services Low Quality Service delivery due to: Inadequate trained/skilled/experienced human resources in District Councils,

Serious human resources capacity depletion partly due to HIV/AIDs pandemic

Unclear career path for Local Government employees,

Misunderstanding on pension schemes between civil servants and Local Government employees, and

Absence of a unified system of service between Local and Central governments.

The need to ensure that District Councils get their allocations as budgeted, due to inadequate and erratic funding to District Councils, The need to ensure accountability and transparency at Council level on transferred funds.

Inappropriate structures to accommodate devolved functions at both the District Council level and below,

Absence of a mechanism to sensitize ministries devolving in the second phase,

Inadequate linkage between decentralization and public sector reform program, Absence of mechanisms for monitoring implementation of devolved functions at Council level.

Financing the training of central ministry officials on their new roles following devolution of their functions.

Financing the training of District Council staff (specific areas e.g. finance, accounting, planning, administration, human resources management) in order to improve performance capacity in the Councils.

Financing capacity replenishment efforts for the District Councils.

Financing revenue generation and mobilization strategies in the District Councils so as to broaden their revenue base.

Declining overall coordination of sector devolution (Committee meetings, enforcement of devolution plans etc.);

Absence of Devolution Plans and Guidelines for devolved sectors at the Council level

Slow pace of implementation in some initially devolved sectors;

Some sectoral and other laws not aligned to the Decentralisation Policy;

Absence of by-laws for managing devolved functions;

Existing sector guidelines need to be reviewed to be able to address emerging issues: Limited human resource capacities;

High staff turnover and vacancy rate in Local Governments;

Poor office accommodation;

Approved organisation structures and systems at LG level not effected;

Central structures for devolved sectors not aligned to the Decentralisation process;

Established human resources management systems not effected;

Frequent and adhoc staff relocation by the Ministry of Local Government and Rural Development

Inadequate vehicles and equipment;

Lack of decentralized payroll system.

Weak capacity for financial management, accounting and transparency;

Delayed approval of consultants report on the revised Intergovernmental Fiscal Transfer Formula;

Fiscal devolution not fully completed;

Currently no system in place supporting intra-district fiscal transfers;

Limited procurement skills;

Ceding of revenue to Local Governments by Central Government not happening;

Limited revenue base of Local Governments;

Lack of adherence to guidelines on the use of revenues collected;

Central initiatives that target improvement of the local revenue base not coordinated;

Widespread vacancies and ad hoc transfer in Finance Departments in Local Governments.

Development Planning Systems for rural and urban Councils do not fully incorporate contemporary development aspects and cross-cutting issues of HIV/AIDS, Gender, ICT and Environment;

Weak linkages with the National Planning Frameworks, e.g. the MGDS;

Inappropriate monitoring of the implementation framework;

Low synchronisation / alignment of sector specific plans to the DDPs (timing of plans, guidance from MLGRD);

Low implementation of activities / measures from the DDPs;

Absence of Strategic Plans of Local Governments;

Low community participation;

Low capacity for promotion and management of local economic development at the centre and local level;

Unclear development planning and management structures below the district Council level;

Unplanned urbanisation;

Unclear linkages between economic and social development planning with physical development planning.

3.2.2Key Lessons Learnt in the implementation of the National Decentralisation Programme

In view of the above strategic challenges and issues the following are considered vital to the effective implementation process of the National Decentralisation Programme in the district:

The need for National Level Champion for Decentralisation

There is need for the process to have a strong political will from the top. It is therefore critical that the Office of the President champions the decentralisation process.

The need for sustained socio-political transformation The decentralisation process has been pursued in an environment characterised by the persistent influence and power struggle between elected members of Local Governments, Members of Parliament and Traditional Authorities. Traditional Authorities by the nature of the social structure enjoy a more positive image among ordinary people than do elected members of the Local Governments. There is a strong patron-client relation characterised by a tendency for ordinary people to look to government to provide for them and resign themselves to poor services provided by public officials and institutions. This observation has important implications on the way in which the devolution process is undertaken to empower the citizenry so that the citizens can hold public officials and institutions accountable for their performance in the delivery of public goods and services. Therefore there is strong need for appropriate socio-political transformation to redress the situation if the gains and strides made in the implementation of the policy are to be sustained and deepened. The need for accelerating the Devolution Process The transfer of defined functions and resources to local governments by key sectoral ministries was slow under NDP I and yet sectoral function devolution is at the centre of the decentralisation policy. This slow pace has been attributed to:

Limited appreciation of the benefits of devolutionary decentralisation;

Absence of a clear political and institutional driver for the devolution process and;

Fear among politicians and government officials of losing control over resources.

Accelerating the transfer process will therefore be the centrepiece of NDP II. Having an administrative champion who would ensure that there is effective coordination of the decentralisation process at the technical level is also critical. Due to the nature and complexity of the decentralisation processes, the office of the Chief Secretary for the Public Service in the Office of the President and Cabinet should take the leadership role because this position is directly associated with the institutional reforms in the public sector that are at the centre of the devolution process.Need for Improved Linkage between Decentralisation and other Policies The 2004 review revealed that the decentralisation process was poorly linked to major national policy frameworks such as the Malawi Poverty Reduction Strategy (MPRS); the Public Sector Reform Programme (PSRP); Sector Wide Approaches (SWAPs); and Sector Investment Plans (SIPs). While there were some conceptual linkages between these frameworks and the decentralisation process, operational linkages were found to be inadequate. The only strong linkage was found to be with the Malawi Social Action Fund (MASAF). This lack of strong operational linkages is detrimental to the decentralisation process. The government has to date established a Policy and Research Unit in the Office of the President and Cabinet whose mandate is to ensure that all government policies are harmonized before Cabinet approves. This Research Policy Unit reports to the Public Sector Reform Committee.

Need for improved Management of Programme Activities NDP I lacked effective mechanisms for managing the implementation of the decentralisation process. The programme had seven components and the components were implemented in a fragmented manner such that they failed to build synergies among themselves. Although the Decentralisation Secretariat was charged with the responsibility of managing the Programme, some of the components required mandates and capacities that were beyond the capacities and mandates of both the Ministry of Local Government and the Decentralisation Secretariat. The Ministry of Local Government and Rural Development will manage the National Decentralisation Programme II [2008-13] all the directorates playing their roles in line with their functions. However, other institutions with relevant mandates will be involved in the implementation of the programme.Enhanced Monitoring and Evaluation Systems The NDP I provided for the establishment of a Monitoring and Evaluation for tracking the implementation of the decentralisation implementation process. However, while a system was developed this was not fully institutionalized because of capacity problems at national and district levels. There was no coherent framework for linking programme-level and component-level objectives and outputs to the implementation progress to enable effective monitoring and evaluation. Most importantly NDP I consisted of a set of programmes supported by various development partners with reporting demands, which meant that monitoring was donor specific. Sector devolution in this programme is where the central government ministries transfer functions to the Local Governments. Essentially this means that service delivery is placed under the responsibility of the Local Governments with central government being left with the responsibility of providing policy direction. The initial sectors that were earmarked for devolution were Ministries of Agriculture and Food Security, Health, Education, Trade and Industry, Women and Child Development, Natural Resources and Environmental Affairs, Transport, Public Works and Housing, Lands and Natural Resources, Irrigation and Water Development These Ministries prepared their Devolution Plans and began the process of transferring the defined functions and associated funds.This component will continue to effect smooth transfer of devolved functions to Local Governments and ensure that the Local Governments assume their roles and responsibilities. The following table outlines the roles and responsibilities of the MLGRD, the Local Governments and the devolving sectors.

Institutional Development and Capacity Building A clear institutional structure, sound management tools, and human resource capacity at national, district and local levels are critical to the success of the decentralisation process.

An appropriate functional structure for each Council and human resource management systems were developed during the NDP I but were only partially implemented. Capacity in areas of local government management, financial management, local development planning and management was also developed. However, there is need for implementation of the structures at local government level that:

provide for effective management of the devolved functions,

attract and retain staff through acceptable Human Resource Management systems,

provide more appropriate office space,

vehicles and equipment to accommodate and support management of the devolved functions.

Fiscal Devolution, Accounting and Financial Management Fiscal Devolution is concerned with the determination of the level and modality of financing for devolved functions. It is therefore a critical component to the success of the decentralisation process. For devolution to succeed there must be a clear and strong fiscal relationship between central and Local Governments in terms of funding for devolved functions, revenue mobilization powers, resource allocation mechanisms, as well as management and accounting of funds.

During the implementation of NDP I [2001-2004] Parliament approved an Intergovernmental Fiscal Transfer System to run for three years. Government has since reviewed the formulae for existing and also developed some new transfer funds to Local Governments, all of which will be subjected to the approval process. New Funds include the anticipated Local Development Fund (LDF) and the NRA Road Fund, and the Environmental Fund. Treasury is funding Local Governments directly in respect of the following sectors, Agriculture, Health, Gender, Commerce, Water, Housing, Education, Environment and Forestry. The revised intergovernmental Fiscal Transfer Formula also includes an Intra-District resource allocation mechanism.

An Integrated Financial Management Information System (IFMIS) for Local Governments is planned to be developed and subsequently used. A study to help Local Governments improve their revenue base through access to ceded revenue in compliance with the Decentralisation Policy was conducted and its recommendations are yet to be adopted by GoM.

However, as Local Governments take on increased functions and responsibilities from central government, the revenue and expenditure estimates including the General Resource Fund (GRF) for the recurrent and development budgets have to be linked to the Local Development Plans.

Local Development Planning and Financing Mechanisms Local Development Planning requires that development at local level is fully under the control of the community members. This means that development plans will be initiated at community level by the designated community structures through the Local Council to the national level structures.

Local Development Planning and financing however, has in the past been biased towards social infrastructure development with limited attention to promotion of Local Economic Development. There is need to broaden the planning framework so that it includes issues of physical development planning and local economic development. There is further need for the District Development Planning System to incorporate emerging crosscutting issues, especially Gender, HIV and AIDS, ICT and Environment.

Specifically, in view of the DDP and Decentralization process the district has learnt the following lessons:

The absence of the Councilors creates a gap in the system

Normal and coordinated operations of the Council is depended on adequate office space

For smooth operations of the Council, the line ministries have to fully devolve the functions as opposed to current scenario where functions are devolved without corresponding resources.

Harmonised reporting system is vital in the operations of the Council.

Adequate resources are instrumental in the implementation of decentralization process

4.0 The Situation Analysis (SWOT Analysis)

This part of the report highlights the internal and external environment assessment of the Council using the SWOT Analysis technique. The analysis has taken advantage of information got from some review reports, feedback received from staff members within the Council and contributions received during the Strategic Planning Workshop.

It considers the internal (strengths and Weaknesses) and the external (Opportunities and Threats) factors that are most pertinent to the Council in particular.

4.1 STRENGTHS

The Council has financial support from Central Government

It has structures in place

It has qualified and skilled human resources

There is good relations between community and the Council There is existence of Social Economic profiles and District Development Plans

The Council is backed by legal mandates

4.2 WEAKNESSES

The Council has capacity gaps

Inadequate and poor infrastructure

There is inadequate resources

There is poor coordination between sectors

Poor mindset among staff members in the Council Absence of Councilors in the Council

Weak enforcement of bye-laws at Council level

Dual reporting of sectors

There is resistance to change

The Councils over reliance on central funding.

4.3 OPPORTUNITIES

There is proximity to the community

Willingness of community to undertake programmes

The Councils has political support

There is existence of development partners

There is availability of policy framework

Availability of business initiatives

Availability of natural resources.

4.4 THREATS

Political manipulation/interference

Global financial crisis

Climate change and natural disasters

Erosion of self-help spirit within the community

Central Government directives that are uncertain

Erratic and inconsistent funding that could affect the implementation of the plans.5.0 KEY STRATEGIC ISSUES/CHALLENGESThe District Council has identified 10 development issues from a thorough situation analysis and these issues provide the basis for the district development objectives and Strategic Plan.The following are the district issues in order of priority.

1. Low Agriculture production Crops and Animals

2. Limited access to safe water

3. High maternal and infant mortality rate.

4. Low quality of education

5. Poor accessibility

6. Low security Service and coverage

7. High Environmental degradation

8. Increase of OVCs

9. Low levels of income

10. High illiteracy levels

11. Low Participation in Development Activities

12. Low early learning and simulation Services6.0 Objectives and Strategies for DevelopmentIn line with the MGDS which is the overall government policy aimed at reducing poverty by achieving economic growth and development, the district Council has prepared strategies to deal with the pressing needs in the community. These needs have been prioritised in order of severity and strategies are hereby proposed in line with national and district objectives. These projects are conceived in tandem with Thyolo District Councils Vision and Mission statement as stated below:

6.1 Mandate

To make policy and decisions on local governance and development for the district

To consolidate and promote local democratic participation

To promote infrastructural and economic development through District Development Plan

To mobilize resources within and outside the District

To maintain peace and security in the district in conjunction with the National Police Service

To make by-laws which facilitate its functions

To appoint, develop, promote and discipline its staff

To cooperate with other Councils to learn from their experiences and exchange ideas

To perform other functions such as registration of births and deaths and participate in the delivary of essential services as may be prescribed by the act of parliament

6.2 Vision: To become the best reliable provider of sustained quality socio-economic services

6.3 Mission: "To provide socio-economic services through active participation of all stakeholders in order to empower the community and improve their quality of life in the district.

6.4 Core Values.

Effectiveness and efficiency

Transparency and accountability

Trustworthiness

Client focused

Participatory decision making

Equal opportunity

Collaboration and Coordination

7.0Implications of the Malawi Growth and Development

Strategy and Decentralization on the Council

7.1 Malawi Economic Growth and Development Strategy

The Malawi Growth and Development Strategy (MGDS) is an overarching strategy for the country. It provides a policy framework that addresses both economic growth and social policies and how these are balanced to achieve the medium term objectives for Malawi. The strategies contained in the MGDS have been developed based on past lessons and experiences of the MPRS implementation while taking into consideration the current political, economic and social developments in the country. It has also been aligned with existing key sectoral strategies and policies from both the private and public stakeholder institutions

In line with the MGDS which is the overall government policy aimed at reducing poverty by achieving economic growth and development, the Council has prepared strategies to deal with the pressing needs in the community, documented in the Council Strategic Plan. The Malawi Growth and Development Strategy is based on five thematic areas and these are:-

Theme One: Sustainable Economic Growth. This is a priority for Malawi in the medium term and its rationale is to create wealth for the nation and enable the poor to determine their economic destiny, share in the ownership and management of the countrys wealth, be food secure and participate in economic activities.

Theme Two: Social Protection. This aims at protecting the vulnerable and mitigating the impacts of disasters, recognizing that there will continue to be a proportion of the population that will be vulnerable as we pursue economic growth. Theme Three: Social Development. This recognizes that a healthy, educated and productive population is necessary to achieve poverty reduction and sustainable economic growth. Theme Four: Infrastructure development which is recognized as a prerequisite for growth and poverty reduction and Theme Five: Improved Governance, which underpins the achievement of all the growth and social objectives. These are the main strategic components that are contained in this volume in the form of a detailed matrix for each of the strategy areas.

7.2 Decentralization and Governance

The Decentralization Policy provides for the establishment of Local Governments as the basis and a framework for the devolution of functions, responsibilities, powers and resources to District Assemblies. Decentralisation policy defines the responsibilities that the council should carry out. These have been reflected in the mandate that the council has to implement as defined above.8.0 OUTCOMES AND OUTPUTS.Dowa District Council

STRATEGIC OUTCOMETARGET

1.0 Food Insecurity 1.1 Reduce Food Insecurity from 23% to 10% by 2016

2.0 Inadequate rural infrastructure for priority social services2.1 To improve access to social services by 70% by 2016

3.0 High child and maternal mortality rates3.1 Reduced child/infant and maternal mortality rates from 68/1000 and 98/1000 to 45/1000 and 50/1000 respectively by 2016

4.0 High illiteracy levels in the district4.1 Reduced illiteracy levels from 21% to 15% by 2016

5.0 High Environmental degradation5.1 Reduce environmental degradation by 2016

6.0 Low income among the disadvantaged groups6.1 Improved income among disadvantaged groups by 2016

7.0 Low revenue generation base7.1 Improve revenue generation base by 2016

8. 0 Inadequate planning systems8.1 Improve planning systems by 2016

9. 0 Inadequate institutional capacity9.1 Improve institutional capacity by 2016.

10.0 High prevalence of HIV and AIDS and malnutrition10.1 Reduce prevalence of HIV and AIDS from 12 to 4% and malnutrition by 2016

9.0Monitoring and Evaluation

The development of the Strategic and Implementation Plan is the first critical step for ensuring that the performance of the Council is improved in relation to service delivery. This, however, cannot be achieved unless a framework for checking progress in the implementation of the plans is in place. Thus the monitoring and evaluation will be an integral part of the implementation of the Councils Strategic Plan as it will enable it and its collaborative partners assess and see whether the strategic objectives are being implemented as planned. Periodic evaluations will enable the implementing units to determine whether the plan has achieved its intended outcomes. It is therefore important that the Monitoring and Evaluation is developed and put in place as it will attempt to provide solutions to the problems encountered and propose measures for the Council to effectively achieve its objectives in line with the MGDS.

This Monitoring and Evaluation is based on the implementation plans that have been developed which are reflected as Annex 2 to this report. The M & E focus will be on performance monitoring in terms of whether the agreed upon outputs and annual outputs targets are being effectively and correctly implemented. Furthermore, it will focus on whether the required resources (inputs) are provided in a timely manner, the outputs are being realized and ultimately the outcomes are being achieved, and whether there is any impact on services delivery in line with the aspirations of the Malawi Growth and Development Strategy and the MDGs. The Monitoring and Evaluation will also assist the Council to identify challenges that may hinder the smooth implementation of the Strategic and Implementation Plan. The M & E will thus allow for regular and consistent tracking of performance through the review of the various elements of each sector, section or unit in accordance with the implementation plans.

This five year strategic plan will therefore be subjected to annual reviews. Data will be gathered periodically during the course of implementation for informed decisions during the reviews. Adjustments will be made where necessary, at the end of each review to reflect realistic path of the plan. At the end of the five year timeframe, there will be an evaluation to check how the plan has been implemented whether successfully or not. Data gathered throughout the five years will assist in the evaluation process.

June 2011

Dowa District Council

Private Bag 2

Dowa

+ 265 1282 264

DOWA DISTRICT COUNCIL

Strategic and Implementation Plan

NDP I Review Report 2004

GRF is unconditional and can be used for both recurrent and capital expenditures.

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