A Background to Decentralization:
In recent decades, developed and developing countries alike around the world, have been pursuing, promoting and establishing decentralization as an alternative development strategy. There is empirical evidence that decentralization as an alternative governance system, ensures efficient public services designed to meet the needs of citizens. Decentralization is also associated with greater democracy, accountability and official responsiveness to citizens’ needs and concerns.
Article 35(6) (d) of the Ghana’s constitution provides that the state should adopt the necessary measures to “make democracy a reality by decentralizing the administrative and financial machinery of government to the Regions and Districts by affording all possible opportunities to the people to participate in decision making at every level of national life and in government”.
Chapter 20 of the country’s constitution also provides that “Ghana shall have a system of local government and administration which shall, as far as practicable, be decentralized”. Therefore, decentralization as an alternative strategy to national development in Ghana is a constitutional imperative, providing a strong basis for District Assemblies to have oversight responsibility for deepening democracy, nurturing local economies for development, and providing the needed basic services through decentralized governance.
The first major step toward decentralization in Ghana was taken in Ghana in 1988, with the promulgation of Provisional National Defence Council (PNDC) Law 207. PNDC Law 207 is however now superseded by the Local Government Act (Act 462) of 1993
The Act 462 of 1993 established the District Assemblies and empowered them system with legislating, budgeting, planning and executing authority. Moreover, the provision for representation of the people include both elected and appointed memberships; whilst the administrative and technical staff are responsible for managing and executing decisions of the Metropolitan, Municipal and District Assemblies (MMDAs).
In this article we explain why Ghana’s decentralization programme has fallen short of national expectations and governance in the country has been recentralized.
Decentralisation in Ghana:
During the 1980s and 1990s, Ghana saw a push towards decentralisation to empower governance, improve services, and boost engagement. The Local Government Act of 1988 set up District Assemblies as the players in government, handling tasks like planning, development of, revenue collection, and resource management (Aryee, 2018). Subsequent changes through the Local Government Act of 1993 broadened the roles of district assemblies and introduced measures to increase independence and citizen involvement (Awortwi, 2010). Despite these strides, challenges such as constraints, limited administrative capabilities, and political influences have impeded the smooth execution of decentralisation in Ghana (Ansong, 2014). Additionally, there have been signs of recentralisation where the central government exerts control over aspects of governance. This trend goes against the principles of self-governance and democratic ideals, which are at the core decentralisation reforms (Boateng & Awuah, 2018).
Factors Contributing to Recentralisation: Dynamics and Power Struggles:
A centralized government machinery gives political power to ruling political parties: This concentration of power can lead to a trend of recentralisation as the ruling party tries to control governance structures and decision-making processes. For example, Agyei Mensah’s research in 2014 shows how the dominance of the ruling party can impact the selection of Metropolitan, Municipal, and District Chief Executives (MMDCEs) in Ghana. These appointments are often based on allegiance to a political party rather than qualifications, resulting in a lack of efficiency accountability and transparency at the local level. As a result, MMDCEs may prioritize serving the interests of their party over those of their constituents, thereby, undermining the principles of decentralisation. When state power is centralized within political parties, it can hinder political diversity, competition and efficient performance. This limitation reduces the ability of other political parties and independent candidates, to actively engage in governance processes. With checks and balances on authority compromised, recentralisation tendencies among local government authorities are further reinforced.
Influential Patronage Networks Shaping Governance Structures: In politics, patronage networks where political favors and resources are exchanged for loyalty and support, play a significant role in matters of governance. These connections have the power to impact how resources are distributed, who gets appointed to high public office and how decisions are made in governance systems. Research conducted by Asante and Tengey (2017) illustrates how patronage networks function within the government framework of Ghana. In this system, influential political figures leverage their relationships to secure deals and positions for themselves and their supporters. This practice undermines the principles of recruitment and advancement outlined in decentralisation reforms, leading to a trend of recentralisation. Moreover, these networks can foster corruption and favouritism within government bodies, diminishing trust in the process of decentralisation. Residents may view authorities as being more loyal to elites rather than prioritizing the needs of the community at large, ultimately weakening the credibility of decentralised governance systems.
Administration and Capacity Constraints: Limited Technical Expertise and Resources at the Local Level: Decentralisation in Ghana has been plagued by difficulties related to inadequate technical expertise and limited resources at the local government level. This has in turn resulted in inefficiencies and shortcomings in delivering services. A study by Dzorgbo and Møller Jensen (2018) highlights a deficit in capacity among government officials in Ghana in areas like financial management, project planning and community involvement. This lack of capacity hinders the implementation of decentralisation reforms by authorities, leading to tendencies of recentralisation as central government bodies step in to bridge the gap. Furthermore, insufficient funding and resource allocation worsen the plight of government institutions. Many struggle to generate revenue for their operations and service provision, heavily relying on transfers from the government and donor aid. This reliance undermines the autonomy and effectiveness of governance structures and perpetuates recentralisation trends.
Service Delivery Inefficiencies Due to Obstacles: At the local government level in Ghana, effective service delivery faces challenges from bureaucratic hindrances and administrative red tape. Complex administrative procedures, overlapping jurisdictions and bureaucratic inefficiencies often cause delays and inefficiencies in carrying out development projects and public services. According to a study by Awumbila and Tsikata (2013), bureaucratic challenges pose obstacles to the execution of decentralisation reforms in Ghana in fields like education, health, and infrastructure. Local government officials may face difficulties navigating procedures and obtaining approvals, resulting in project delays and budget overruns. Moreover, bureaucratic barriers can dampen citizen involvement and engagement in governance processes, as people perceive the system as obscure and hard to access. The lack of transparency and answerability undermines the essence of decentralisation, creating feelings of disappointment and detachment among citizens.
The Impact of Traditional Leaders: Traditional Leaders Serve as Conduits for Central Government Power: Traditional chiefs and kings have long held power and influence in society. Their role often involves bridging the gap between the government and local communities. One way they wield their power is through the chieftaincy system, which plays a role in land ownership and conflict resolution. Research by Ardayfio Schandorf (2005) highlighted how traditional authorities in Ghana are pivotal in land management, with chiefs having the authority to allocate land and resolve disputes within their areas. This sometimes leads to a governance structure where traditional leaders overshadow elected officials. Moreover, traditional leaders are integrated into governance through structures like the House of Chiefs, where they collaborate with government representatives on policies and administration matters. This integration strengthens their position as intermediaries of central government authority.
Barriers to Grassroots Democracy and Local Empowerment: Challenges to grassroots democracy and local empowerment still exist despite efforts to decentralise governance and empower communities due to the influence of authorities. In some cases, leaders who follow practices may prioritise their interests or those of their community members over broader development objectives, creating a gap between local governance systems and the needs of the people. A concrete example of this situation can be seen in the context of the National Health Insurance Scheme (NHIS) in Ghana. Research conducted by Ablo et al. (2016) demonstrates how traditional leaders in areas can impact participation in the NHIS by supporting or discouraging enrolment based on their preferences or interests. This influence can hinder efforts to achieve health coverage and fair access to healthcare services. Moreover, traditional authorities might uphold existing power structures and inequalities within communities, especially those that are related to gender and socio-status. Studies indicate that women and marginalised groups often encounter obstacles when trying to participate in decision-making processes controlled by leaders, further marginalising them within society. In general, even though traditional leaders play a role in governance, their influence could sometimes obstruct initiatives aimed at decentralising power and fostering grassroots democracy. Tackling these issues requires an approach that acknowledges the validity of leadership while also ensuring that all citizens are included and empowered in the governance procedures.
Challenges Facing Decentralisation in Ghana:
Restrictions on Independence and Resource Limitations: Local government bodies in Ghana frequently struggle with generating revenue and managing finances, which restricts their independence and their capacity to fund development projects and deliver services autonomously. Reliance on government funds makes local governments susceptible to changes in priorities and funding allocations, restricting their ability to address local needs effectively.
Insufficient Administrative Capacity and Institutional Performance: Government entities in Ghana face deficiencies in capacity and institutional weaknesses, including shortages of qualified personnel, technical know-how, and administrative capabilities. These limitations hinder their planning, execution and monitoring of development initiatives, leading to inefficiencies, delays, and subpar service delivery outcomes. Inadequate expertise in management, procurement procedures, and project implementation undermines the success of decentralization endeavors while promoting recentralization trends.
Political Interferences: Political factors and external influences present obstacles to the decentralization efforts in Ghana. Local government bodies often face pressure, favoritism, and manipulation and this affects their ability to operate independently. The direct appointment of metropolitan, municipal, and district executives by the President through local elections undermines the democratic principles at the local level and can lead to a focus on national interests rather than local needs.
Institutional Arrangements and Ambiguities: The decentralization structure in Ghana is marked by uncertainties, overlapping responsibilities, and inconsistent institutional setups. These complexities make it challenging to implement decentralization reforms effectively and contribute to tendencies of recentralization. Blurred lines between local government duties as well as among various levels of local governance result in confusion, conflicts and inefficiencies within governance processes.
Inadequate Citizen Participation: Efforts to enhance citizen participation in governance procedures encounter obstacles in areas of Ghana. Local authorities struggle to engage citizens in decision-making processes, planning activities, and monitoring initiatives despite attempts to encourage their involvement. Limited awareness, resources for programs, and exclusion from these processes undermine the credibility and efficiency of local governance institutions. This hampers their ability to represent and cater to the needs and concerns of communities.
The obstacles to decentralization in Ghana are varied and intricate, involving limitations, deficiencies in capabilities, political factors, legal uncertainties, and deficiencies in citizen engagement. Overcoming these hurdles necessitates changes to bolster governance structures, improve financial independence, enhance administrative proficiency, encourage democratic responsibility, and cultivate inclusive and participatory decision-making procedures.
Implications of recentralisation on governance and development:
The shift towards recentralization in Ghana’s decentralization system has implications for the effectiveness of governance, democratic accountability, service provision, and local development outcomes. By consolidating power and decision-making authority at the level, recentralization undermines the principles of subsidiarity, citizen participation, and local empowerment with ranging effects on governance and development.
Governance Effectiveness:
Recentralization hampers the effectiveness of governance by centralizing decision-making processes and diminishing the autonomy of government bodies. Centralized decision-making restricts the ability of governments to respond promptly and adequately to needs and priorities, resulting in inefficiencies, delays, and bureaucratic hurdles in governance procedures. This weakens the responsiveness, flexibility, and efficiency of governance structures and contributes to governance issues at the level.
Democratic Accountability
Recentralization presents challenges to accountability by weakening mechanisms for representation, oversight, and citizen involvement. The appointment of metropolitan, municipal, and district executives (MMDCEs) by the President through local elections undermines grassroots democratic governance and accountability since MMDCEs may prioritize central government interests over local needs and priorities.
Service Delivery
The lack of citizen involvement in decision-making processes weakens trust in government institutions and diminishes transparency, impacting accountability. Centralizing authority can hinder governments’ autonomy, limiting their effectiveness in addressing development needs. This centralized approach may overlook the requirements of communities, resulting in access to services. Inadequate citizen engagement can worsen service delivery challenges by lacking mechanisms for accountability.
Local Development Outcomes
Recentralization stifles innovation and community-driven development at the local government level, as national priorities may overshadow local needs. Limited fiscal autonomy and administrative capacity hinder the implementation of tailored development strategies at a level, undermining subsidiarity principles and citizen empowerment. Subsidiarity emphasizes the importance of granting decision-making power to the level of governance, but this principle is compromised when decisions are centralized, disempowering local communities and limiting their autonomy. When citizens have limited involvement and empowerment at the level, it weakens their ability to shape their development paths, leading to feelings of disempowerment and exclusion. Recentralization, within Ghana’s decentralization framework, has implications for governance efficiency, democratic accountability, service provision, and local development results. By consolidating power and decision-making control, recentralization undermines the values of subsidiarity, citizen engagement, and local empowerment, creating hurdles for governance and development in the nation. Addressing these consequences necessitates reforms that bolster governance structures, enhance accountability, encourage citizen participation, and empower local communities to steer their development priorities.
The complex issue of recentralization can be addressed by taking the following remedial measures:
Empowering Government Autonomy: This will necessarily entail a revision of laws and regulations to empower local government bodies with increased decision-making power and control over local matters, establishing safeguards to shield governments from political influence and favouritism, ensuring their freedom and autonomy in decision-making processes.
- Encouraging Fiscal Decentralization: This will require taking steps to boost decentralization by bolstering the capacity of authorities to generate revenue locally and reducing reliance on funding from the central government. It will also require Introducing revenue-sharing mechanisms that allocate a portion of resources to local governments, enabling them to effectively finance local development priorities.
- Promoting Citizen Engagement and Participation: Involving citizens more actively in governance will foster participatory decision-making practices at the level, allowing citizens to have a significant say in shaping local development goals and projects. Such a measure will also enhance transparency, accountability and responsiveness in governance by creating avenues for consultation, feedback, and dialogue between residents and local authorities.
- Enhancing Institutional Capacity: This can be achieved by investing in programs aimed at improving the technical capabilities of government bodies, providing them with the necessary skills, knowledge, and resources for efficient performance of their duties. Provide training and professional development opportunities for government officials to enhance their leadership, management, and governance skills.
- Improving Legal and Regulatory Frameworks: It is necessary to update the legal and regulatory frameworks related to decentralization to address any uncertainties, inconsistencies, and difficulties in implementation. Clarify the roles, responsibilities, and authorities of central and local government bodies to ensure that decentralization reforms are backed by strong institutional structures.
- Supporting Community-led Development Initiatives: To reverse the process of recentralization, steps need to be taken to encourage community-driven development projects that empower communities to identify, prioritize, and implement initiatives tailored to their needs and goals. Offer guidance, financial assistance, and capacity-building support to community-based organizations, civil society groups, and grassroots associations involved in development efforts.
- Promoting Inter-Agency Collaboration and Coordination: To reversing the recentralization trend, measures should be taken to facilitate effective cooperation among central and local government entities, as well as between governmental agencies and non-governmental partners, to ensure a coherent approach that maximizes the impact of decentralization initiatives. Cultivate partnerships and networks that harness the strengths of stakeholders in addressing governance challenges at the grassroots level.
- Monitoring and Evaluation Establish: Effectively reversing the recentralization trend also requires the institution of appropriate monitoring mechanisms to evaluate the impact, effectiveness, and outcomes of decentralization reforms. To make sure that decentralization efforts are in line with development goals and objectives, it’s important to assess progress, recognize obstacles, and adjust policies and strategies accordingly. By following these policy suggestions, Ghana can counteract recentralization patterns, enhance decentralization efforts, and encourage governance and development results at the community level. These changes are crucial for promoting the values of subsidiarity, citizen engagement, and local empowerment, as supporting sustainable growth and prosperity throughout the nation.
CONCLUSION
Evidence of recentralization is manifested in central government’s continued oversight of finances and decision-making processes at the local government level. Recentralization is also evident in the appointment of Metropolitan, Municipal and District Chief Executives by the president, the limited fiscal independence of supposedly decentralised government agencies which still rely on central transfers and the concentration of vital services at the national level.
These shifts significantly affect the efficiency of governance, official accountability, the quality of service delivery and impedes local level and inclusiveness in governance. Given the evidence provided by analysis, there is an urgent need to take appropriate measures to reverse the trend of recentralization.
Despite efforts to devolve power and resources to grassroots levels through decentralization reforms, persistent recentralization threatens the autonomy and effectiveness of authorities. This counteracts principles like subsidiarity, citizen involvement, and local empowerment, constraining community capacity to drive their paths effectively while addressing local needs. Policy actions should concentrate on boosting government independence, encouraging decentralization, engaging citizens more actively in governance e and enhancing institutional capabilities.
Policy actions should also focus on refining legal and regulatory structures, backing community-driven development projects, fostering collaboration among different agencies and the establishment of effective monitoring and evaluation systems. The current recentralization trends in Ghana’s decentralization setup present hurdles to governance and progress. Tackling these trends and pushing forward with decentralization reforms are crucial for fostering transparent and participatory governance practices and empowering communities. They are also necessary for the attainment of sustainable development outcomes in Ghana. Policymakers, stakeholders, and citizens need to collaborate in overcoming these obstacles and constructing a responsive and more democratic governance framework for the well-being of all Ghanaians.
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