the decentralization & local development support programme jordan the decentralization &...
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The Decentralization & Local Development Support Programme
JORDAN
The Decentralization & Local Development Support ProgrammeJordan: Introduction and Base Information
Hashemite Kingdom of Jordan: Constitutional Monarchy
Recognized as State of Transjordan in 1922 by the Council of League of Nations Gained sovereignty from British Mandate in 1946 Population in 2014 (estimate): 7.9 Million Area: 89,342 Square Km GDP: $ 39.29 billion GDP per capita $5,749 (PPP) - Upper Middle Income Country Gini Coefficient: 35.4 (medium)
Parliament: House of Representatives (Elected) and Senate (appointed by King) King appoints Executive Branch: Prim Minister, Cabinet and Regional Governors
Governorate Level of Local Administration with Appointed Governors and
Appointed Advisory Council members; Municipalities: Directly elected councils headed by Directly Elected Mayors
Frequent Inward migrations from surrounding state – Palestine (1948), Iraq (1990 & 2003), Syria (2011 and on going)…..
UNDAF Priority Areas: 1- Enhance Systemic Reform, 2- Ensure Social Equity, 3- Investing in Young People, 4- Preserving the Environment,
Why Does Jordan want to decentralize or to reform its existing system of local administration and municipalities?1. Is the objective to improve the performance of the existing system to
better address local development challenges and to better respond to people’s needs?
2. Is it to increase citizen participation and to give more voice/power to citizens in determining how and on what public resources should be spent and to empower them to ensure that government remains accountable?
3. Is it to improve the efficiency with which the local administration (including de-concentrated Departments) and municipalities utilize public resources and perform their assigned functions or is it also to enhance the local revenue mobilization of such local entities?
4. Is it to increase coordination between central agencies and de-concentrated entities to improve the delivery of basic services, the promotion of local economic development and the management of natural resources?
5. Or is it a combination of all of the above?
The Decentralization & Local Development Support ProgrammeWhy Decentralize: The Nature of Demand
Answering these questions and accurately defining the Problem or the Objective behind decentralizing - the Demand side - will provide a more precise foundation and a clearer direction for guiding the process of articulation of the reform and of more accurately defining what we want it to achieve or address;
Launching a process to define Jordan’s decentralization Vision without having carefully defined why we are seeking to decentralize or to reform the local system, will generate a supply driven outcome that will most likely be irrelevant to the country’s local development objectives and ineffective at addressing prevailing local development challenges;
Furthermore, continuing to try to tackle weaknesses in the local administration and municipalities system or to address specific local development challenges in a disjointed manner and driven by narrow objectives will contribute to the further fragmentation of the system and will deepen its ineffectiveness
The Decentralization & Local Development Support ProgrammeWhy Decentralize: The Nature of Demand
Health Education Water &Sanitation
Public Works
Agriculture OtherTrade & Industry
Ministry of
Health
Ministry of
Education
Ministry of
Water & Sanitation
Ministry of
PublicWorks
Ministry of
Social Welfare
Ministries of
Agri, Industry
Ministry of
Other
De-Concentrated Tier of Central Agencies
Governorate Level
Municipal Level
Central Level
Governorate Local
Administration
The Decentralization & Local Development Support ProgrammeThe Architecture of the Local Administration & Municipal System
Ministry of
Interior
Ministry of
MunicipalAffairs
Ministry of
Planning
The EU Programme of Support to Democratic Governance will provide support along two complementary tracks of intervention:
1. Support the process of articulation and reaching consensus on Jordan’s Decentralization Vision and Policy and the development of the National Strategy and Programme for their application;
2. Launch an Integrated Local Development Pilot to Illustrate tangible improvement in the performance of an enhanced and integrated system of the local administration in a governorate and its municipalities and in the quality of Local Development outputs;
The Decentralization & Local Development Support ProgrammeEU Programme Scope and Areas of Focus
Result 1: Detail of Strategy Development Process
Reconstructing/Reforming a Local Government System:
Structuring and Launching the Reform Process: Policy & Legal
D & LG Policy
D & LG Law &
Regulations
Alignment of Sector Policies, Laws &
Regulations
D & LG Vision
Parliament Debate
Civil SocietyDebate
Articulating a National Vision for
D&LG
Technical Consultation
National Strategy for D&LG Alignment of Primary
Policies, Laws & Regulations
Health & Education
Water & Sanitation
Trade & Industry
Agriculture
Public Works
Finance
Planning
Civil Service
Justice
Law & Order
Power, Com/Trans
D & LG Input to
Constitution
Audit
Consensus Building Visioning Policy Development & Adoption & Reform Strategy Formulation Implementation of the Reform
Vision Paper on Sub-National System of
Government
Civil Society Dialogue
Constitutional Review
Intergovernmental Dialogue
Facilitation & Technical Support
By DSU/MOLD
National Dialogue
Decentralization & Local Government
Vision & Policy Draft
Parliament
May June July August October DecemberSeptember November
Facilitation & Technical Support
By DSU/MOLD
Decentralization & Local Government
Policy
DSU/MOLDOutput
DSU/MOLDOutput
DSU/MOLDOutput
LG Policy Reform/Development Process
Inter-ministerial Negotiations
2011
1 2 3
Parliament
January
Decentralization & Local Government
Policy
DSU/MOLDSupport
DSU/MOLDOutput
Development Process of the Local Government Law & Regulations & Strategy for its Application
Inter-ministerial Negotiations
February April June AugustMay July SeptemberMarch October November December
Draft Local Government Law & Regulations
Facilitation & Technical Support
By DSU/MOLD
Local Government Law & Regulations
Inter-ministerial Negotiations
Formulation of Decentralization/LG
Reform Strategy
Facilitation & Technical Support
By DSU/MOLD
Strategy for Applying LG Policy &
Legal Framework
DSU/MOLDOutput
2012
4 5
Restructuring/Development of Central Sector
Institutions in-line with D & LG Policies
Restructuring/Development of Central Primary
Sectors Institutions in-Line with
D & LG Policies
Health & Education
Water & Sanitation
Trade & Industry
Agriculture
Public Works
Finance
Planning
Civil Service
Justice
Law & Order
Power, Com/Trans
Restructuring/Development of De-Concentrated Sector
Institutions in-line with D & LG Policy
Restructuring/Development of De-
Concentrated Primary-Sector
Institutions in-Line with D &LG Policy
Structuring/Development of Delegated Sector
Functions in-line with D & LG Policy
Structuring/Development of
Delegated Primary-Sector Functions in-
Line with D &LG Policy
De-concentrated Institutional
Arrangements
Delegated Institutional
Arrangements
Restructuring the Governorate LA/LG Institutions in-line with D & LG Policy
Restructuring the Markaz LA/LG
Institutions in-line with D & LG Policy
Restructuring the Mother Village
LA/LG Institutions in-line with D & LG
Policy
Devolved LG/LA Institutional Structures
LG/LA
LG Related Central Institutions Ministry of
concern
Restructuring of the Ministry of Local
Development/Government
LG&D Policy, Legal and Regulatory Reform Support
Institutional Development of LG
System
LG Operating Systems, Procedures
& Capacities
Monitoring & Evaluation of LG
System Operations
LD Information System
Reconstructing/Reforming a Local Government System:Applying the Reform: Reassignment of Functions & Institutional Restructuring
Reconstructing/Reforming a Local Government System:Applying the Reform: Systems, Procedures and Capacity Development and Launch of LD
Support/Staff FunctionsSystems/Tools, Procedures &
capacities
Base LA/LG Administrative Systems, Procedures & capacities
LA/LG Public Expenditure Management (PEM) Systems,
Procedures & capacities
LA/LG Local Revenue Management Systems, Procedures & capacities
LA/LG Human Resource Management Systems, Procedures & capacities
LA/LG Local Council Operating Systems, Procedures & capacities
LA/LG Information & Monitoring & Evaluation Systems, Procedures &
capacities
LD/Line Functions Systems/Tools, Procedures &
capacities
Operating Systems, Procedures & Capacities for De-concentrated
Administrative, Operational & Support & Supervision Functions
Operating Systems, Procedures & Capacities for Delegated Functions
LA/LG Systems, Procedures & Capacities for the Delivery of
Devolved Basic Social Services
LA/LG Systems, Procedures & Capacities for the Delivery of Devolved Basic
Municipal Services
LA/LG Systems, Procedures & Capacities for the Promotion of Local Economic
Development (LED)
LA/LG Systems, Procedures & Capacities for the Management of
Natural Resources
Operating Systems, Procedures & Capacities for De-concentrated or Central LD Promotion & Tracking
Functions (LDO)
Operating Systems, Procedures & Capacities for Delegated Local
Development Functions
LA/LG Systems, Procedures & Capacities for Crisis Managing &
Response
Local Development Outputs Programs & Resources
Local Economic Development (LED) Programs and Initiatives
Basic Social Services Delivery programs and Initiatives
Natural Resource Management Programs and Initiatives
Food Security Programs and Initiatives
Assessment of the State of Local Development
Analysis of LA Policy, Legal, Regulatory & Institutional Framework
Assessment of LA Performance, Outputs and Impact on Local Development
Analysis of institutional, political and social dynamics around Decentralization Reform
Inte
r-M
inis
teria
l Com
mitt
ee
Dec
entr
aliza
tion
Secr
etar
iat
Loca
l Dev
elop
men
t Dep
artm
ent
Tech
nica
l Sup
port
Tea
m
Nati
onal
Dia
logu
e
Ministries & Central Agencies
Parliament
Local Administrations & Municipalities
Civil Society & other
The Private Sector
Dec
entr
aliz
ation
Vis
ion,
Pol
icy
and
Nati
onal
Str
ateg
y
Institutionalization Diagnostic National Dialogue Strategy
The Decentralization & Local Development Support ProgrammeThe Decentralization Strategy Development Process
Institutional Arrangements for Supporting the Articulation and Implementation of the Reform:
- Strengthen the institutional structure, operational systems and capacities of the Local Development Department (LDD) at MOI;
- Create the Programme Technical Support Team at LDD – For Programme Duration with extension option to support Strategy Implementation;
- Create and develop the capacities and operationalize the Decentralization Secretariat – For the duration of strategy development and implementation;
- Support the creation of Decentralization Units at relevant primary and sector ministries and agencies – For the duration of strategy Development and implementation;
- Support and strengthen the Inter-ministerial Committee & its Technical Committee for Decentralization - For the duration of strategy development and implementation;
The Decentralization Strategy Development ProcessInstitutionalizing the Strategy Development/Implementation Process
Conduct an Integrated Diagnostic to gain an in-depth understanding of the nature of demand for Decentralization Reform – What are its developmental, institutional, political and social objectives:
- Conduct an in-depth assessment (building on existing work) of the state of local development in Jordan and identify and analyze the key local development challenges and their primary causes – systemic/endogenous and exogenous;
- Analyze (building on previous work) the policy, legal and regulatory framework, institutional structure, operating systems, procedures and capacities of Jordan’s system of local administration (including de-concentrated departments of central ministries and agencies) and other centralized entities operating locally;
- Assess the performance of these various entities and the outputs they generate and the quality of their impact on the state of local development and on the particular aspect of it that they are expected to serve or address;
- Analyze the prevailing institutional, political and social dynamics that have influenced Jordan’s decentralization efforts and that are expected to play an important role in shaping the process of articulation of Jordan’s decentralization Vision and Policy and the formulation and implementation of the reform Strategy;
The Decentralization Strategy Development ProcessConducting the Diagnostic of the State of Local Development & of the Local Administration and Municipal System
- Consolidation and synthesis of the outcome of the National Dialogue and the derivation of the agreed Decentralization Vision and the Drafting of Jordan’s Policy on Decentralization Reform;
- Development of the National Decentralization Strategy and Programme:
- Define the Policy, Legal and Regulatory Framework of the reformed system of local administration/government;
- Elaborate the institutional and organizational structure of the reformed system, its inter-governmental relations, lines of vertical (upward and downward) as well as horizontal accountabilities and its functional and resource assignments;
- Detail the Operational Systems, Procedures and Capacities of the new Local administration/government at its various tiers;
- Describe the Institutional arrangements/structures to be used for implementing the National Programme and outline the roles and responsibilities, time-frame, sequence and methodologies to be used in the Implementation of the National Programme which will introduce the policy, institutional, operational and capacity reforms outlined in the National Strategy;
The Decentralization Strategy Development ProcessArticulation of Jordan’s Decentralization Vision, Policy and Strategy
The Scope of Decentralization Reform Strategy & National Implementation Programme
MOI
MOMA
DSP
GLA
M
MOF MOJOther
MOE
MOH
MOA
MOPW
WAJ NECMOI&T
Inter-ministerialCommitteeTechnical Committee
LDD
Primary Ministries Sector MinistriesAuthorities &
Companies
Communities
MOP
FDSP
PSP
JSP
CSSP
ESP
HSP
ASP
PWSP
I &TSP
WSP
ESP
GLASP
MSP
De-Concentrated Branches
DS
Result 2: The Integrated Local Development Pilot
Introduce an enhanced Public Expenditure and Asset Management System at the Governorate and Municipality Levels to enable both tiers to efficiently, effectively and accountably manage public resources. Differentiate the assignment of functions of the governorate from those of its municipalities while ensuring complementarity between the two tiers:- Introduce procedures for participatory needs
assessment for Integrated Local Development and ensure engagement of the Governorate and Municipal Councils and communities representation while working closely with De-Concentrated Sector Departments;
- Introduce Participatory Integrated Planning procedures and capacities and support the articulation of an integrated local development plan for the Governorate and for the Municipal tier;
- Introduce Participatory Budgeting procedures and capacities at the Governorate and Municipal tiers and support the development of Annual Investment Programs for each;
- Introduce Implementation Procedures and Capacities including procurement, supervision of project implementation, accounting and reporting procedures and capacities;
The Integrated Local Development Pilot Introduce a Public Expenditure and Asset Management System
1
The Integrated Local Development Pilot Establishment and Activation of the Local Development Fund (LDF)
Create and activate a Local Development Fund (LDF) to avail programmable supplementary resources to Pilot Governorate/s and its Municipalities to invest in local development. Capitalize the Fund through Programme Funding and leverage additional public as well as Development Partner finance when available:
- To provide Supplementary Budget Support for programming by Governorate and Municipalities in coordination with resource allocation through de-concentrated expenditures of de-concentrated departments;
- Refine the criteria and indicators used in an Equalization Formula for fund allocation among local administrations;
- Introduce and refine Performance Measures for setting access criteria;
- Inform the process of Development of Fiscal Decentralization Policy through the Ministry of Finance to ensure policy impact:
• Inform the development of the equalization formula;
• Inform the process for setting the level of the central subsidy;
2
The Integrated Local Development Pilot Establishment and Activation of the Local Development Fund (LDF)
LD (LED) Fund
Productive Initiative
(Bankable Public Good)
Revenue Generating Economic
Infrastructure(Bankable Public Good)
Public Private Partnership
(Bankable Public Good)
Social and Economic
InfrastructureGrant
Loan
Loan orEquity
Loan orEquity
• Schools, Clinics, Water & Sewage …• Roads and Bridges• Irrigation Canal• Water Purification Facility• Electricity Boosting Station• Gas Main
• Market• Cold Storage Facility• Product Exhibit• Fishing Boat Dock & Unloading• Micro Enterprise Zone • Transshipment Zone
• Pilot Livestock Breading Farm• Pilot Fish Hatchery • Crafts Development Center• Research & Development Center • Agricultural Surplus Processing Plant• Feed Production Mill
• Industrial or Export Promotion Zone• Renewable Energy Generation• Transport Company • Tourism/Hospitality Projects• Production/Processing Facilities• Mineral Extraction Plants• Other
Loca
l Adm
inis
trati
on
The Integrated Local Development Pilot Introduce and Activate an Integrated Local Development Framework
Introduce a framework, procedures and capacities for Integrated Local Development Planning and Implementation at the local level – Consolidating De-concentrated, Devolved and Delegated Actions:
- Introduce procedures to institutionalize an Integrated Planning Process for Local Development and ensure engagement of devolved, delegated and de-concentrated bodies;
- Introduce procedures and capacities to coordinate the implementation of an Integrated, multi-actor local development plan;
- Utilize the Local Development Fund resources to supplement the Governorate and Municipality budgets and to leverage additional public resources from various actors including de-concentrated sector departments, central agencies and as well as Development Partners in support of the implementation of the integrated, multi-actor LD plan;
3
Health Education Water &Sanitation
Public Works
Agriculture OtherTrade & Industry
Ministry of
Health
Ministry of
Education
Ministry of
Water & Sanitation
Ministry of
PublicWorks
Ministry of
Social Welfare
Ministries of
Agri, Industry
Ministry of
Other
De-Concentrated Tier of Central Agencies
Governorate Level
Municipal Level
Central Level
Governorate Local
Administration
The Decentralization & Local Development Support ProgrammeComponents of the Integrated Local Development Pilot
Ministry of
Interior
Ministry of
MunicipalAffairs
Ministry of
Planning
Consolidation &
PE
MPEM
Vertical Coordination
& Collaboration
Horizontal Coordination
1
1
3
4
Improved Local Development Outputs
LDF
2
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