Popular Participation Workshop Seri.. No. 1
A United Nations Economic Commission for Africa Publication Series on Popular Participation
Enhancing Dialogue.
Co-operation and Interface between the Government and Popular Development Organizations in Uganda
Workshop Report
Organized by:
The Public Administration, Human Resources and Social Development Division, within the framework of the Popular Participation in Sustainable Development Project, in collaboration with the Development Network of the Indigenous Voluntary Associations of Uganda and PAPSCA-PCMU (Kampala, Uganda, 22-25 February 1993)
CONTENTS Page
B~ckground and Introduction 1 II Popular Participation and Development 8 III An Assessment of Popular Participation
In the Formulation and Implementation of Development Policies and Programmes:
A Case Study of Uganda 15
IV Recommendations and Conclusions 17
Annexes:
Text of Statements by:
Mr. Emmanuel Tumusiime Mutebile 27
Mr. J.W. Okune 31
Dr. Sadig Rasheed 35
II Programme 38
III List of Participants 43
IV List of Papers 46
Background and Introduction
The United Nations Economic Commission for Africa's Public Admlnlstration, Human Resources and Social Develop- ment Division organized, within the framework of the Popular Participation in Development Project, a national workshop on the theme Enhancing Dialogue, Cooperation and Interface between the Government and Popular Development Organizations in Uganda from 22 to 25 February 1993 in Kampala, Uganda. The four-day workshop was attended by over 35 participants, including senior government officials, leaders of people's organizations and non-governmental agencies and academicians and consultants in development.
A list 01 participants is attached in Annex III.
The decision to organize the workshop stemmed from the recognition of the growing interest and visibility of the contributions of people's organizations, community groups and non-governmental agencies, henceforth refereed as popular development organizations (PDOs), in the process of recovery and development in Africa. Not only have these grassroots organizations steadily risen in numbers, but they have become increasingly influential in the process of development and, in particular, alternative channels for mobilizing interna- tional development assistance. UNECA's interest in organiz- ing this workshop arises from the fact that while popular development organizations and people's organizations have grown in number and their scope of activities have expanded in Africa, they have, however, not been able to make a meaningful impact in the national decision-making process and have had little influence at the macro-policy making level.
To increase the effectiveness of their work and enlarge the macro-impact of their activities people's organiza- tions and popular development organizations must scale-up their involvement in national policy discussions and articulate positions on issues and programmes that affect their constitu-
on the state of relationship between govemments and people's organizations and popular development organizations be carried out with the view of developing common under- standing and strategies and to promote a more healthy and mutually respectful relationship between them.
Increased involvement of popular development organi- zations and people's organizations in the policy making and implementation processes is also congruous with the African Charter for Popular Participation in Development, which sets the framework towards greater institutional pluralism and more broad-based participation on the part of grassroots people and their organizations. _ Closer relationship and continuous dialogues between governm_ents on the one hand, and popular development organizations and people's organi-
..
zations on the other, affirms the Charter's mandate to create a new domestic order which radically restructures Africa's socio-economic settings and accords people and their organizations substantial roles and an enhanced voice in the policies and programmes .that affect them.
The objectives of the Ugandan workshop were to:
• collectively reflect on the existing relationship between the Government and the popular development organizations in Uganda;
• examine the different modes of interactions that popular development organizations have with the government;
• elaborate on the modalities for enhancing dia- logue and co-operation between policy makers and implementors,· on the one hand. and people's organizations, on the other; and
2
• identify measures needed to create a climate of trust and openness and increased opportunities for interaction and dialogue between govern- ments and popular development organizations.
The workshop was 'Opened by His Excellency, Mr.
Emmanueal Tunuseme Mutebele, the Permanent Secretary in the Ministry of Finance. In a speech read on his behalf, he welcomed the participants and appealed to them to indulge in serious and frank discussions given the importance of the topic at this particular moment to Uganda's development. The Permanent Secretary emphasised that the number of popular development organizations and people's organizations is growing tremendously and there is a need to develop policy measures for coordinating and -facilitating their work.
The permanent Secretary presented an overview of the current areas which the Government of Uganda emphasizes in its relations with popular development organizations and people's organizations. Among which are:
• bottom - up approach (e.g. decentralization);
• community involvement at grassroots level;
• collaboration with popular development organi- zations in implementation of projects and progr- ammes; and
• entrusting the maintenance of completed pro- jects to beneficiary communities (creating an Aid Co-ordination Secretariat at Office of the Prime Minister to co-ordinate aid of popular develop- ment organizations especially international popular development organizations).
The speaker further underscored key areas of govern- ment initiative. These were:
creation of Non-Governmental Organizations Board under Ministry of Internal Affairs to regis- ter, compile and maintain a register of non- governmental organizations and monitor their activities according to their stated objectives;
creation of Aid Co-ordination Secretariat at the Office of the Prime Mitlister; and
commissioning of a popular development orga- nizations sector study to recommend to the government an appropriate legal and institution- al framework to regulate collaboration among these organizations, government and donors in promoting people centred participatory mode of development in Uganda.
The Permanent Secretary concluded his remarks by requesting the workshop participants to reinforce the above processes of transition and to assist the government in establishing and implementing the above policies and mecha- nisms.
Mr. Mutebile's speech was followed by a statement from Mr. MuJemu Musheshe, Chairman of the Board of Development Network of Indigenous Voluntary Agencies (DENIVA). Mr. Musheshe indicated that he was glad that one of the popular development organizations dreams had come true. Popular development.organizations were looking for an opportunity to make their dream,operational, whereby through dialogues with the government representatives an effective relationship between the two (popular development organiza- tions and government) could be forged.
4
Regarding the concept of popular participation. Mr.
Musheshe stated that (it was not new to Africa) . since communities had for long participated in shaping their own development. It was, however, important to re-examine the values, principles, and philosophies that were instrumental in promoting popular participation and making it an intrinsic part of community life.
In retrospect. the colonial system, through various strategies gradually eroded the system of popular participa- tion. Consequently the approach adopted was a form of directive participation administered by the chief and colonial system agents, and where sanctions were used freely to ensure compliance. Unfortunately post colonial governments continued with the same practices.
This dependency syndrome which has become ingrained in the people is. today, being challenged by people and their leadership. Instead, a community leadership that is visionary, articulate and committed emerging from within the people where members of the community along with their leader discuss goals. prioritize choices and make well informed decisions.
What was needed. stated Mr. Musheshe, was to reflect and learn from these experiences. For example, what made it possible for people to work together? What made it possible for them to engage in self mobilization? What was needed for the leadership to be well informed? And more specifically, what kind of education and training is required?
Considering that people havealways participated in their own development how should the "popular development organiza- tions and other popular development groups ensure a form of sustainable development. What are the entry points? These, the speaker emphasized. were critical questions that need to be looked into during the workshop.
Dr. Sadig Rasheed, Chief of ECA's Public Administra- tion Human Resources and Social Development Division, in a statement, delivered on behaJf of Mr. Layashi Yaker the Executive Secretary of the United Nations EconomicCommis- sion for Africa, welcomedtheparticipantsto theworkshop and thankedthe Ugandan Government and the popular develop- mentorganizations communityfor their excellent accomplish- ment in hosting the workshop.
Dr. Rasheed observed that the conclusions of 1990 Arusha International Conference on Popular Participation, as embodied in the African Charter for Popular Participation in Development, marked a turning point and a rare consen- sus on participatory development.e He noted that an integral thrust of this workshop was to assist with the implementation ofthe Charterand to developaparticipatoryframeworkwithin which the contributions of popular development organizations were enhanced through more co-operative interactions with the government and 10 work towards the formulation of institutional arrangements that foster widespread participatory action.
Heindicated that to facilitate the.discussions, ECA had commissioned a case study on the state of relationship between the government and popular development organiza- tions in' Uganda. This background paper was intended to help participantsexaminethe experience of the relationships between government and popular development organizations' and identify various modalitiesfor enhancing dialogue and co- operation between them. Besides the case study, ECA had also prepared two other papers to shed greater insights on the deliberations. These papers dealt with the implications of the Chartervis-a-vis popular development organizations and some underlying principles to strengthen the relationships between government and popular development organizations.
6
Towards achieving the objectives. Dr. Rasheed urged the forum to give serious thought to and make concrete recommendations on the following issues:
different models of interactions that popular development organizations have with govern- ments;
modalities for enhancing dinlogue and co-opera- tion between policy makers and implementers on the one hand and people's organizations on the other; and
measures needed to create a climate of trust and openness and increased opportunities for interaction and dialogue between governments and popular development organizations.
He invited the participants to have a frank dialogue on these important issues. He noted that the presence of senior government policy makers and top leaders of the non-govern- ment community in the workshop would reinforce and strengt- hens the belief that the discussions at the workshop would culminate in the adoption of practical recommendations to guide government and popular deveJopment organizations.
He assured the participants that the recommendations generated from the workshop would be widely disseminated to the decision-makers and the non-governmental communi- ties in Africa as well as to interested partners outside Africa with a view to ensuring that the fruits of thoughts and experi- ences as related to Uganda were appropriately shared by all those, who are, involved in this important task.
II Popular Participation and Development
During the discussions of this theme, special emphasis was placed on theAfrican Charter
on
Popular Participation in Development and what should be done to promote its implementation and carve out and protect the space envis- aged by the Charter. It was noted that the Charter calls upon governments and people's organizations to playa crucial role in promoting popular participation in the social and economic life of their countries. The particular areas which the Chartercalled for actions on are as follows:-The Chartercalls upon governm~nts to:
• create the political space where people's groups can flourish by allowing freedom of opinion and dissent;
• be more accountable to the people;
• work with people's representativesin formulat- ing development strategies with the aim of achieving"self-reliantand people-centred devel- opment based on popular participation and democratic consensus";
• give recognition to African popular development organizations and grassroots initiatives and develop cooperative partnerships that reflect African priorities;
• end armed conflicts, reduce defense spending, redirect resources to productive activities and social services and;
8
• foster decentralization of development process-
es.
The Charter calls upon the' people's organizations to:
• seize the initiative and press for democratic participation as a right and responsibility at all decision-making levels;
• establish independent people's organizations that are genuinely grassroots, democratically administered, and self reliant;
• create a consultative machinery on democratic participation at various levels, with the govern- ments;
• develop links across national borders for pro- moting sub-reqlonal, regional, South/South, and South/North cooperation; and
• practice popular participation within their organi- zations.
In further examining the concept of popular participa- tion in development, it was noted that there were significant limitations which hinder the full participation of people and their organizations, including the following:
The level of poverty.
The nature of technical issues at stake.
Lack of personnel with the requisite skills.
Limited facilities for research; hence inability to marshall supportive information and data need- ed for an effective dialogue.
A context largely determined by the donor community.
The invasion of the civil space, by the state and the incorporation of all civil institutions or impo- sition of severe limitations on them.
Participants observed that p. series of practical steps have to be taken, both by government and popular develop- ment organizations if the Charteris to be effectively imple- mented. Among the steps identified and, discussed for the various actors are:
Proposed Steps for Actions by the Government
A. Dialogue between popular development organizations and governments must be promoted and maintained. Cooperation between governments and popular development organizations are necessary as the absence of mutual recognition and dialogue results in negative consequences as manifested by the experiences 01the past three decades. Mecha- nisms by which experiences can be shared and innovative and successful projects can be disseminated need to be established. Closer cooperation betWeen the official agencies and popular development organizations not only will facilitate replication of successful initiatives on a wider scale but will also "make it possible to accord serious recognition to these organiza- tions among the general public.
10
BQ Governments need to provide ~ deliberate polley supporttopromote peopleJs and their organizationJs role In the social and econom- ic life of their countries. Governments need to examine the myriad of legislations, policies and procedures that are not conducive to the work of people's orqanizations and that thwart the growth of these popular movements. Be- sides eliminating restrictive laws and proce- dures, a positive policy support needs to be created if these popular movements have to grow and flourish to play their important roles in the recovery and development of their countries.
c.
Governments and popular development organizations should cooperate in reorient- ing the bureaucracy and training officialsto
understand and properly support participato- ry development efforts. Policies that encour- age creativity and use of local resources to solve problems pay large dividends in generat- ing workable ideas and sustaining achieved improvements. However, such policies require surrendering some control and bureaucratic neatness. For genuine popular participation to be realized, qualitative changes in relations and attitudes are required at the operational level between the bureaucratic apparatus and the popular development organizations.D. Governments should establish open access to information about the
poucte«
and progra- mmes of development and authentic and serious debateon
national problems and proposed solutions. Such policies not onlycontribute to enhancement of the development process but create a climate of openness and trust between governments and popular devel·
opment organizations. Such a climate creates possibilities for increased interaction, for an open dialogue and allows people's voices to be heard and their concerns articulated on policies and programmes of the government.
Proposed Steps for Actions by Popular Development Organizations
If popular development organizations are to make sustained contributions to development in their own countries as well as in developing a collaborative relationship with governments and its agencies, there are several measures that they need to take.
A. Popular development organizations need to work towards building their institutional capacities to function as· autonomous, Inde- pendent, effective entities with competent leadership. If the popular development sector is to playa larger role in development and national social and economic life, it will need to develop a larger and more diverse cadre of leadership which can. articulate and debate various policy issues. There is a need to exert greater leadership in addressing the various aspects of policy and institutional settings. This is important not only to effectively represent constituency in policy arena but also to resist attempted coaptation, delegitimization and coercion of the popular development sector.
12
. I .IT
B. Popular development organizations, particu- larly those working at the grass-roots level, need
to
find waysto
build linkages across themselves In order to develop wider net- works within their own countries and across countries of the South. This will help them to share information, prepare themselves for analysis and strength their advocacy and cri- tique roles at the national and international levels. Popular development organizations of the South also need to deliberately build net- works and relationships with like-minded popular development organizations of the North so that they can find allies and supporters for their work from among popular development organizations of the North. This is of great importance as the . world is becoming increasingly internationalised and linkages across countries and regions are being shortened and made much simpler. It becomes also important to pay attention to networking because many of the forces that operate in each of the countries including their manifestations and impacts are common and similar. This will help popular development organizations to utilize their experiences and energies acquired in diverse settings and deal with common global issues and concerns, which extend beyond the level of a region ora
coun- try.c.
Popular development organizations need to Increasingly pay attention to, and develop understanding of, the forces and trends in the international scenario. This is necessary as it will enable them to formulate their postures vis-a-vis the state and the governments in theirII
14
own countries. If they do not examine ,the international context within which they need to develop the perspective about their relationship
with
the national and local governments, these organizations may inadvertently end up support- ing the very forces which may harm the inter- ests of their people.D. There is
a
need for popular development organizationsto
building wide spread alli- ances with the various components of civil society. For too long popular development organizations have beert ignoring the possibility of building wide-spread and larger alliances within their countries. While networks. associa- tions and federations among popular develop- ment organizations and people's organizations do exist. they do not extend beyond their limited horizons. There is an increasing need for these organizations to play an active role in building alliances with other sectors of the society - with trade unions, with cooperatives, with political parties. with cltizen groups, with teachers and students and so on.The purpose of building these alliances is to promote a wider education of the people at large, and to expand of-the roles and contribu- tions of people's organizations, on the one hand, and the importance of getting involved in the process of reflection. analysis, critique of the policies of the government. its programmes and their impacts. on the other. It is consistent with their need to increase their support base within the countries. on the one hand, and to play their broader role in promoting participatory democra-
cy, on the other. The experience shows that - wherever popular development organizations have done this, their relationship with the gov- -emrnent'has become one of more equal Dart-
ners.
III Assessment of Popular Participation In the Formu- lation and Implementation of Development Policies and Programmes: A Case Study of Uganda.
Participants briefly discussed past and current develop- ment in Uganda. Specific attention was drawn to the persis- tent wars and lack of a mechanism for people to voice their view inthe past. However, it was noted that since the advent of the National Resistance Mov~~entsin1986. the situation has improved substantially, a fact which made it possible for the people to seek participation in national life.
It was noted. that the present situation has also witnessed the proliferation of popular development organiza- tions and people's organizations. The Non-Governmental Organizations Registration Board estimates that over 900 popular development organizations work around the country.
Among the reasons identified for the sudden growth of popular development organizations and people's organizations are:
• lrnproved environment for peace and political stability;
• Increased accountability of the various levels of government and institutions:
• Increased availability of external aid;
• Government and donors favouring policies of privatization;
• Continued aggravation of the poverty situation as a result of restructuring of the economy.
The growing phenomenon of popular development organizations in Uganda has raised certain questions about the relationshipbetween the government and these organiza- tions. In this regard, it was noted in the discussion that popular development organizations seem to have mixed feelings on the type and level of interaction that should exist between these organizations
'and
U'le Government. The consensus is that the Government of Uganda should provide a conducive environment and playa faciUtative role to enable 1popular development organizations to become more effective.
On the other hand, it was agreed that the government of Uganda needed to have continued interactions with popular development organizations to monitor their activities, coordi- nate their efforts and to ensure an equitable distributionofaid.
While it was noted that some popular development organizations had started getting involved" in national policy debates, the consensus was that the indigenous popular development organizations were not strong enough' to effectively participate in matters ofpolicy. The discussion at the workshop pointed to various factors that hinder the participation of these organizations in policy processes.
Among which are:
lack of technical skills to engage in serious debate over complex policy issues;
lack of resources to collect, organize and pres-
ent information; .
16
donors unwillingness to fund activities relatedto policy advocacy activities;
lack of experience dealing with the bureaucracy and the political leadership;
lack of coordination among the popular develop- ment organizatlons and People Organizations;
IV Recommendations and Conclusions
The participants made several recommendations aimed at enhancing dialogue and cooperation between the Govern- ment and popular development organizations. The recom- mendations are clustered around two themes: (i) government policy support; and (ii) institution building on the part of popular development organizations and people's organiza- tions.
Popular Development Organizations
It was recommended that legal registration of popular development organizations was desirable for:
enhancing a harmonious relationship between popular development organizations/people's organizations and the government;
updating information/data on popular develop- ment organizations/people's organizations
in
Uganda and;
monitoring activitiesbythe government.
However. the participants felt that the mandatory provision should be reviewed in order to enable registered popular development organizations to have easy access to privileges. In particular, Sections 1(6) and (7) which empow- ers the government to approve, reject, revoke and/or strike off from the register faltering popular development organizations but does not give the popular development organizations the power to appeal and to be heard in a court of law. This was contrary to fundamental rights. The group recommended an amendment to the above articles sot~atthe popular develop- ment organizations have a right to seek redress in the court of law.
Another problem noted was that the non-governmental organizations statute was not empowered to offer any clear rights for them to be registered: It operated under the guise of other laws like the Company's Act chapter 85 of 1908 and Trustees Incorporation Act. Likewise, popular development organizations register under very strenuous procedures.
Furthermore, the Statute was not well known to people in order to encourage popular participation.
To overcome these problems. the Group recommended that these provisions should be reviewed in order to give the Statute authority to confer corporate status on the popular development organizations. In this way, PDDs could be made stronger partners. Similarly, some of the tedious administrative proceedings should be removed and the Statute should be publicized.
18
The Popular Development Organizations Monitoring Board
The Board Membership has no popular development organizations representative and has not been facilitated by way of logistical support... Also. the Board only operates in Kampala. rnakinq it difficult and costly for rural-based popular development organizations to register and attend various meetings.
It was recommended that one representative from the popular development organizations should be coopted onto the Board and that the Board should be strengthened with more logistical support and more skilled personnel in order to start on the role of monitoring. It was also recommended that the
work
of the Board should be decentralized to District Levels to ease registration for rural-based PDOs and people organizations.Organization Co-ordination BetWeen theGovernmentand Popular Developments
There is an.urgent need for coordination of activities in areas of training. information. donor relations and logistical support. A formal point of contact between government and popular development organizations should be established to serve as a forum for information exchange. Both the government and popular development organizations must maintain healthy relationships and understand that they are two sides of the same coin. Together. as partners, they will be better equipped to cope with the changing priorities of donors - the one dominant external force which exert a tremendous influence on the African development scene.
It was further recommended that:-
• There should be one coordinating body estab- lished and strengthened under the Office of the Leader of Government Business.
• The Government/popular development organiza- tions meetings should be regularized at all levels right from the grassroots.
General Government Policy Support
Besides easing some of the restrictive laws and regulations. a positive policy support needs to be created if popular development organizations and people's organizations have to grow and develop to play their important societal roles. The government needs to provide deliberate policy support for the popular development organizations.
Responsibilities of Popular Development Organizations and People's Organizations
The participants observed that. in order to enhance dialogue and cooperation, popular development organizations must strive to achieve certain attributes which gives them a legitimate role in the development process. The following were noted as being most fundamental:
• Well defined programmes and projects that derive from a clear mission, objectives and mandates;
• The projects and programmes must aim at answering to the development needs of clearly defined target groups;
20
• Clear method ot accountability;
• A sound sustainable financial/economic base;
• High quality of human resources with sufficient managerial andtechnical skills:
• Effective leadership that ensures internal de- mocracy within the organization;
• Positive relations with all its, constituents i.e.
government. donors. and beneficiaries etc.
Unfortunately most indigenous popular development organizations do not possess all or most of these attributes.
The government also has limited resource base. and ac- countability to people needs to b~ improved on.
The group therefore recommended as follows: ..
1 Both the populardevelopment organizationsand the government should ensure that provision of services to the grassr.oots should be jointly undertaken and well coordinated with!n a framework of mutual networking, collaboration and partnership.
2 The resource base of peoples organizations needs to be strengthened. In that direction.
income generation. staff training, and govern- ment subvention must be emphasized so as to put the Pas on track for sustalnabllity.
3 There should oe an institutlonal framework located in the government through line minis- tries. where popular development organizations
and government representatives meet to dis- cuss operating mechanisms and share responsi- bilities.
4 The government should concentrate on macro- policies. while micropolicies should be a major pre-occupatlen of people's organizations. In areas such as medical care. formal education, social and economici~astruct~re,etc., policies.
should be developed on·
a
partnership basis between the- government and peoples organiza- tions.5 The government should come out with clear policies on liberalization and privatization in development service provision in Uganda. A mechanism should be worked out in order to encourage mutual agreements between govem- ment and popular development organizations.
e.g. popular development organizations should be brought into government/donor meetings especially now that donors are recognizing the role of popular development organizations.
6 Both parties should jointly work out legislation and guidelines governing PDOs activities.
Room should be offered for enacting bye laws and policies. especially by popular development organizations, to w~ich government recognition should be sought' "and also assured. Ethical behaviour should be observed.
Improving the Domestic Base of Funding
Nearly all of the popular development organizations in Uganda depend on external sources of funding for their
22
development activities and none have made serious efforts to solicit funds from local resources. The participants noted that, despite the shortage of resources and the difficulty involved in raising local funds, it is essential that, at least, some portion of the incomes of these agencies be generated locally. -Most doubt that the flow of benefits can be sustained over long periods of time without some mechanisms which link external resources to community resources. Therefore,itwas strongly suggested that efforts be directed towards raising funds locally both from the private and public sources.
Institution Building
The Workshop identified poor management practices as being rampant among popular development organizations, where traditional hierarchical structures and closed manage- ment style were the norm. Consequently, many popular development organizations and people's organizations lacked the professional capacity to implement projects and share some of the burden in managing effectively poverty alleviation programmes. Lack of understanding of the working of the government bureaucracyI was identified as another problem affecting the performance popular development organizations.
Among the areas suggested for improvements are:
It was recommended that popular development organizations increase their programmatic collaboration with the government. Arrange- ments for joint staff training and development programmes be undertaken so that both govern- ment and popular development organizations staff understand the working mechanisms of either party. JOint policies for staff recruitment, performance and development also need to be evolved.
There should be a well serialized format for ,recognition of qUalifications; experience, ethics exposure: management and organizational behaviour .on both sides. In other words. clear code of ethiCs. acceptable b~ both popular development organizationsandthegovernment should be worked out. '
Ithas become exceedingly pertinent and known to donors that specific bUdget item's for staff development and trainIng are to be included.
Similarly government budgets for staff develop- ment proqrarnmes have been encouraged.
These funds should be usedforconducting joint skills training programmes.
There is a visible lack of equipment such as tools, stationary, information materials, etc. It is necessary that these equipments be procured for institutional support, free of tax. Registered popular development organizations /people's organizations should also have access to these materials free oftax.
Well defined structure, clear roles, ability to plan, monitor and evaluate should be invoked. A culture of interdependence which shares mission and tasks. and follows to principles should be created. Finally the group recom- mended that capacities of both popular development orqanl- zations and the government should be strengthened. The institutions created should be able to deliver goods and services and ultimately have an impact.
A ·final recommendation was made in the plenary session of 25th February 1993 that the above recommenda- tions be tabled by ECA to the government for due action since they are quite pertinent in the implementation of the
24
African Charter for Popular Participation It:' the Recovery and Development. It was recommended that ECA should communicate to the Ugandan government that these were the due concerns of the workshop.
It was also recommended that a follow up workshop be sponsored by ECA to consolidate and prepare actionable steps for lmplementatlon by popular development organiza- tions and the government of Uganda. It was further resolved that the two focal points for purposes of this programme of popular participation, DENIVA and PAPSCA. should work out the modalities for the next workshop and make proposals to ECA as a matter of utmost urgency.
ANNEX I
Text of Opening Statements by:
Mr. Emmanuel Tumusiime Mutebile The Permanent Secretary
Ministry of Finance and Economic Planning and Secretary to Treasury
Mr. J.W. Okune National Co-ordinator PAPSCA
Dr. Sadig Rasheed, Chief of Public Admtnlstretlon.Human Resources and Social Develbpment Division.
UN Economic Commission for Africa
26
Opening AddressbyMr. Emmanuel" Tumus//me Muteblle
The Representative, ECA - Public Administration, Human Resources and social Development Division.
Popular Development Organisations.
The National Co-ordinator, PAPSCA, Invited Guests.
Distinguished Partici pantsI
On behalf of the Government of the Republic of Uganda and on myown behalf. Ifeel honoured to welcome you all to this historical and timely Workshop on Enhancing Dialogue. co-operation. and Interface between Government and Peoples Organisations.
You willall aqree with methat this subject is continuing to gain ground in not only Uganda; but Worldover notingthe growingnumber and strength of peoples organisations. In that; popular development organizations Community Based Organisations. Private Voluntary Organisations etc. are proliferating World over. Their activities; and outputs are being recognizedday in day out by Government.
Manytimes; unavoidableconflictsare beingcreated or arising out of the relationships between these IIPeoples Orqanisations" and Government.. Yet both Institutions are addressing ways and means of bettering the livelihood of the citizens of Uganda. Such an initiative which aims to address such an area must be highly welcome.
'Ill
I have been informed about the objectives of this workshop;
as
clearly indicated in your invitation letters which I chanced to sign. For the convenience of those who did not look at them; I would like to enumerate them once more as follows:-• To collectively reflect on the state of Govern- ment and Popular Development Organisatio- ns.
• To examine the different modalities of inter- actions that popular development organisatio- ns have with Government.
• To elaborate on the modalities for enhancing co-operation between policy makers and implementors on the one hand and peoples organisations 00 the other hand.
• Identifying measures needed to create a climate of trust. openness and increased opportunities for interaction and dialogue between Government and popular develop- ment organisations.
Looking through your time-tables; it seems to me the objectives are achievable. In Uganda the number of popular development organizations can be estimated to be about 900.
This number seems to be growing daily. The character and area of focus of these organisations are also changing. No longer are they only involved in relief and rehabilitation. but increasingly in national development.
Both phenomena. call for concerned attention to formulate joint interventions. I therefore urge. you to take this workshop seriously with a view to evolving feasible. practica-
28
ble and actionable measures for the adoption and application by Government.
It may interest all of you to learn that; in searching such solution; the Government of Uganda has commissioned
a Study to look at the popular development organizations sector and recommend appropriate steps accordingly to Government. This is in its advanced stages and should evolve meaningful recommendations.
This Workshop is yet another strategic step in the direction of strengthening the Government/Peoples .Organisati- ons working relationships. I believe·at the end of it all the word development will bear meaning.
I would like to stop to ask; What then could be the problem ifboth institutions are targeting the poor; the disad- vantaged; the professional etc; In other words why should there be a discrepancy while addressing development? Could it be
a
problem in any way of programme conception or service delivery; or general administration/management or legislation. All these are pertinent questions to your assign- ment this week.In answering these questions. I am sure you will be setting strategy for plausible solutions for time to come. I therefore strongly recommend the above qu-estions to you to be asked where the objective discussions have been under- taken. More over I am further informed your recommenda- tions would be a basis for replications elsewhere in Africa;
since Uganda has been chosen by ECA as a pilot area. You therefore have a useful task to perform.
Having said that: I would like to seize this opportunity to thank the United Nations Economic Commission for Africa (ECA) for having chosen Uganda side by side with Namibia
as the pilot area for the Popular Participation Programme.
With the level of participants chosen here in: I am sure the confidence of ECA would not have been misplaced.
I now wish to conclude by thanking all of you who have come to offer your precious time in discussing the African Charter of Popular Participation. It is my sincere hope that this important Workshop will provide a machinery through which Africa Region will evolve meaningful steps for a healthy inter relationship between Government and Peoples Organisations: so that policies will be a home grown system.
I wish you all fruitful deliberations.
With those few remarks I now take the pleasure to declare the National Workshop on Enhancing Dialogue, Cooperation and Interface between Government and Peoples Organisations Open. Thank you all for the kind attention.
30
Statement by Mr. J.W. Okune
It is with much pleasure that I present to this Workshop a Statemer:'t reflecting Uganda Government's policy on the important subject of popular participation in sustainable development in Uganda.This Workshop is a realization of the decision contained in the African Charter for Popular Participation In Development which was adopted by the African Governments at the International Conference on Popular Participation in the Recovery and Development Process in Africa, held in Arusha.Tanzania, in February 1990.
The Charter calls for the creation of a new Africa in which democracy, accountability and economic justice must be internationalized; and in which popular development organiza- tions, grassroots organisations, youth and women groups as well as trade unions are active participants. To that end. the character mandated ECA to create Focal point for the purpose of maintaining liaison between the ECA and UN agencies, people's organisations and popular development organizations in member countries. The ECA Focal point is charged with the responsibility to, among other things:
strengthen and encourage the building of independent and democratic networks of people's organisations in Africa:
• Strengthen the management capacities of indigenous umbrella groups and networks of popular development organizations and people's organisations to better serve their communities; and
• Develop a data bank on people's organisati- on. popular development organizations, regional networks. technical institutions; and help establish linkage across national. sub-re- gional, regional, South/South and
South/North institutions. Uganda Govern- ment attaches the greatest importance to the letter and the spirit of the African Charter for Popular Participation and Develop-
ment.
Having realized that three decades of top-to-bottom. or trickle down approach to development has not brought about the desired socio-economic transformation in Uganda. Government has now embarked upon a new approach to development. the major features of which 'are:Bottom to top approach:
Community involvement at the grassroots;
Collaboration with popular development organizations in implementation of projects and programmes; and
Entrusting the maintenance of completed projects to beneficiary communities.
In this way, the development process in Uganda is becoming increasingly democratic, transparent and sustain- able. The on-going process of decentralization administration and development management is being used as an effective vehicle for internalizing the policy and concept of popular participation in development.
Although Uganda has had a long tradition of popular development organization and community involvement in soclo-econornic activities, such involvement was geared more towards relief operations than development activities; and it also lacked a proper legal and institutional framework to regulate and harmonize the activities of the various actors
32
therein. This shortcoming has been realized by Government.
That is why we have taken a number of remedial measures.
the most important of which are:
The creation of the popular development organization Board in the Ministry of Internal Affairs to compile and maintain a register of their activities according to their stated objec- tives;
• The creation of a popular development orga- nization Co-ordination Department in the Office of the Prime Minister to coordinate the activities of popular development organiza- tions in the country; and
• Commissioning of a popular development organization sector study to recommend to Government an appropriate legal institutional framework to regulate collaboration among popular development organizations, Govern- ment and Donors in promoting people centr- ed participatory mode of development in Uganda.
In Uganda, development is synonymous with poverty eradication. This is because our economy is under-developed and our people generally poor. To combat the problem of mass poverty, Government has introduced the concept of targeted poverty alleviation programmes designed to improved socio-economic conditions of specially targeted vulnerable groups.
Community involvement is essential in this programme;
that is why Government not only enlisted the services of popular development organizations in implementing such
programmes. but has also conducted training of the officials of popular development organizations. Government Depart- ments and grassroots communities in the design and man- agement of. targeted poverty alleviation programmes in Uganda.
This Workshopwill reinforce this continuous process of transitionto popular participation to development approach in Uganda. We look forward to a more tanqibleform of collabo- ration with the ECA Focal Point in deviling our capacity to internalize the concept of popular participation in develop- ment. In particular, we shall be looking forward to seeing how the ECA will assist Uganda in realizing the mandates of the Focal Point some of which I have enumerated above.
Lastly, we confirm the continuation of the existing collaborative arrangement with ECA involving PAPSCA-PCM U as the Governmental focal point for implementation of popular participation in sustainable development in Uganda; the Aid Co-ordination Secretariat in the Officeof the Prime Minister as a coordinator of popular development organizations activities in Uganda; and DENIVA as people's organisation focal point to cooperate with EGA in organizing relating activities in Uganda.
34
Opening Statement by Dr. Sadig Rasheed
It isagreat pleasure to welcome you on behalf of ECA and .myself to this national workshop to enhancing dialogue and cooperation between popular development organisations and Government.
Iwould like at the outset, to expressmydeep apprecia- tion to His Excellency the Permanent Secretary for formally opening the workshop on behalf of the government of Uganda. Also, I.wish to seize this opportunity to thank PAPSCA and DENIVA for the excellent arrangements they have made for hosting this workshop.
Asyou all know, the 1990Arusha International Confer- ence on Popular Participation in the recovery and develop- ment process in Africa and its outcome as embodied in the African Charter for Popular Participation in Development and transformation marked a turning point and a rare consen- sus in the continent's perception towards based participation on the part of people's organisations and non-governmental agencies.
An Integral thrust of this workshop is to assist the implementation of the Charier and develop a participatory framework in which the contributions of popular development organisations is enhanced through a more cooperative interaction with government. It's main purpose is to support and promote the effective participation of popular develop- ment organisations in the recovery and development process and work towards formulating institutional arrangements that foster widespread participatory action.
To facilitate the discussions, ECA. commissioned a case study on the state of popular development organisations
and government relations inUgan~a.· This background paper is intended to help us examine the experience in Government and popular development orqanisations' relations and identify . various modalities for enhancing dialogue and cooperation between them. Besides the case study. two other papers have been prepared to shed greater insightsto the deUbera- tion. These papers deal with the implications of the Charter for the role of popular development organisations and some underlying principles to enhance relations between govern- ment and popular development organisations.
Thus. this forum should enable us to give serious thought to, and make concrete recommendations on the following issues.
different modalities of interactions that popu- lar organisations have with governments;
modalities for enhancing dialogue and co- operation between policy makers and imple- mentors on the one hand and people's orga- nisations, on the other; and
measures needed to create a climate of trust and penness and increased opportunities for interaction and dialogue between govern- rnents and popular development organisatio-
ns.
I invite the distinguished participants to have very frank discussions on the important issue. The presence of senior government policy makers and top leaders of the non-govern- mental community relntorcesand strengthens my belief that the discussions at this workshop would culminate in the adoption of practical recommendations to guide government and popular development orqanisations.
36
I would like, once again, to thank all of you, for being here to share your experiences with us and among your- selves. I would like to assure you that your recommendations will be widely disseminated to the decision-makers and the non-governmental communities as well as to interested partners outside Africa with a view to ensuring that the fruits of your thoughts and experiences are appropriately shared by all those, who are, involved in this important issue.
I thank you for your kind attention and wish you most fruitful deliberations.
ANNEX II
PROGRAMME
National Policy Workshop on "Enhancing Dialogue, Co-operation and Interface between the Government of,
Uganda and Popular- Development Organizations
Venue: Kampala, UGANDA Date: 22-25February 1993
Organized by
The Public Administration, Human Resources and Social Development Division, within the framework of the Popular Participation in Sustainable Development
Project, in collaboration with Development Network of Indigenous Voluntary Associations of Uganda
and PAPSCA - PCMU
38
Sunday21 February 1992
Arrival of participants
Monday22 February 1992
09:00 - 11 :00 11:15 • 12:30
12:30 - 14:30
Registration
Opening Session
Opening Statement by Dr. S.
Rasheed, Chief Public Administra- tion. Human Resources and Social Development Division. ECA Statement by a Ugandan Govern- ment representative (Permanent Secretary in the Office of the Prime Minister).
Statement by a representative of Popular Development Organiza- tion.
Lunch Break
The African Charter for Popular Participation in Development:
Implications for the Role of Popular Development Organiza- tions and Government.
14:30 - 15:30
15:30 - 15:45 16:00 - 17:00 18:00 .. 20:00
Getachew Demeke: The African Charter for Popular ParticIpa- tion: Implications for the Role of People's Organizations and Gov- ernments.
Coffee break Discussion Reception Tuesday February23, 1993
The State of Government and Popular Development Organiza- tions Relations in Uganda.
09:00 - 10:00
10:00 - 10:30
10:30 - 11:00
11:00 - 11:15 11:15 - 12:30 12:30 - 14:30
40
J.B. Kwesiga "A Case Study of Government Popular Development Organization Relations in Ugan- da".
Government comments on the case study assessment (PAPSCA) Popular Development organizatio- ns' comment on The Case Study Assessment (DENIVA).
Coffee Break
Discussions continued Lunch Break
,. n
14:30 - 16:00 16:00 - 16:15 16:15 - 17:30
Discussions continued Coffee Break
Discussions continued Wednesday24 February,1993
Modalities for enhancing Inter- face between government and popular development organiza-
tions.
09:00 - 10:30
10:30 - 10:45 10:45 - 12:30 12:30 - 14:30 14:30 - 16:00 16:00 - 16:15 16:15 - 17:30
K. Kaiese, Guidelines for en- hanced dialogue and cooperation between government and popular development organizations in support of economic development at the national level.
Coffee Break
Working group discussion Lunch
Working group discussion Coffee Break
Working Group Presentation Thursday25 February, 1993
09:00 - 10:30
10:30 - 10:45 10:45 .. 11:00 11:00 - 12:00
12:00 - 12:15
42
Working Group presentation con- tinued
Coffee Break
Preparation of the Workshop Presentation 'and adoption of the .Workshop R.eport
Formal Closing
ANNEX III
List of Participants Dr. E. Madraa
Officeofthe Prime Minister (Aid Co-ordi nation Secre- tariat)
Kampala Uganda
Dr. E.K.Kanyesigye Assistant Director of Medical Services Ministry of Health Entebbe
Uganda
Ms. Majanja Zaali SALUTE
Box 3306 Kampala Uganda
Mr. Jesse Kiisa
Committeefor International Self-reliance (CIS)
Kampala Uganda
Mr.Livingstone Sewanyana
Foundation for Human Rights
Initiatives. Uganda, Kampala
Mr. C.D. Rauxen Zedriga DENIVA
Kampala Uganda
Ms. Christine Oryema Mal- abo
UCOBAC Kampala Uganda
Dr. W. Okecho Centenary Rural Development Trust Kampala
Uganda
Mr. M. Moechel Ministry of Finance and Economic Planning Kampala
Uganda
Me Enoch Baziya Mwesigye
PDR/Church of Uganda Kampala
Uganda
• F. T
Mr. Mazima Eliphaz NUDIPU
Kampala Uganda
Mr. P. Tindihikayo NGOs Board Box 7191 Kampala Uganda
Mr. S. Sentamu Makubi JEEP
Box 4264
Kampala. Uganda Ms. Maude Mugisha
ACFODE
Kampala Uganda
Dr. Jacob Aniku
Dryland Framers' Resource Centre
Kampala Uganda
Mr. Peter Kiwumulo USEP
Box14369 Kampala Uganda
44
Prof. J.B. Kwesiga Centre for Continuing Education, Makerere Kampala
Uganda
Mr. Peter Sohr
DW German Adult Educa- tion
Association Kampala Uganda
Mr. John E. Busingye Ministry of Women in Development. Youth and Culture
Kampala Uganda
Mr. George Sizoomu USIKA Stoves
Kampala Uganda
Ms. Mary Jo Kakinda Africa 2000 Network Kampala
Uganda
Mr. Luima A. Galiwango
VEDCO
P.O. Box 1244 Kampala Uganda
Mr. J.W. Okune PAPSCA
Kampala Uganda
Mr. Henry Senyondo Ministry of Local Govern- ment
(Community Development Department)
Kampala. Uganda Mr. David K. Atim
National Adult Education of Uganda
Kampala Uganda
Ms. V. Mulyanga UWFCT
Kampala Uganda
Mrs. Miriam N.K. Tabingwa Kigulu Development Group (KDG)
Kigulu, Uganda
Mwalimu Musheshe Jr.
URDT 0 Kagadi Kigulu
Uganda
Mr. Obot P. David LlDDA - Lira Kampala, Uganda
Mr. Kyeyune UCBHCA Kampala Uganda
Mrs. Madina Ondoma DENIVA
Kampala Uganda
Mr. Yonasani Kizza DENIVA
Kampala Uganda
Mrs. E.S. Ntiro
Office of Vice President Kampala
Uganda
Mr. Bernard Gidudu Information Officer Kampala
Uganda
Mr. Sentamu H.
The Resistance Magazine Kampala
Uganda
Mr.Banabakintu DENIVA
Kampala Uganda
ANNEX IV
List of Papers
1. IIAn Assessment of Popular Participatlon in the Formu- lation and Implementation of Development Policies and Programmes: A Case Study ofUganda".
T. B.· Kwesega.
2. "The African Charter for Popular Participation In Development Implications for the Role of Govern- ments and Popular Development Organizations".
Getachew Demeke.
3. "Underlying Principles for Enhanced Dialogue, Cooper- ation and Interface Between Governments and Peopl ...
e's Organizations in Support of Economic Reform and Socia-Economic Development at the National Level in Africa''. Kingston Kajese.
46
•
