Biting the hand that feeds you

Examining sub-contracting and accountability mechanisms between civil society organisations and local governments in Arua and Kabale

Abstract
In the transformation in local governance and service delivery which Uganda has witnessed over the last decade, particular roles are envisaged for CSOs. On one hand, they are frequently identified as the actors that should be holding government to account and on the other hand, they are also increasingly involved in the implementation of privatised and decentralised service delivery, under agreements with the state through subcontracting practices.

This research is a collaborative initiative between CDRN and CARE to investigate the potential tension between those two roles – holding government to account while at the same time engaging in the implementation of privatised service delivery. Our starting point is a hypothesis that, ‘contracting local government services to CSOs significantly reduces the ability and willingness of these organisations to hold local governments accountable to stated policies, procedures and plans’.

The research was conducted in the two districts of Arua and Kabale after observing that these two districts exhibited a significant degree of sub-contracting arrangements in government programmes under the current decentralised system of governance. We involved local partner institutions – Kabale District Farmers’ Association and Community Empowerment for Rural Development in Kabale and Arua respectively.

Findings

We find that the concept of ‘NGOs holding government to account’ is woolly, foreign, new and difficult to grasp. It does not strike a chord with local NGOs or local government. There are multiple understandings of ‘holding government to account’ and equally, there is much diversity in perceptions of who should ‘hold government to account’.
Local CSOs have only in some instances shown that they can engage in holding government to account. This happens when a local NGO is well resourced (especially with links to international donors); when several local CSOs work together in coalitions and networks; and when one or several local CSOs are instigated and nurtured by an international CSO.

Subcontracting of NGOs by local government is seen as attractive and can be “lucrative” for local NGOs. It fits with their self-perception as service providers and with the dominant view among local government officials (i) that NGOs are mainly service providers that supplement the work of government, and (ii) that local government is under obligation to sub-contract them for delivery of government programmes. This has led to the following consequences: a reported blossoming of local CSOs targeting government contracts; CSOs increasingly establishing a ‘private arm’; and power increasingly appearing to lie in the hands of local government to the detriment of NGOs. From dependence on traditional donors, CSOs now increasingly have to account to local government for the funds received through service delivery contracts, rather than being CSOs acting on behalf of the people to hold government to account.

So long as the concept of accountability is not widely and clearly understood and appreciated among local CSOs and local government, the international NGOs that are promoting the emergence of civic expression and citizen participation in demanding accountability remain a lone voice. Under these circumstances, international CSOs must be aware of the potential harm and costs local CSOs might encounter regarding their relationship with local governments if they were abruptly ‘pushed’ into the accountability agenda. (see the recommendations here).

| Find the Goups and you have found the poor »

433, Balintuma Road, Nakulabye, P.O.Box 35542 Kampala, Uganda (East Africa), Tel:+256-414-542995/ 392-746117 Fax: +256-414-542995


ABOUT CDRN Our Activities Our Values Principles and Practices Strategies BOARD MEMBERS » EVENTS FUNDING SOURCES Financial Mangement BLD ABG NDNSP IDF Consultancy PUBLICATIONS CDRN Publications for Downloads CDRN Resource Centre & Services Biting the hand that feeds you Find the groups and you have found the poor NGO financial sustainability CDRN Training Programme Understanding Minority Groups CONTACT US	Biting the hand that feeds you Examining sub-contracting and accountability mechanisms between civil society organisations and local governments in Arua and Kabale Abstract In the transformation in local governance and service delivery which Uganda has witnessed over the last decade, particular roles are envisaged for CSOs. On one hand, they are frequently identified as the actors that should be holding government to account and on the other hand, they are also increasingly involved in the implementation of privatised and decentralised service delivery, under agreements with the state through subcontracting practices. This research is a collaborative initiative between CDRN and CARE to investigate the potential tension between those two roles – holding government to account while at the same time engaging in the implementation of privatised service delivery. Our starting point is a hypothesis that, ‘contracting local government services to CSOs significantly reduces the ability and willingness of these organisations to hold local governments accountable to stated policies, procedures and plans’. The research was conducted in the two districts of Arua and Kabale after observing that these two districts exhibited a significant degree of sub-contracting arrangements in government programmes under the current decentralised system of governance. We involved local partner institutions – Kabale District Farmers’ Association and Community Empowerment for Rural Development in Kabale and Arua respectively. Findings We find that the concept of ‘NGOs holding government to account’ is woolly, foreign, new and difficult to grasp. It does not strike a chord with local NGOs or local government. There are multiple understandings of ‘holding government to account’ and equally, there is much diversity in perceptions of who should ‘hold government to account’. Local CSOs have only in some instances shown that they can engage in holding government to account. This happens when a local NGO is well resourced (especially with links to international donors); when several local CSOs work together in coalitions and networks; and when one or several local CSOs are instigated and nurtured by an international CSO. Subcontracting of NGOs by local government is seen as attractive and can be “lucrative” for local NGOs. It fits with their self-perception as service providers and with the dominant view among local government officials (i) that NGOs are mainly service providers that supplement the work of government, and (ii) that local government is under obligation to sub-contract them for delivery of government programmes. This has led to the following consequences: a reported blossoming of local CSOs targeting government contracts; CSOs increasingly establishing a ‘private arm’; and power increasingly appearing to lie in the hands of local government to the detriment of NGOs. From dependence on traditional donors, CSOs now increasingly have to account to local government for the funds received through service delivery contracts, rather than being CSOs acting on behalf of the people to hold government to account. So long as the concept of accountability is not widely and clearly understood and appreciated among local CSOs and local government, the international NGOs that are promoting the emergence of civic expression and citizen participation in demanding accountability remain a lone voice. Under these circumstances, international CSOs must be aware of the potential harm and costs local CSOs might encounter regarding their relationship with local governments if they were abruptly ‘pushed’ into the accountability agenda. (see the recommendations here). \| Find the Goups and you have found the poor »