Poverty and Human Development Report 2009 - UNDP in Tanzania

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POVERTY AND HUMAN DEVELOPMENT REPORT 2009 Figure 47: Budget Allocations to LGAs for Education Personal Emoluments, 2007/08 – Councils with the Lowest, Median and Highest Allocations Per Capita Tanzanian shillings 118 25,000 20,000 15,000 10,000 5,000 0 Tabora Mkinga Kigoma TC Bukombe Igunga Nzega Kiteto Simanjiro Babati Muleba Mkuranga Singida Musoma Council Source: Analysis by Dr Jamie Boex based on Local Government Information (LOGIN) data. Available at www.logintanzania.net Allocation of Human Resources Equitable allocation of resources clearly implies that staffing for core public services must also be equitably allocated, and the intention of formula-based allocations was to include all payments to LGAs, including personal emoluments. The Local Government Reform Policy of October 1998 envisaged a radical change towards decentralised personnel management by local government: “The councils (city, municipal, town and district) will be fully responsible for planning, recruiting, rewarding, promoting, disciplining, development and firing of their personnel”. The policy anticipated that each LGA would become the employer of its entire staff, except for the Council Director who “in the interim may be posted by [Central] Government”. 74 However, in 2003, the President’s Office – Public Service Management (PO-PSM) issued the Public Service Regulations that currently guide personnel management in LGAs. These regulations were based on the Public Service Act, and maintained the powers of central government to transfer staff across ministries, regions and LGAs, when in the “public interest”. Therefore, a dual system of human resource management for LGAs remains in place, whereby central government can overrule local planning. Furthermore, personnel for the health and education sectors were explicitly exempted by PO-PSM from the decentralised and merit-based procedures for recruitment. In recent years, large numbers of health staff and teachers have been centrally deployed to LGAs. 74 Ministry of Regional Administration and Local Government, 1998, p. viii. Arusha MC Nachingwea Tarime Songea Pangani Moshi Same Njombe TC Masasi Mwanga
CHAPTER 1 - CLUSTER III - GOAL 2 Budget and establishment control 75 has likewise remained entirely centralised; local governments are consulted during restructuring exercises, but all decisions on staff budgets and numbers of approved staff are ultimately made by PO-PSM. LGAs have limited autonomy in this area. Pay policy also remains centralised, except that LGAs are allowed to establish local incentive schemes. However, such initiatives are unaffordable to most LGAs, except for select staff categories in more wealthy LGAs. Career management has been partially devolved, but career progress for senior staff continues to depend on central ministries. This system of allocating staff has significant flow-on effects. It has perpetuated historical disparities in human resources and, in turn, service provision and educational and health outcomes, as indicated by the analysis of progress in Cluster II. Central deployment generally has failed to address geographical inequalities of staffing in local governments. Attracting and retaining staff in districts considered “remote” or marginalised is a persistent problem (PMO- RALG, 2005). Urban LGAs tend to be better staffed, even for agricultural extension staff. 76 That urban LGAs have relatively more agricultural extension staff than rural authorities clearly demonstrates inefficiencies in the current staff allocation system. Budget transparency is also undermined. Staff salaries are almost entirely paid from central government transfers. Funds are allocated according to filled posts and approved establishments, which are based on existing infrastructure, rather than the formula-based grants for recurrent expenditure according to need. The reform policy does not explicitly address this issue and the apparent progress on introduction of formula-based grants within the LGRP was evidently made without policy agreement with the Ministry of Finance and PO-PSM on the extent to which formulas should apply to personal emoluments. In practice, human resource management in LGAs is a mix of decentralised staff management and centralised transfers and postings. LGA staff consequently have dual allegiances; they have to satisfy both local authorities and central ministries. Furthermore senior staff are aware that their career prospects depend largely on satisfaction of the latter. Several LGAs have invested in capacity building and subsequently seen staff transferred to other LGAs or central government. This frustrates local capacity-building efforts, which are otherwise encouraged by the new system of providing LGAs with capacity building grants. Transfers are also undertaken without adequate consultation with LGAs and very late replacements of staff are made. Field visits during the LGRP evaluation in 2007 indicate that this is perceived by LGAs as the most frustrating aspect of current practices. Available data do not allow for strict comparison of the effectiveness of centrally deployed versus locally recruited staff. However, during field visits for the evaluation of the LGRP in 2007, both regional and district officials argued that, for instance, teachers who were locally recruited by LGAs were far more likely to continue working within their post than teachers who were centrally deployed. 75 MDAs and LGAs must apply to PO-PSM for approval of their organisational charts. The approved staffing structure is referred to as the establishment. Subsequently, the MDAs and LGAs must request authorisation to recruit against their establishment. 76 See, for example, statistics in Tidemand, Olsen & Sola, 2007. 119
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UNITED REPUBLIC OF TANZANIA POVERTY
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COnTEnTS List of Tables ...........
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MKUKUTA Cluster II: CONteNts Improv
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CONteNts Data.for.Monitoring.......
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CONteNts HOUSEHOLD OCCUPATION AND P
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Table 25: Table 26: Percent of Adul
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Figure 21: Figure 22: Percentage of
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LisT Of AbbREViATiONs AIDS Acquired
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PRSP Poverty Reduction Strategy Pap
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ExECUTIvE SUMMARy The Poverty and H
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in poverty. Nonetheless, the challe
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evise allocations based on identifi
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Monitoring Implications A comprehen
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eXeCUtiVe sUMMarY Good governance a
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Chapter Progress towards the goals
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GDP Growth by Sector the principal
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Figure 2: Sectoral Contribution to
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Chapter I CLUSter 1 Box 2: The Impa
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Household Income (Consumption) Pove
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Income Poverty and GDP Growth the 2
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although global oil and food prices
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Figure 6: FDI Inflows 2000-2008 (US
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orrow from outside tanzania, where
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Infrastructure Roads the condition
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quantity but also in quality. for i
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Chapter I CLUSter 1 GOaL 4 & 5 prop
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Customers Connected to Sources of E
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Cluster I Conclusions and Policy Im
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MKUKUTA INDICATORS - SUMMARY OF DAT
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Indicator Baseline Trend Target MKU
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MKUKUTA Cluster II: Improvement of
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Regional variations in enrolment ha
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CLUSTER II- GOAL 1 and/or not compl
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Pupil/Teacher Ratio Overall, the pu
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provision of housing, funding for w
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CLUSTER II- GOAL 1 Table 11: Primar
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Table 12: Benefit Incidence Analysi
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Figure 15: Infant and Under-Five Mo
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Figure 17: Prevalence of Malaria in
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Figure 19: Percentage of Children U
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Table 13: Indicators of Malnutritio
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CLUSTER II- GOAL 2 Ghana (Edmond et
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Figure 24: Percentage of Births Tak
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Figure 26: HIV Prevalence by Age Gr
Page 97 and 98: Figure 28: Projected Number of Adul
Page 99 and 100: Projections based on the model indi
Page 101 and 102: Access to Healthcare Services On th
Page 103 and 104: Health Services Development Strateg
Page 105 and 106: Figure 34: Access to Clean and Safe
Page 110 and 111: POVERTY AND HUMAN DEVELOPMENT REPOR
Page 128 and 129: MKUKUTA INDICATORS - SUMMARY OF DAT
Page 130 and 131: Target Indicator Baseline Trend MKU
Page 136 and 137: Sources: a = various sources as ind
Page 164 and 165: Indicator Baseline Trend Target MKU
Page 173 and 174: Chapter 2 An AnAlysis of household
Page 175 and 176: Composition of Consumption Consumpt
Page 177 and 178: the poverty line basket was valued
Page 179 and 180: Figure 50: Daily Caloric Intake per
Page 181 and 182: Figure 52: Poverty Incidence Curves
Page 183 and 184: Food share typically, a drop in the
Page 185 and 186: Liters per Adult Equivalent Kilogra
Page 187 and 188: Kilograms per Adult Equivalent 6 5
Page 189 and 190: Consumer Durables data from the hBs
Page 191 and 192: Additional data from the tanzania h
Page 193 and 194: Table 41: Percent of All Households
Page 195 and 196: Table 44: Percent of Males and Fema
Page 197 and 198: Table 46: Distribution of Household
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Conclusion Chapter 2 income poverty
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pOVertY aND hUMaN DeVeLOpMeNt repOr
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Chapter 2 Hoogeveen, J. & Ruhinduka
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Poverty and Human Development Report 2009 - UNDP in Tanzania

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