Actors of Decentralization: An Indispensable Factor in the Decentralization Process in Cameroon. | by Dr. Lontum Charles

Abstract

There has been a general move towards decentralization in many developing communities. This contagious move has been welcomed by political, administrative and economic thinkers as a means towards fast-tracking the development of many local communities. Methods towards decentralization may differ but the objective is nearly the same. The recognition that developing a part of a whole will subsequently lead to the whole is simple to understand. Because of the uneven distribution of natural resources, minimal central control is still necessary and very much important. No one is to be left behind is therefore imperative. In the course of developing and adopting the policy of decentralization, many things must be considered. This study shows that the formation of human resources is an indispensable factor towards the success of the decentralization process. The lone institution for training actors at the local level has witnessed some valuable reforms. This impetus is worthy of note and recognition but more can and should be done. Local collaboration is essential. From the legal and political perspective decentralization is a beneficial policy. The government taking time to implement these constitutional provisions can therefore be understood as this policy process demands more than many people may imagine.

Key words: Decentralization, Human Resources, Collaboration, Training and Development.

Introduction

Cameroon is a bicameral parliament Republic with two levels of government that is national and local having constitutional provisions for local government. Today we have regions and council administration. Local governance through the Ministry of Decentralization and Local Development is at the center to propel these dreams to its fruition. In Law No. 2019/024 of 24 December 2019, enough provisions have been made towards local governance and therefore Cameroon is undergoing the process of decentralizing significant functions previously held exclusively by the central administration to local administration. In line with the 18 January 1996 constitution that transformed the country to a decentralized unitary state, the government is taking time to implement these constitutional provisions. The transfer of competencies to the regional and council administration needs a careful study and formation of personnel properly ascertain. Harnessing the human resources is imperative if this process is to be successful. The process of decentralization in Cameroon has received criticism because many are of the opinion that the process is slow. The reasons for the delay are therefore the impetus for this article.  Many political and governance experts have given sufficient reasons why the decentralization process is not working as it should have been,  given that it dates back to the 18 January 1996 constitution. We will argue in this article that the government should first of all empower the stakeholders of the decentralization process as these personnel will be the actors in the field to implement this policy. Enhancing the skills that will give such sound and rigorous training of the local administrators is of ought most importance. The prescription of the government aims at local governance. For if the parts are not very strong the whole will not be strong either.

 Decentralization is a term used loosely to describe a particular type of organizational structure. A commonly accepted framework and definition associated with decentralization is development administration. In our study decentralization is the transfer of authority and responsibility of major government functions from central to sub-national government including local government, civil society and private sector. In a community-driven development process, local administration is the power and success of such a venture. Empowering the people through local governance is very essential. Economic efficiency, public accountability and empowerment of the people especially the youth and women can be a thrust to development. It is only through local administration that efficiency meets local needs and realities. Indicators of good governance can only be realized in local communities. Holding office holders accountable can better be realized in local entities. With the advent of the Public Independent Conciliators in the North West and South West Regions of Cameroon, for example, we are beginning to get serious revelations about the realities of what has been happening in the field in the name of local governance. Many mayors are beginning to realize that their activities have not been fully appreciated by their citizens. Many are out of touch with the local realities. Many mayors are now trying to make unconvincing justifications because the Public Independent Conciliators in the above regions have embarked on a arduous checks and evaluations. The more people hold their local leaders accountable the better for the process of decentralization. This is because decentralization is not just about the transfer of competencies. It is also about good governance that demands, participation, rule of law, accountability, efficiency and effectiveness, transparency, corruption index etc. No doubt the question of birth certificates, marriage certificates and death certificates being free in our local councils has not been welcomed by many local elected actors such as mayors. Many local authorities are very uncomfortable with the Public Independent Conciliators, failing to realize that decentralization is now real.

Achieving the Best of Decentralization

The decentralization process is meant to impulse good governance and development. As such the issue is complex and cannot be address from one angle. The multiple angles that are meant to focus on how best to make this policy a success. We can better organize them into two or more groups ranging from objective criteria such as adapted institutional framework, well defined roles and adequate material resources. These are elements that can be properly done with the transposition of policies into law and their implementation by steady stakeholders and possible control of the respect of the law by both the supervisory authority and more importantly the courts of law.  These include: a) Adapted institutional framework- This is possible through the proper setting of institutions whose missions are to implement the decentralization process: here the success will depend on the accuracy in the design of institutions and the capacity of such institution to adapt to changing circumstances. It is obvious that most of the time we are in situations of failed institutional frameworks. b) Well defined roles: Decentralization can easily become a battle ground and confusion of roles because of multiple interests of the people or institutions assigned to carry out the process. It is therefore very important to define role and put in place a monitoring mechanism so that each actors plays fully but only its own role. This role defining is a cornerstone and the first level operates between the national authorities, institutions and administrations on who does what in the decentralization process. C) The availability of adequate materiel resources: This is equally crucial especially in situation of scarcity of material resources generally in developing countries. Most regional councils recently put in place are already complaining of absence of resources especially competent human resources. The most important aspects being the appropriate use of existing resources and to fight against the distraction of such resources.   

There are also non-tangibles elements that come to play and on which the success or the failure of the decentralization process can depend. The political will: this is a very difficult one because the wind of decentralization that is blowing through Africa since the 90s will hardly be opposed openly by politicians. The lack of political will is generally hidden and the contrary voiced in public creating damaging falsehood to the process. A shared understanding of the concept is also very important. One may be tempted to think that everyone understands the concept of decentralization and the process of implementation. In reality understanding the concept is generally impaired by high hidden political agenda contrary to the concept or understood to fulfill some other vested or egoistic interest. Many local authorities and actors of decentralization are still very ignorant about the whole concept especially those who ascend to power through elections and popularity.  Competent stakeholders in the decentralization process are multiple but when it comes to the implementation of the policy, we can single out national and local politicians whose competence is needed but which is difficult to measure as the political stakeholder keep changing. The implementation administrative stakeholders can be trained (see the mission of NSASLA) as they are permanent. This can be an asset including in-service training. The problem here is that competent administrative staff are not found in local assemblies and as well as their executives who are policies makers.

The Question of Leadership

Generally the issue of leadership has remained a debatable subject in public administration discourse. Forms of leadership, such as traditional, political and organizational, managerial leadership are also generally prevalent in public administration. Respectively, such leadership operates within a particular society. In fact, leadership is the bedrock of any administrative reforms because policies are implemented by people and these people should be properly formed to become good leaders. Leadership is a science and therefore requires studies. The successes or failures of any system depend on leadership. Theorists such as Woodrow Wilson, Max Weber, Luther Gulick, Chester Banner, and Henri Fayol influenced the paradigm shift on the importance of leadership to the success of any organization or society. Governance without managerial leadership becomes futile because governance is a means to an end and the end is the provision of services to the public. Quality services and delivery processes are a function of good formation of leaders. Therefore public sector official need to devolve power and attention to the formation of the agents and actors of decentralization process in Cameroon. The legal framework and policy implementation and evaluation is the process that flow prima facie from the quality of the actors at national and local levels. Reinventing, redesigning and reorientation of public service delivery is the fruit and demonstration of proper performant personnel that reflects the needs of the society.

National School of Local Administration NASLA- The Solution

Among the many challenges that face the decentralization process, the capacities of actors have been identified as one of the major challenge. The creation of NASLA is helping to redress the situation on the ground. It should be made mandatory for key councils’ agents and executive to complete at least some courses in the domain of local administration. The stringent and rigorous program of NASLA is the cornerstone to realizing this dream of decentralization. NASLA has been empowered to train more trainees with well stratified programs that meet the needs of the local realities. The diverse fields of study have been approached with local experience from regional to local levels. In this light NASLA, has been doing a great job. From the Director General and his collaborators, the high discipline and control that goes on in NASLA is an indication of better days ahead as we will have emerging experts in the decentralization process and local administration. Their internship programs have to build up a world of experience combined with theoretical knowledge to be champions of decentralization. More programs and training options tailored towards solution driven options be inculcated into the training of graduates of NASLA. Note must be taken of the stiff opposition and the refusal to cooperate from those who have already been in the field sleeping in mediocrity. National representation should be encouraged. With the globalization tendencies that the world is experiencing, trainees have to be given sound academic formation that meets the needs of emerging technologies and policies. Qualified trainers with sound academic background is important as this will determine the outcome that should be result driven. The trainees need to be well steeped into scientific research methods to be able to identify and propose solutions to local decentralized entities.

Collaborative Agencies

Local administration that fully imbibes the process of decentralization have been finding it difficult. Given that most local administrators have been used to the centralized system of governance and the high monitoring system of the government and probably have been benefiting from it, find it difficult to succumb to this new process and breed of well-trained local administrators. The concept of local administration in Cameroon may not be very new. However, with the present dispensation other actors are bound to collaborate and cooperate with the experts of local administration. Other state personnel from other schools of administration or faculty need to work together towards the realization of this process. Structures and institutions that directly or indirectly deal with local administration need to fully comprehend the new dispensation.  United Councils of Cities of Cameroon (UCCC), the National Programme of Participatory Development (PNDP), Public Body for International Cooperation ( OPCI) said to coordinate councils at Divisional level and build links with local  authorities overseas. Regional Assemblies, House of Chiefs, related Ministries, and civil Administrators have no option than to cooperate with the state policies towards decentralization and local administrators. The Ministry of Decentralization and Local Development MINDDEVEL was created by presidential decree on the 2^nd of March 2018 to be responsible for Developing, Implementing and evaluating government policy on decentralization as well as Promoting Local Development. MINDDEVEL is also the supervisory authority of the state owned special Council Support Fund for Mutual Assistance FEICOM, National Civil Status Registration Office BUNEC and the National School of Local Administration upgraded from the former Local Government Training Center CEFAM through a presidential decree No 2020-111 of 02 March 2020. There are a number of National Government bodies which monitor the finances of local authorities. These include the National Regional and Local Authorities Control Squad of MINDDEVEL, The National Council for Decentralization CND, which is charged with the follow up and evaluation of the implantation of decentralization and the interministerial committee on Local Services CIS, which is an interministerial organ for consultation, are placed under the authority of the Minister in charge of decentralization and Local Development. The Minister’s mission is to ensure the preparation and the follow up of transfer of competencies and resources to regional and local authorities by the competent authorities. In 2003, (cf. Decree 2004/099, provision of State Audit) the legislation passed on the provisions for an audit Bench (CC) under the Supreme Court to enforce proper standards in the collection and use of council taxes and decentralization procedures. There is also attached to this decree an office ( Brigade de Controle des Collectivites Territoriales Decentralisees) to monitor the function of local and regional authorities. For decentralization to be fully archived, these actors have to fully collaborate in order to realize the desired results.

Decentralization and Political Culture

Gabriel Almond and Sidney Verba(1996), defines political culture as ‘being the attitude towards the political system and its different parts, as well as the role of good policy in the system’. There are three types of political culture namely; parochial political culture, corresponding to the traditional system, dependent political culture characterized by the centralized authoritarian systems and the participatory political culture attributed to democratic and decentralized system. It is important for all stakeholders of a political system to be aware of the current political culture. Having a dominant political culture is essential in a state seeking to reform its public administration. Without the support of the political power, any administrative reform fails. In general, some reforms face resistance from its own structures, actors and the citizens. The administration and politics cannot exist in a separate manner. If we consider the fact that all the decisions on policies (political culture) are taken considering the implementation, no government will take a realistic decision until all the implementation means are known and guaranteed. This entails the fact that there is network of policies and administration so that it cannot be exactly determined where politics ends and where administration begins. Even if these were very well delimitated, we cannot make a clear separation between the role of the politician in determining the political culture and the public servant that would apply these policies. Therefore, in the decentralization process which is the political culture of the government as of now, experts in the implementation have to know and believe in this policy. The various mechanisms put in place for the success of this political culture have to be guaranteed in the training of the local administrators.

Decentralization and Mayors as Special Actors

Mayors are actors of the process of decentralization. Their level of understanding of the process is very essential towards the realization of decentralization.  All councils are headed by a directly elected mayor who is supported by a team of councilors and their number depends on the population size. There is no law that determines the academic profile of local authorities from counselors to mayors. This holds good for regional counselors and parliamentarians representing their constituencies. The process of decentralization goes far beyond political affiliations since it has a direct effect on the people on the ground. No community will want to be represented by one who is a liability to the local area. You will be vomited by your own people. It is incumbent that both the theoretical and experiential knowledge be backed up by a certain qualification. The state cannot devolve powers to people who have no knowledge of what is supposed to be done just because they won the elections. In the present dispensation they will not be able to meet up the standards. State policies are not basic in understanding as they may seem. Budgeting sessions, council sessions, council planning and regulations have been a slumbering period for many local administrators. Parliamentarians doze during parliamentary sessions and claim to be debating laws that bind the state. This will no longer be the case especially in local administrative areas. A certain minimal level of education and we may dare add age should become a great factor in holding to these offices. This is not even enough as capacity building seminars and summer Top Up Certified Courses (TUCC) are imperative. This should be an extended program of NASLA. If this is not done, graduates from National School of Local Administration may soon start facing lot of problems especially against unqualified mayors in the areas of interpretation of state policies, political culture and a full comprehension of decentralization processes and procedures. In Cameroon the qualification for mayors are not explicitly detailed. The process for election states that all elected municipal councilors in their respective municipalities are expected to take part in the session as of right which is convened after the proclamation of the election results. The legal provisions for the elections of mayors and their deputies are specified by the Ministry of Decentralization and Local Development and the election conducted during full session attended by the Senior Divisional Officer of the division where the council is found.

Law No. 2004/17 of 17 July 2004 on the Orientation of Decentralization

Law No. 2004/18 of 18 July 2004 on Rules Applicable to councils

Law No. 2004/19 of 19 July on Rules Applicable to Regions

These laws outline the broader legal framework for Local Government and may contain specific eligibility criteria for positions of mayor but none is specific on academic qualification to this position.

Challenges of Decentralization for Local Administrators

Local administrators especially graduates from NASLA have to be conscious of the challenges that will face them as they step out to implement the policy and process of decentralization in Cameroon. Among the many problems that plague the decentralization process the following seem to be very visible. The problem of Legal and institutional constraints has been topical in this respect. This is followed by the financial constraints where local authorities often face financial limitation which hampers their ability to fully exercise devolved powers. Some people have argued that decentralization is more a political tool because no funds have been made available to local authorities to implement the process. Policies become good only in paper. Another visible problem has been what has been called the problem of conflict regulation. The process has been complicated by the resurgence of ethnic identity and community tension which are intensified by political issues during electoral process. Security concerns have also greatly prevented the process of decentralization. The insecurity at local levels has prevented many developmental projects and this has questioned the state /regional relationship and the full presence of state at the local level. In the North West and South West Regions for example many mayors are not on their municipal seats. Many operate from outside and the solution does not seem soon.  Within the local areas, the role of the traditional authorities have prevented and slowed down the process of decentralization. The efficiency of decentralization at the grassroots level is influenced by the role of chiefs or traditional rulers highlighting the importance of their involvement in the process. The capacity and availability of the human resources is what NASLA is trying to solve. These challenges highlight the complexity of the decentralization process and the need for concerted efforts to address them for successful implementation by local actors. The complexity of supervisory authority has remained a big difficulty as ministries and administrators unconnected to local decentralized processes have continuously been in charge at local levels.

Decentralization and Economic Development

Decentralization is intrinsically linked to strengthening of the democratization process. Democratic competition at both local and national levels greatly improves through the principle of participation, transparency and accountability. Local leaders become more accountable to their communities.  Democracy therefore has values when every single citizen is part of the whole and this is better expressed at the local level. Decentralization leads to economic development because local communities can better mobilize their resources for public investments essential for economic development when coordinated by trusted local leaders. People can only trust those who have shown ample proof that they master what they are doing. This mastery begins from sound formation of theoretical and experiential knowledge. At the local level the level of transparency is clearly manifested by the election of their representatives. In a purely decentralized society economic growth is visible. Furthermore, one of the benefits of decentralization is the fact that it leads to trust. It can foster trust among community members as local officials are seen as more concern about community development than their personal gains. One visible failure of decentralization process has been identified to be corruption.  Corruption is very possible when the citizens have not been empowered to know their rights. No local administrator can swindle funds meant for the community when the people have been properly formed to be actors of their own economic development. Through proper decentralization there is guarantee of accountability at all local and community level. Citizens are empowered through the principle of participation and transparency to be constantly present and conscious of any economic venture or projects within their local communities. Economic empowerment of the local community can better be animated by properly trained and formed personnel. This is therefore, the responsibility of expert knowledge produced by institutions like NASLA.

Decentralization and Public Management Reforms

Good public management and administration with emphasis on accountability and responsiveness to customer needs has been seen as an aspect of decentralization by donor agencies supporting reforms in developing countries. To the World Bank, good governance consists of a public service that is efficient , a judicial system that is reliable and administration that is accountable to the public. According to the World Bank( 1992), four elements that can lead to system strengthening within the public sector management includes; effective financial and human resource management through improved budgeting, accounting and reporting that roots out inefficiency particularly in public enterprises. Secondly, accountability in public services including effective accounting , auditing and decentralization and generally making public officials responsible for their actions and responsive to customers. Thirdly, a predictable legal framework with rules known in advanced, a reliable and independent judiciary and law enforcement mechanisms and lastly, availability of information and transparency in order to enhance policy analysis, promote public debate and reduce the risk of corruption. These can better be realized through local administration dully trained and formed by credible recognized institutions. It is from the above conception that there is some emphasis on improving public sector management systems. In the good governance prescriptions, one finds public financial management reforms as a key component pointing towards proper management of decentralized entities.

Potential Benefits of Decentralization

Decentralization will only make sense to the local community when citizens can have a feel of what such a policy can do to them. It is true that policy legitimization and implementation sometimes may not be easily noticed. While the stakeholders hold tons of meetings talking about the same thing in order words and places, the local impact is completely lacking. Improving local governance by devolving powers to the autonomous elected decentralized authorities will not enhance performance of governance at the local level if the human resources have not been properly schooled. This makes the ongoing training at NASLA pertinent. There have been reports that huge sums of money was given to some local authorities and they did not know what to do with the money. Sound education on local council budgeting is necessary. This has cause problems between municipal treasures and mayors as well as some secretary generals in many local councils. Decentralization is no longer local popularity but real policy comprehension.

Challenges for Local Actors

Legal and institutional huddles have presented a very big challenge to the process of decentralization. The legal framework is often seen as incomplete necessity to give full powers to the process. Laws have been enacted but the enforceability of these laws are lacking. While some clauses present a practical difficulty, the inability of local actors to interpret and comprehend the laws further complicate matters given that many mayors are not informed about these laws. Many councils in the Northern Regions of Cameroon suffer from this challenge.  In addition, capacity deficiencies generally are witnessed in nearly all local communities. The lack of basic knowledge on the part of local administrators presents a real problem. There is the absence of collaboration between regional and local authorities and capacity deficiency among stakeholders. The ambiguous nature of some applications further complicates issues. For example, the issue of roads under the control of municipal councils, city councils, ministry of Urban development, ministry of public works etc. becomes complicated for citizens to understand. Again the limited autonomy of local councils and over control and centralization of the state has not favoured or allowed for effective decentralization process. The ‘milking’ of the local community has not permitted some developmental initiatives even when they are within the law. The overbearing presence of the supervisory authority and party politics has disadvantaged some local council. Little developmental initiative through public contracts has faced stiff resistance and implementation from the elite class, political maneuvers and worse still little financial resources is making matters difficult. How independent our council are has been the problem. However, it is hopeful that experts in local administration from NASLA will regain this autonomy with the knowledge acquired. Knowledge they say is power. This new found knowledge should therefore, empower our local administration towards a better dispensation of public goods and services. This will also dismiss the challenge of policy implementation delay. These delays have affected the process of decentralization. This has affected governance and constitutionalism in the management of the transition from authoritarianism to democratic governance and addressing minority concerns such as the rights of women and indigenous people. When this is not done on time, it creates tensions. Efforts to curb ethnic tensions are crucial as they can impact the stability and effectiveness of decentralization process and governance.

Surmounting the Challenges

In the African philosophy spirit of Ubuntu, local administration and governance efforts will require a multifaceted approach. Strengthening legal framework implementation needs to complete the legal instrument necessary for effective decentralization. There is no need to have laws that cannot be put into practice or people to enforce the laws. The enforceability of the law is also a function of the human resources properly formed. This is where NASLA is making a big difference. This is buttress by the fact that we need a lot of capacity building. Improving the capacity of local authorities and stakeholders is crucial for managing decentralized functions. This will be realized when there is financial support ensuring that local councils have adequate financial resources to carry out their task. Training institutions should as well have enough budgets to carry out the task of offering holistic training to Cameroonians ready to impact local development and decentralization. The provision of infrastructure that will boast the image of a national school is very incumbent psychologically to the administration and students as well. The ministry of Decentralization and Local Development will therefore, ensure a  strong political will to drive the decentralization process forward through promoting autonomy of the national training school, local councils to make informed decisions and manage their affairs. In addressing governance issues, embracing constitutional democratic processes through a meaningful and impacting decentralization is primordial.

Conclusion

Decentralization as the transfer of authority and responsibility of major government functions from central to subnational government or local governance in Cameroon has witnessed an unprecedented up thrust as the process is regaining steam and recognition. There is a lot to put in place to have a successful decentralization process. The political will is just as important as competent stakeholders but all of that need a good institutional framework and adequate human and material resources The delays in the past years could be blamed on the lack of qualified human resources to propel this process. By presidential Decree of 2^nd of March 2020 National School of Local Administration, was created to address the need for quality human resources in regional and local administration and to further the implementation of the decentralization policies. The above write-up has identified what the decentralization process stand to benefit from the existence of this great institution. Identifying the challenges and proposing some solution and making some recommendation is simply to say that the decentralization process may not be fully realized without NASLA charged with the training of personnel to enhance the decentralization process.

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DECREES

Decree No. 77/85 of 22 March 1977 to set up the special Council Support Fund for Mutual Assistance (FEICOM), reorganized by the decree of 11 December 2000

Decree No. 94/32 of 5th December 1994 to set up Council Revenue offices

Decree No. 98/263/PM of 12 August 1998 relating to the Centralization and Redistribution of Additional Council Tax

LEGAL FRAMEWORK

Law No. 2004/17 of 22nd July 2004, laying down Rules on the Orientation of Decentralization in Cameroon

Law No. 2004/18 of 22^nd July 2004, laying down Rules Relating to councils in Cameroon

Law No. 2004/19 of 22^nd July 2004, laying down Rules Relating to Regions in Cameroon

Law No. 74/23 of 5th December 1974, to Organize Councils in Cameroon

Law No. 74/23 of 5th  December organizing Councils as amended and supplemented by Law No, 90/57 of 19December 1990

Law No. 77/293 of 29 July 1987 to set up Councils and to define their boundaries

Law No. 875 of 15th July 1987 to set up City Councils

Law No. 92/3 of 14 August 1992 and Law No. 95/21 of 8 August 1995

Law No. 96/6 of 18th January 1996, revising the Law of 2nd June 1972

Law No. 96/6 of 18th January 1996

About the Author:

Lontum Charles (Ph.D.) Holds a Ph.D. in Public Administration and Governance, from the Faculty of Law and Political Science, Department of Political Science, The University of Bamenda. He is also a Lecturer at the Faculty of Humanities and Social Sciences, Department of Philosophy at the Catholic University of Cameroon CATUC, Bamenda, and a Part-Time Lecturer at the National School of Local Administration NASLA Buea. He is also a lecturer at Kelden University Institute Douala and other higher institutes in Bamenda. His in-depth, philosophical studies and management sciences are evident in his numerous articles and write-ups.