Background
Successive administration in Nigeria had made various attempts to create a governance structure that allows for pursuing decentralized and representative development through different levels of government, albeit with differing degrees of success. These efforts are exemplified in the use of Regional Authorities or Governments, Native and District Authorities and the introduction of a parliamentary system of governance prior to independence. Similarly, the creation of states, that rose from an initial 12 to the present 36 (plus a Federal Capital territory), as well as the creation of 300 Local Government Areas (LGAs) in 1976, which progressively rose to the present day 774 LGAs were also aimed at creating an administrative environment for grass-root development through decentralization.
Most importantly, the spirit and letter of the 1999 constitution recognizes the principle of fiscal federalism meant to guarantee effective decentralization. Thus the constitution implicitly acknowledges the need for fiscal, administrative and political decentralization in the management of Nigeria. Experience(s) with the application of this constitutional provision has been varied over the years for instance decentralization of administrative power during the military era was highly whittled down because of the command structure of these regimes. By the time the military finally left government in 1999, the country was left with three main issues related to decentralization – which are still the objects of debate, viz (a) failure of the present constitution to articulate a clear delegation of authority between the states and LGAs in some areas of concurrent responsibilities (b) ambiguity in the responsibility for creation of LGAs – which remains inchoate until included in the fourth schedule of the constitution (a responsibility of the National Assembly) and (c) allocation of federal revenues amongst the three tiers of government.
With the advent of the present democratic dispensation in 1999, effective decentralization received some form of boost as the States Government began to enjoy high levels of autonomy in a number of areas, except those contained in the exclusive list of the constitution, which is still the subject of discourse. Such mainly involve responsibilities contained in the exclusive legislative list – which a number of state governments are already performing and believe it should be part of the concurrent list – as such there is increased clamour for a revision of the present Revenue Sharing Formula, which still retains close to 50% at the federal level.
In spite of the fact that issues of autonomy are more pernicious at the LGA level, over the years structural dysfunctionality associated with the operations of this tier of government has curtailed the implementation of any meaningful reforms, so much so that some of these reforms have left this arm of government in more confusion. Furthermore, a carry-over of the military era is the fact that political power at the LGA still appears subservient to the state government, especially due to the manner in which the helmsmen attain the position of Chairmen of these LGAs. However, present improvements in the electioneering process gives positive indications that opportunities abound for re-dressing the undue influence of state government on the LGAs, so long as the Chairmen are elected by the people rather than selected and/or appointed by the Governor or his acolytes.
The Federal Government in its Vision 20:2020 re-iterated the importance of making gove
rnance work at this level to enable sustainable development as affirmed in the first National Implementation Plan. The plan sets as its objective, relating to local governance and decentralization “Adhere to the principles of separation of powers among all tiers of government in relation to functions, responsibilities and resource allocation such that they operate coherently and independent of one another. This objective is aimed at ensuring that all tiers of government are provided with the required resources to effectively perform their functions independent of one another. This is more important at the Local Government level, where undue interference of the States in the disbursement of allocated funds needs to be curbed” Based on this objective, targets set include (a) review the relationship between States and Local Governments to ensure greater autonomy and protection of the latter in both operational and fiscal terms from 2010 and (b) Strengthen governance capacity at all levels from 2010. With this stated target, it is apposite that the UNDP CO support the country in their attainment, which is also fundamental to attaining the Millennium Development Goals (MDGs).
Challenges to local Governance and Decentralisation
In order for the above stated objective of the Vision 20: 2020 to be achieved and for the UNDP CO to support Nigeria in advocating for necessary changes aimed at sustainable development, it is necessary that issues relating to decentralization and local governance be advocated at the highest political level. It is pertinent to also highlight some of the recurring challenges which include the following:
- Constitutional ambiguity in (a) responsibility for creating LGAs and (b) clearly delineating areas of responsibilities between states and LGAs in some concurrent areas e.g Education and Health.
- Continual enchroachment of state governments on responsibilities of LGAs.
- Inoperability of LGA autonomy due to inordinate state controls.
- Absence of autonomy (fiscal, administrative and political)
- Little or no focus on Internally generated Revenue (IGR) by most States and leakages in IGR by LGAs compounded by low capacity and/or non-commitment to internal resource mobilisation.
- Capacity constraints
- Non-participation of stakeholders (citizens, civil groups etc) in governance.
- Lack of information on service delivery related issues to enable a feed-back from the citizenry
- Absence of true federalism.
Addressing these will require a multi-pronged approach that should be based on a review of UNDP assistance to the Nigerian State in the areas of local governance and decentralization.
Existing UNDP Initiative on local Governance and Decentralisation:
Local governance initiatives can either be introduced at the policy(programme) or project level. However, experiences have shown the need for an entry point activity that would create a demand which is most often done through project level investment. Thus, the Country office chose a project level intervention as a means of initiating its local governance and decentralization agenda. This initiative is the Niger-Delta Local Development Programme (LDP) which was anchored on the UNCDF’s approach of using a Local Development Fund (LDF) as a strategy to build the productive capacity and self-reliance of poor communities by increasing their access to essential local infrastructure and services. The project is being implemented in 4 LGAs in the two states of Bayelsa and Ondo, with the possibility of a scale-up. Prominent features of the LDP include the setting up of a functional tri-partite LDF, use of Ward Development Committees (WDCs) as a means of articulating community level demands and requesting for services from the LGAs, various capacity building activities designed to improve LGA-community interactions through dialoguing and physical implementation of social service infrastructure. With the experience gained from the LDP, it has become obvious that the country office need to deepen its local governance agenda beyond the project to the programmatic level. At the same time, this deepening would also require an intensification of the benefits of the pilot in such a way as to provide an example of good local governance that could be replicated based on a conviction that its principles are workable. The LDP is planned to be scaled up by deepening gains in Ondo State and ensuring both vertical and horizontal integration in development activities of the state government. A number of studies conducted by this pilot would be useful in the proposed scale-up.
The planned scale-up would deepen its achievement, especially by showing what is working, to help demonstrate feasibility of its approach with the possibility of expanding to more LGAs in Ondo state. This would also rely on the use of a holistic approach in integrating development programmes in an effective and coordinated manner to show-case the state as a classic model of effective and efficient local development as an example of good local governance and decentralization. In terms of implementation modality, the proposed scale-up would be implemented using the National Execution (NEX), a deviation from its previous Direct Execution (DEX).
Similarly, the UNDP supported Millennium Villages Project (MVP) was also an attempt to push issues of local governance in such a way as to ensure sustainable grass-roots development. The project, implemented in Pampaida (Kaduna State) and Ikaram (Ondo State) was successful to the extent that it met some of its objectives, especially in providing the template for transiting project structures to institutional arrangements within the local government system. This transition includes responsibilities for mobilization, community engagement and development planning, and development management to Ward Development Committees (WDC) and Village Development Committees (VDC). Thus there is possibility of a synergy between this approach and that adopted by the LDP.
Related to the above, the UNDP CO is in the concluding phase of an Oslo Governance Centre/UN-Habitat/UNDP collaborative effort in Assessing Good Urban Governance in Nigeria. The project seeks to determine urban governance challenges in Nigeria with a view to recommending advocacy, programmatic, policy and legislative responses to achieve sustainable urbanization and good urban governance. The final report of this study clearly documents five key thematic areas, along with associated indicators, that should form the basis of assessing the extent to which an Urban LGA is meetings its statutory responsibilities. The project was implemented in 21 LGAs of 8 states plus the Federal Capital Territory, Abuja. However, results are only available for 18 LGAs and the Federal Capital Territory. A scaling-up of this project is also planned to ensure that agreed indicators developed become adaptable for assessing LGA performance in service delivery. Resource Centres are also being established under this phase.
Besides the above, the UNDP CO, with support from the Democratic Governance Thematic Trust Fund (DGTTF), just initiated a programme on “enhancing citizen’s engagement in accelerating the attainment of MDGs in Nigeria”, which is being implemented by the Conditional Grant Scheme Unit of the Office of the Special Assistant to the President on MDGs (CGS Unit, OSSAP-MDGs), and aimed at deepening community engagement by scaling up citizen action for participatory governance and development as a means of accelerating attainment of MDGs in Nigeria. It thus seeks to strengthen and develop tools and mechanisms that would ensure communities’ voice is part of decision making, community influences the outcomes of development projects and also improve responsiveness of local government authorities to community demand. To be piloted in 21 LGAs and anchored on the Conditional Grant Scheme (CGS), the project would improve capacity of Community Based Organisations (CBOs) to appropriately focus development interventions, develop a community participation protocol and most importantly institutionalize a mechanism of feedback and dialogue between communities and LGAs.
A related programmatic intervention by the UNDP in the area of governance is a number of capacity building schemes for CSOs to enable them galvanise citizen action in influencing the management of common pool resources, especially in monitoring budget implementation as a direct index of service delivery. Such support being provided to CSO coalitions are meant to improve their understanding of tools and procedures for citizen engagement in demanding accountability from government officials.
Experience gained by all the above interventions revealed a need to focus on stronger strategic orientations and methodological base in strengthening local governance and decentralization. It is thus important to concentrate on improving systems, capacities and practices at the local level in such a manner as to inculcate functional local governance and decentralization programme. Recognising that the Federal Government of Nigeria is responsible for the broader policy and legislative framework, it is important that any new effort adequately takes care of this.
Duties and Responsibilities
Objective:
The main objective of this assignment is to scale-up the UNDP’s Local Development Programme (LDP) through developing a long term vision document for the pursuit of UNDP Nigeria CO’s local governance and decentralization programme, using Ondo State as an example that can be replicated by other states of the country. Implicit in this vision is the need to take cognizance of all UN interventions in the state, dealing with local governance and decentralization, and develop a project document that would be used for resource mobilization in implementing the vision.
Scope of Work:
The study would be undertaken by a two-man team, one International(Team Leader) and a national consultant.
Specific objectives of the study are:
- Review all existing UN interventions in Ondo State as well as other UNDP interventions (on-going and proposed) related to local governance and decentralization – in the country - especially in terms of their relevance, effectiveness, efficiency, sustainability, and consistency with state development objectives.
- Identify evolving best practices and lessons being learned based on (a) above that could be replicable in a coordinated and harmonized manner.
- Review the overall governance structure in Ondo State (State and local government) and determine the extent to which these structures(ministries, parastatals, agencies ( and other government implementation organs - at both state and local level) and their operational modalities are consistent with pursuing a sustainable local governance and decentralization programme in the state.
- Undertake a comprehensive capacity assessment of the Ondo State Ministry of Community Development and determine the extent to which existing staff, present institutional arrangements and operational modalities and linkages as well as state planning process would be apposite to ensure a sustainable local governance and decentralization programme in the state.
- Review the Good Urban Governance Assessment Report – prepared with support by UNDP, UN-Habitat and Oslo Governance Centre - and its associated tools, indicators and methodologies with special reference to Ondo State and make recommendations for refinement to be adopted as an LGA assessment framework and how to integrate this into the National Statistical Data Base.
- Based on the above, undertake a review of the present mechanisms for ensuring participatory planning, monitoring and evaluation and proffer means of improvement in line with a local governance and decentralization programme. This should also involve an assessment of citizen’s voice in the decision making process of the State Government and clear recommendations on strengthening existing governance assessment systems.
- Identify linkages with the Country Office’s up-stream outcomes and programmes such as anti-corruption and procurement reform, public accountability, HIVAIDS, conflict prevention management, SME development etc.
- Identify obstacles to a seamless integration of all the above programmes with a proposed local governance and decentralisation programme and proffer recommendations to address them.
- Undertake a review of Federal Government ministries/agencies, especially with reference to capacity to provide the requisite guidance, support and leverage for a national level programme on local governance and decentralization.
- Develop a fully costed project document, to be used for resource mobilization, that would essentially form the basis of UNDP CO’s subsequent support to the Nigerian Government in local governance and decentralized responses.
Duration:
The work will be undertaken during a period of 60 working days and the consultants would be based mostly in Abuja but would be expected to travel to Ondo and Bayelsa States.
Competencies
- Strong understanding and knowledge of local governance, development and participatory approaches is a must.
- Good communication and interpersonal skills.
- Excellent writing and reporting skills.
- Evidence of previous engagement in areas similar to the current assignment.
- A good understanding of Participatory Governance Assessment (PGA) methodology/tools/techniques.
- A considerable experience in working UNCDF and UNDP local governance and decentralization programme is a requirement for the international consultants.
DOCUMENTS TO BE INCLUDED WHEN SUBMITTING THE PROPOSALS.(Please Submit all the documentation stated below together with your resume as a single file and Complete the UNDP Personal History Form)
Proposal:
- Explaining why you are the most suitable for the work
- Provide a detailed methodology on how you will approach and conduct the work
- Implementation Plan and Timelines
- Past experience in carrying out similar assignment with verifiable evidence i.e. reference with detail contacts
- All proposals must be submitted alongside signed cover letter.
- UNDP Personal History Form - http://sas.undp.org/Documents/P11_personal_history_form.doc
- Personal CV including past experience in similar projects with detailed contacts relating to the project and at least 3 references
Financial proposal
Lump sum contracts - the financial proposal shall specify a total lump sum amount, and payment terms around specific and measurable (qualitative and quantitative) deliverables (i.e. whether payments fall in installments or upon completion of the entire contract). Payments are based upon output, i.e. upon delivery of the services specified in the TOR. Your financial proposal shall include a breakdown of the lump sum.
All envisaged travel costs must be included in the financial proposal. This includes all travel to join duty station/repatriation travel. All travels shall be refunded by UNDP at economy class ticket. Should the IC wish to travel on a higher class he/she shall do so using their own resources.
In the case of unforeseeable travel, payment of travel costs including tickets (economy class), lodging and terminal expenses shall be paid at UNDP rate.
Selection Criteria.
Cumulative analysis
The evaluation Criteria as shown in the table below shall be used to evaluate all the proposals received. The award of the Individual Consultant Contract shall be made to the individual consultant whose offer has been evaluated and determined as:
- Responsive/compliant/acceptable\
- Having received the highest score out of a pre-determined set of weighted technical and financial criteria specific to the solicitation.
* Technical Criteria weight; [70]
* Financial Criteria weight; [30]
Only candidates that obtain a minimum of 49 points in the technical evaluation would be considered for the Financial Evaluation. The maximum 30 points all be allotted to the lowest bid, all other bids shall receive points in inverse proportion to the lowest fee e.g. [30 Points] x [Naira lowest] / [Naira other] = points for other proposer’s fees
| s/no | Selection Criteria | Weight | Maximum Points | Scores Obtained by the Consultant |
| 1 | Minimum 10 years post advanced University degree, preferably in political science, economics, management or administration. | 20 | 20 | |
| 2 | At least 10 years cognate working experience on Governance issues, especially in areas such as urban governance, local development programmes, environment, public accountability and procurement etc at sub-national levels with evidence. | 30 | 30 | |
| 3 | Strong understanding and knowledge of local governance, development and participatory approaches | 20 | 20 | |
| 4 | § A good understanding of Participatory Governance Assessment (PGA) methodology/tools/techniques. | 15 | 15 | |
| 5 | § A considerable experience in working UNCDF and UNDP local governance and decentralization programme is a requirement for the international consultants, § | 15 | 15 | |
Annex I
Price Schedule
| s/no | Description of Activities | Unit Cost (USD) | Total Cost(USD |
| 1. | Lump sum Cost for the entire Assignment as Stated on the TOR (You may provide detailed breakdown) | | |
| 2. | Any Other Cost (Please Provide full details) | | |
| 3. | Any Other Cost (Please Provide full details) | | |
| 4. | Any Other Cost (Please Provide full details) | | |
| 5. | Any Other Cost (Please Provide full details) | | |
| 6. | Any Other Cost (Please Provide full details) | | |
Full Names:______________________________________________________________________
Signature/Date:___________________________________________________________________
Required Skills and Experience
Education:
- advanced University degree, preferably in political science, economics, management or administration
Experience:
- Minimum 10 years solid working experience on Governance issues, especially in areas such as urban governance, local development programmes, environment, public accountability and procurement etc at sub-national levels.
Language:
- Fluency in written and spoken English.