Civic Participation & Fiscal Transparency (SEK0007)

NO. 2: CIVIC PARTICIPATION & FISCAL TRANSPARENCY
Enhance civic participation by empowering citizens in decisions related to development planning, composite budgeting and fee fixing; create a localised standard operating procedure for streamlining financial records management and sharing.
Name and contact information of responsible department/team
Institution: Sekondi-Takoradi Metropolitan Assembly
Designation: Metropolitan Budget Analyst
Name: Evans Mark -Andoh
Telephone: +233-24-462660
E-mail: paaboah2002@yahoo.com
Other involved actors
Development Planning Unit, PRO, ISD
Institution: Berea Social Foundation Designation: Project Administrator Name: Joyce Cudjoe Telephone: +233-24-3507986 E-mail: besofo2006@yahoo.com
Friends of the Nation, African Women International, Community Land and Development Foundation, Global Communities, STMA-CSUF, Media and other relevant Local and International Organizations (eg. GIZ, Behavioural Insights Team, CDD-Ghana, SEND Ghana)
Status quo or problem/issue to be addressed
The Local Governance Act (LGA) 2016 (Act 936), Public Financial Management Act (Act 921), National Development Planning Commission Act 1994, (Act 479) and National Development Planning System Regulations 2016, (L.I. 2232) mandates a bottom-up approach to development planning, budgeting, fee fixing and requires that citizens are consulted during these processes. Although sections in the above mentioned Acts (example LGA 2016, Act 936-section 40-48) mandates participatory governance at the local level; the level of and avenues for citizens‟ participation and involvements in the development planning, composite budgeting and fee fixing are limited to the leadership of identifiable stakeholders, selected community members and centralised location. For example about 500 people directly participated in the preparation of current medium-term development plan and Fee Fixing. Further most citizens do not understand the development planning, composite budgeting and fee fixing processes of the final products (Development Plan document, Annual Budget document and Fee Fixing Resolution document). As a result of the above citizens feel that their needs are not adequately reflected and captured in the Assembly‟s development plans and annual budget. This has a negative impact on their lives since their needs and aspirations are not met. Concerning fiscal transparency and access to financial data, there is no system in place to manage, share and receive feedback on the Assembly‟s revenue and expenditure. Due to this situation, citizens do not have access to the right information on their contributions (rates and fees) and external inflows (donors and central government) and how these funds are used in service and infrastructure provision. Respectively 63% and 17% of the people engaged during the co-creation process rated the access to financial data as poor and average.
Brief Description of Commitment
The Metropolitan Assembly will work with the relevant agencies, institutions, and CSOs to develop the necessary protocols to ensure the fulfillment of the provisions made in sections 40-48 of the Local Governance Act 2016, Act 936. This will be achieved through building the capacity of state and non-state actors, increasing avenues for inclusive participation and facilitating the development of specific community action plans to serve as inputs into the Assembly‟s Medium-Term Development Plan for 2022-2025. Develop and disseminate simplified version of development plan, budget and fee fixing documents to engage citizens and other stakeholders. Leverage on community notices boards, the media, Assembly website and other social media platforms to disseminate the aforementioned documents. STMA would also develop and share disaggregated financial records on generated revenue and external inflows that would be simple, easy to understand and analyze by citizens.
Main Objective
To empower citizens to enhance responsive, inclusive, participatory and representative decision- making at all levels and also build citizens trust and confidence in resource allocation and utilization.
Way in which this commitment is relevant to further advancing OGP values of access to information, public accountability, civic participation, and technology and innovation for openness and accountability
Increased transparency and active citizens‟ engagement in policy deliberation and decision making will enhance the responsiveness and accountability of local government thus, the most direct form of open government. Allowing citizens direct access and participation in government decision making ensures that people drive what affects them most. Thus fostering continuous citizen participation, exercising accountability in governance, advocating for policy change, and delivering essential services to otherwise excluded people. The commitment has the impact of reducing citizens‟ apathy in the payment of taxes and rates needed for development as openness and accountability would be promoted. Also citizens would see the real impact of their financial contributions and other statutory payments from central government
Linkage to SDGs
Though ambitious, but when implemented this commitment will go a long way in meeting the needs and aspirations of citizens, foster greater partnership amongst stakeholders and ensure prosperity. This will ensure civic participation and financial data accessible to all it citizens and contribute to the achievement of the following SDGs: Goal 1 (end extreme poverty), Goal 4 (quality education), Goal 5 (gender equality), Goal 8 (decent work and economic growth), Goal 9 (industry, innovation and infrastructure), Goal 10 (reduced inequality) and Goal 16 (peace, justice and strong institutions) are aligned to this commitment.
Verifiable and measurable milestones to fulfil the commitment
1. Sensitise the public on the planning and budget process and disseminate simplified information on the Assembly‟s 2019 Action Plan and Composite Budget in the three submetropolitan councils. The efficacy of the sensitisation and dissemination of the simplified information will be evaluated to determine if people are able to understand the budget process and information
Staff time, transportation, Stationery, BIT for impact evaluation
Oct. 2018 – Dec. 2018
2. Build the capacity of 250 people (government, civil society organizations, marginalised groups, traditional leaders, private sector, the media and selected community champions) to understand the planning, budget formulation fee fixing processes and understanding the annual financial account statement and how they can effectively engage with the Assembly. The efficacy of the training will be evaluated to determine if people are able to understand the budget process and information.
Staff time, resource persons, Venue, Stationery, BIT for impact evaluation
Nov. 2018 – Aug. 2019
3. The Metropolitan Assembly to work closely
with the 250 trained community champions to develop inclusive, participatory specific community action plans for each community in STMA through a bottom-up approach to capture the felt needs and aspirations of the citizens. This bottom-up approach will include an iterative evaluation to measure the quality of the plans and which residents are making inputs. These documents will serve as inputs into the preparation of the new 4-year Medium-Term Development Plan (2022-2025) of the Assembly. The last time the Assembly adopted this approach was in 2012 in partnership with Global Communities (formerly CHF), a nongovernmental organization to develop 35 communities action plans
Staff time, resource persons, Stationery, BIT for impact evaluation
Aug. 2019 – March 2020
4. Develop and disseminate simplified version of development plan, budget and fee fixing documents to engage citizens and other stakeholders. The Metropolitan Assembly will make use of the 250 trained people to champion this initiative and leverage on the existing „Time with community‟ to educate, discuss and take citizens inputs.
Staff time, resource persons, Stationery
Jan. 2019 – Sept. 2019
5. Develop an STMA operating procedure for financial data sharing. We will develop operating guidelines on format (simplified template for disaggregating revenue generated and utilization according to each sub metro within STMA.) and time of delivery of financial information and collection of feedback.
Staff time, consultancy, Stationery
Jan. 2019 – May 2019
6. Develop and test 3 to 5 financial data sharing “use cases” and test them through field and lab experiments to evaluate whether they improve comprehension, engagement, and trust in government. Engage citizens, and Assembly Officers, to develop a preliminary set of current “use cases” to requesting and obtaining financial data. “Use cases” will encompass both requests for internal use, and sharing financial information outside of the Assembly through town hall meetings, community engagement, media engagement, community notices boards, Assembly website
Staff time, consultancy, Stationery, BIT for impact evaluation
June 2019 – Oct. 2019
7. Develop, mount and update Community notices boards, upgrade its website and also use the media, and other social media platforms to disseminate the simplified planning, budget fee fixing resolution documents and the annual financial account statement. Social media research trials will be used to evaluate how effective different outreach messages are at attracting engagement.
Staff time, Notice boards, Consultancy, Stationery, BIT for impact evaluation
June 2019 – Aug. 2020
8. Institute an award scheme to recognize and award deserving Assembly Members, Citizens and institutions for dedication and volunteerism. The effect of the award scheme on community pride will be measured through a co-designed survey.
Staff time, awards BIT for impact evaluation
June 2019 – Aug. 2020
Future Vision
To create the civic space for citizens to demand for accountability and inform policy makers of their needs, preferences and expectations.

2. Civic Participation and Fiscal Transparency

Language of the commitment as it appears in the action plan:

“Enhance civic participation by empowering citizens in decisions related to development planning, composite budgeting and fee fixing; create a localised standard operating procedure for streamlining financial records management and sharing.”

Milestones:

1. Sensitise the public on the planning and budget process and disseminate simplified information on the Assembly’s 2019 Action Plan and Composite Budget in the three sub-metropolitan councils.

The efficacy of the sensitisation and dissemination of the simplified information will be evaluated to determine if people are able to understand the budget process and information

2. Build the capacity of 250 people (government, civil society organizations, marginalised groups, traditional leaders, private sector, the media and selected community champions) to understand the planning, budget formulation fee fixing processes and understanding the annual financial account statement and how they can effectively engage with the Assembly.

The efficacy of the training will be evaluated to determine if people are able to understand the budget process and information.

3. The Metropolitan Assembly to work closely with the 250 trained community champions to develop inclusive, participatory specific community action plans for each community in STMA through a bottom-up approach to capture the felt needs and aspirations of the citizens. This bottom-up approach will include an iterative evaluation to measure the quality of the plans and which residents are making inputs. These documents will serve as inputs into the preparation of the new 4-year Medium-Term Development Plan (2022-2025) of the Assembly. The last time the Assembly adopted this approach was in 2012 in partnership with Global Communities (formerly CHF), a non-governmental organization to develop 35 communities action plans.
4. Develop and disseminate simplified version of development plan, budget and fee fixing documents to engage citizens and other stakeholders. The Metropolitan Assembly will make use of the 250 trained people to champion this initiative and leverage on the existing “Time with community” to educate, discuss and take citizens inputs.
5. Develop an STMA operating procedure for financial data sharing. We will develop operating guidelines on format (simplified template for disaggregating revenue generated and utilization according to each sub metro within STMA.) and time of delivery of financial information and collection of feedback.
6. Develop and test 3 to 5 financial data sharing “use cases” and test them through field and lab experiments to evaluate whether they improve comprehension, engagement, and trust in government. Engage citizens, and Assembly Officers, to develop a preliminary set of current “use cases” to requesting and obtaining financial data. “Use cases” will encompass both requests for internal use, and sharing financial information outside of the Assembly through town hall meetings, community engagement, media engagement, community notices boards, Assembly website.
7. Develop, mount and update Community notices boards, upgrade its website and also use the media, and other social media platforms to disseminate the simplified planning, budget fee fixing resolution documents and the annual financial account statement.

Social media research trials will be used to evaluate how effective different outreach messages are at attracting engagement.

8. Institute an award scheme to recognize and award deserving Assembly Members, Citizens and institutions for dedication and volunteerism. The effect of the award scheme on community pride will be measured through a co-designed survey. [10]

Context and Objectives

The commitment aims to encourage citizen participation in local government fiscal planning. The Local Governance Act 2016 [11] and other supporting legislations (such as the Public Financial Management Act and the National Development Planning System Regulations) [12] to make public consultation a prerequisite for local level budgeting, fee fixing, and development planning. However, this hardly translates into reality for a number of reasons. Across the country, public participation in local governance tends to be low and awareness of technical aspects, such as budgeting, tend to be even lower. For instance, a nationwide study by the Ghana Centre of Democratic Development (CDD-Ghana) found that less than a quarter of respondents were aware of Metropolitan, Municipal, and District Assemblies (MMDA) processes for determining property rates, licences, and fees, while only 33 percent were aware that MMDAs were obligated to seek citizens’ input when preparing development plans. [13]

In Sekondi-Takoradi, only well-established representatives of CSOs and social groups directly participate in fee fixing and medium-term plan development. [14] A similar situation prevails across the country, resulting in fees, rates, and development plans that fail to reflect the interests or priorities of the poor and marginalised. [15] Officials from the STMA Budget and Planning offices stated that this situation results in a lack of public identification with the assembly’s development plans, cynicism about the budget, and resistance to rates and fees. [16]

This reform builds on two commitments in the previous action plan. The first commitment aimed to publish financial information in accessible formats and saw limited implementation. STMA began to develop an operating procedure and guidelines for sharing financial information and collecting feedback. The international organisation Engine Room also drafted a data-sharing protocol. The second commitment resulted in partnership between STMA and business associations to set new fee rates for 2018 in a participatory manner. [17]

This commitment is relevant to the OGP value of access to information because it seeks to provide accessible information to the public in a variety of formats, including online, community notice boards, and via local radio stations. It is also relevant to the OGP value of civic participation as 250 CSO and community leaders will be trained on the planning, budgeting, and fee fixing process to better engage the assembly. This commitment involves various units of the assembly (such as Budgeting and Development Planning) working together with a number of influential civil society organisations (such as the Berea Social Foundation, Friends of the Nation, and the Centre for Democratic Development).

The commitment is specific enough to verify its completion. If fully implemented, the commitment has a moderate potential to increase transparency and public participation in the budget process. [18] Representatives of the core CSO partners in the OGP process, namely Aziz Mahmoud (STMA-CSUF), Solomon Kusi Ampofo (Friends of the Nation), and Ebow Barker (BSF) [19] expressed optimism that, if implemented as written, this commitment would demystify the workings of the assembly to the general public. The people who will be trained under this commitment include members of marginalised groups, which will enhance the general inclusiveness of the assembly. Further, officials of the STMA budgeting office stated that by directly involving the public in fixing rates, this commitment could reduce resistance towards payment of fees and tolls levied by the assembly. [20] This could, thus, help the assembly to increase revenue.

Next steps

The IRM researcher makes the following recommendations:

• It is laudable that this commitment involves capacity building for CSO representations and selected community members. This should be continued in future action plans.
• Consulting with representatives of CSOs and other social groups is an important first step. Going forward, implementers could ensure that representatives of the multi-stakeholder forum (MSF) report back to their organisations or associations on the consultations and decisions made.
• The assembly should consider adopting open data formats that would enable citizens, CSOs, and experts to analyse fiscal data.
• The assembly should also consider building in elements of participatory budgeting and citizen monitoring of actual spending or expenditure.