I welcome the donor assistance for district training
– and especially in the area of planning.
We need always to appreciate the assistance given by donors, and to
realise that in key areas we could not deliver services without this
assistance.
Training for District Services is a special
need. Headquarters staff – whether in
Port Moresby or provincial capitals- too often look after themselves first. Training directed at carefully assessed competencies for the
Districts fills a gap.
I enjoy reading District Plans because they set a vision
of a future where each village and district has the services and infrastructure
for health and prosperity.
The Plans reflect in-depth knowledge of community
and district realities, potential and problems. They reflect some – possibly not enough – consultation.
The Plans also reflect the wisdom of national and
international analysis of priority areas in health, education and
infrastructure. In health, for example,
these analyses showed the importance of immunisation, of mother and child care,
toilets and water supply, and a focus on common disease and injury. In education, they show the importance of
literacy and elementary and primary schools.
They look forward to an infrastructure and extension services to enable
development of local commerce and industry.
Yet there is a gap between vision and practice – to
an extent that plans become self-indulgent dreams.
District Plans are not being implemented. From your own districts, you know that much
of the limited funds went into Councillors’ salaries and allowances. You know health services are declining,
schools are not resourced and maintained, that footpaths and roads are often
impassable.
You also know what you see in your District applies
to much – not all – of the nation. The
newspapers report that our agriculture exports – except for oil palm and
vanilla - are declining. This is income
for your villagers - lost. This is
foreign exchange for our government – lost.
Why the decline in export crops? Reports are consistent – whether from the Department of Agriculture and Livestock, the Department of Transport and Communications, or the Bank of Papua New Guinea. Poor infrastructure – roads and wharves not maintained for a quarter of a century. Cargo boats which served coastal and river communities have disappeared. Zoom for canoes and dinghies costs more than the price received for the crop. Security for transport, plantations and cash is deteriorating.
Donor projects have borne many education expenses which are formally the responsibility of district administrations and local-level governments. It is doubtful whether the governments will be able to take over these responsibilities.
Health services have
declined. Aid posts are closed. Supplies are difficult. The Measles epidemic in Gulf Province warns
us what happens when immunisation levels fall.
What will happen if decline continues? Mining, petroleum and forestry are short-term. Will villages regress from cash to
subsistence? Will government services
and infrastructure recede to a few usually urban enclaves?
The prospect of district health services under this
scenario and with a probable AIDS / HIV epidemic is terrifying.
Even Waigani politicians and bureaucrats need to
worry. There will not be foreign exchange
to pay for food imports and fuel – and the transport infrastructure will not
suffice to bring food for the Port Moresby population.
The Organic
Law on Provincial Governments and Local-level Governments gave significant
responsibilities to the District Administrations and Rural Local-level
Governments. They include community
development and well being, aspects of health and education, a local transport
infrastructure. These are reflected in
the District Plans.
As well as the District Plans, I read the Rural Local-level Government budgets and annual financial reports. These are depressing. There is no relationship with objectives and targets of the District Plans.
This is in part because of lack of funding. Local-level Governments have been funded –
inadequately – from outside. Funding
has been unreliable. When the National
Government’s finances are under strain – as last year – then the Local-level
Governments do not receive the external funding for which they budgeted.
External funding also means lack of accountability
for expenditures. Most Local-level
Government Councils have one priority – whatever else is cut – Councillors’
salaries and allowances are paid. Last
year, they often paid themselves more than half the LLG funds.
There has been no research on how people feel about
Councils not delivering services. The
National Research Institute needs to appreciate that local-level elections are
as important as national elections. I
know, however, that people worry about collapse of services.
How good is a plan that cannot be implemented?
One response to failure is to condemn planners and
plan – and the implementers. You and
your councillors. There is some truth
in that.
Another response is to blame the Organic Law on Provincial Governments and
Local-level Governments. There is
truth in that.
The Organic
Law was sped through without adequate preparation of enabling legislation
which would permit – for example – Local-level Governments to raise their own
taxation.
Another response is to blame national counterpart
agencies. There is truth in that.
The Department of National
Planning and Rural Development never followed up on the National Charter for Reconstruction and Development. This was an exhaustively prepared
agreement between Governors and the Prime Minister to cover the partnership
between the levels of government. The
Department of Finance and Treasury never passed the enabling Acts which would
have permitted Local-level Governments to raise their own taxes. The Department of Provincial and Local
Government Affairs does not have qualified staff to support the National
Monitoring Authority or to give legal advice and assistance to Local-level
Governments.
Blame is unproductive. However, analysis of what went wrong is necessary for
progress. What are we in the Ministry
going to do to ensure that the next district plans can be implemented? What are you in the Districts going to do to
plan and implement?
Steps are being taken to give you access to the
resources you need. These include
legislation, which will be part of the National Budget in November. This legislation will allow Local-level Governments
if they so wish to raise Head Tax of K50.00 a year. It will allow you to grant exemptions to those who cannot pay,
and allow community work.
I calculate that this step by itself will increase
Local-level Government income for use for recurrent and infrastructure by about
500%. I believe the people will support
this Tax – if they are promised and see real benefits in terms of their
priorities and needs.
Councillors and district administrators will be
accountable in a way that they have not been accountable before. Your people will want to know what you
are doing with their money.
The Department of Finance and Treasury is also
taking steps to introduce District Treasuries.
There are obvious benefits in prompt handling of funds.
There are also dangers. You know this better than I do.
It is your everyday experience that there are pressures from Councillors
or others who want special benefits.
There is limited strength at provincial and national level to monitor
how money is used.
You will require integrity and strength to take
action and publicise actions required to ensure proper handling of Local-level
Government and District funds.
I would like to comment briefly on the uses of donor
project funding.
We all value and appreciate the range of donor
funding that can be accessed for community development.
However, such funding only benefits a few community
projects.
In the same ways as babies leave susu, we need to
learn independence. Yes, use donor
assistance! However, consider how you
can develop and use your own resources for your own sustainable services.
The Organic
Law on Provincial Governments and Local-level Governments gave Local-level
Governments power to enact a wide range of legislation setting a legal
foundation for orderly, healthy and prosperous communities.
The Governments were not given funding to buy
lawyers who can undertake the complex task of drafting legislation.
Some have been fortunate and have been able to call
in volunteer lawyers.
Central Province has circulated legislation among
Local-level Governments.
The legislation when passed by the Local-level
Government has been sent to myself and the Department of Provincial and Local
Government Affairs for endorsement.
This has led to two kinds of problems:
§
Lack
of lawyers within the Department has led to long delays in endorsement; and
§
Lack
of expertise at Local Government level means corrections are often required.
This time-consuming process has led to long delays and much frustration.
I want now to ensure that your Local-level Governments have access to examples of good Local-level Government legislation. I am going to use the Provincial Governors’ Conferences that we hold regularly as an opportunity to circulate sample legislation to the Governors. I am asking the Governors to use the meetings of Provincial Assemblies as an opportunity to circulate information on what sample local-level legislation is available.
One benefit of this kind of course is exchange of
information and ideas. This goes not
only from the instructors downward – but also from your experience upward and
sideways to your colleagues.
Public Servants in Waigani and Ministers in Cabinet
too can learn.
If there are messages from this course that you
would like to go to us, please send them.
I look forward to seeing results from this course –
plans that are implemented.
My best wishes for the course.