AS PRACTICED IN MALAYSIA 1 CONCEPT OF DECENTRALIZATION Decentralization refers to the transfer of decision- making from the central level to a sub-national authority. The aim is to transfer power and resources to a level that is closer, better understood and more easily influenced by local people. This should result in gains in efficiency and appropriateness of service delivery, as well as better governance and greater accountability. By creating the conditions for more inclusive and transparent operations, decentralization enhances citizen participation in local governance, allowing communities to take responsibility for their own development. 2 DEFINITIONS OF DECENTRALIZATION Maddick (1966) defines decentralization as consisting of two types- devolution and deconcentration. 1. Devolution Devolutioncentral governments transfer of administrative and financial decision making authority to local governments that have clear and legally recognized jurisdictions within which they provide public services to constituents they are accountable to. 3 Cont.. 2. Deconcentration Delegation of authority adequate for the discharge of specified functions to staff of a central department who are situated outside central headquarters . Assignment of certain functions to the agents of Central or State goverment in the field due to the difficulty of governing from the centre. Examples are the district office and registration departments. 4 Cont Smith (1985 ) differentiates two forms of decentralization. 1. Devolution where the authority to make certain decisions in some spheres of public policy is delegated by law to sub national territorial assemblies (eg. Local authorities). 2. Deconcentration delegation of authority to make administrative decisions on behalf of the Central administration to public servants working in the field responsible for government policies within their territories (eg. district office, health department). 5 HOW IS DECENTRALIZATION DEFINED IN THE MALAYSIAN CONTEXT? Devolution here refers to the transfer of formal powers through an act of parliament to bodies created by law. These bodies have financial and administrative powers and functional autonomy. They are legal entities with the power to sue and be sued and can enter into a legal contract. They also have the discretion to spend their money and to make policies for the benefit of their community. 6 Cont.. Deconcentration on the other hand refers to delegation of authority to agents of central and state governments at the local level. These bodies do not have any specific financial and administrative powers. They act on behalf of the higher levels of government and can only do as instructed. They are basically executing the policies decided by the higher levels of government. 7 REASONS FOR DECENTRALIZATION According to the World Bank (1989, pp. 71-2) there are four arguments in favour of decentralization, namely: 1. The first is based on the assumption that the demand for local public services varies from place to place. Only decentralized provision of local services will adjust to the multifaceted demands. 2. The second is efficiency. It can be argued that locally financed and produced services will cost less.
8 Cont.. 3. The third is of a political nature. Local government is an important training ground for democracy. Stronger regional or local governments can control the tendency of central government to become all powerful. 4. The fourth and last could be called institutional. Co- ordination at the local level is necessary and local public services cannot and would not be treated independently. Local government can co- ordinate these services much more easily than a national government would. 9 OTHER REASONS FOR DECENTRALIZATION To reduce burden of Central government. It speeds up decision making and faster implementation of policies. It creates initiative and enthusiasm of lower level officials. Needs and resources vary between local areas needs of the people in Kota Belud and Petaling Jaya vary. Political reasons for decentralisation- to enhance political education and reduce feelings of remoteness. Political pluralism reduces political power of a too powerful central government. 10 THE RELATIONSHIPS OF FEDERAL, STATE AND LOCAL GOVERNMENT: 11 Under the provision of Article 76(4) of Federal Const., Parliament has the power to amend any laws related to LG although they are the subjects of the State Government. Besides DBKL, all other Local Authorities are the subjects of the state Government as specified under the 9 th Schedule of List II in Federal Constitution. FEDERAL GOVERNMENT CONTROLS OVER LOCAL GOVERNMENT: 12 There are two main controls by Federal government over local government. These are through the; 1. National Council for Local Government (NCLG) Article 95A of Fed. Cons. provides for the formation of National Council for Local Government (NCLG) comprising of one representative each from the state government appointed by the ruler of YDP Negeri and no more than 10 representative from Federal Government. Being a body formed under the Const. ,it has its own constitutional rights. Secretariat is the Ministry of Housing and Local Government. Cont.. Membership of this council consist of a federal cabinet minister as the chair., .They meet and discuss policy matters relating to local government at least once a year. The chairman is the Prime Minister or Deputy Prime Minister. The decisions made by the council are binding on Federal and state governments except Sabah and Sarawak. 13 Cont. 14 The Federal and State Government shall consult the NCLG in respect of any proposed legislation or any other matters dealing with or relating to LG. NCLG shall advice those governments on any such matter. Sabah and Sarawak are not members but observers to NCLG. Meeting of NCLG shall be as often as the Chairman consider necessary but at least once a year. The functions of NCLG: 15 1. Transformation and development of LG through discussion and negotiations between the Federal and State Governments. 2. Transformation and development must be within the national policy so that it can develop and control the functions and roles of Local Authorities. 3. To inform, direct or advice the Federal and State Governments on matters pertaining to the legal aspects and operations of Local Authorities. Cont.. The NCLG can be seen as a forum for federal, state and local governments to coordinate policies and laws relating to local government. The creation of this body is to make sure that all policy making in all three spheres of government is tightly integrated and coordinated. For eg. at the last NCLG 55th meeting held on 25th September, 2006, which was chaired by the Deputy Prime Minister, the following resolutions were made: 16 Cont.. 1. All local authorities must seek the opinion of the public before making any decisions affecting them. 2. Local authorities to set up one-stop centres for quick approvals for developers using the build and sell concept. Under this concept, developers will collect a 10% deposit and complete the construction of the house before collecting the rest of the money. 3. All public buildings must have disabled-friendly facilities 4. All multi-storey car parks must install closed-circuit television cameras. 17 MINISTRY OF HOUSING AND LOCAL GOVERNMENT 18 In 1978, the Government has formed two ministries responsible for the affairs, roles and development of Local Authorities. These are the Ministry of Federal Territory and the Ministry of Housing and Local Government (MHLG). The former is responsible to the Federal Territories and DBKL while the later is responsible for all the other Local Authorities except those in the Federal Territories, Sabah and Sarawak. Through the MHLG, the Fed. Gov. has the power to control and develop the policies and by-laws of Local Authorities so as to be consistent with the policy and objectives of the gov. The Fed. Gov. also provides advisory and maintenance functions to LG so that it could fasten its development and modernization programs. CONT It is responsible for local government legislation in Peninsular Malaysia. It is also responsible for the development of local government policy and the implementation of all local government functions. It oversees overall development of local government in Malaysia and they can direct state governments to pursue federal government policies. They are also responsible for improving the whole local government system with the aim of increasing the effectiveness and efficiency of local government. In 2004, the Ministry appointed Universiti Malaya as a consultant to revamp the entire local government system in Malaysia 19 The functions of MHLG (according to Ahmad Atory, 1991); 20 1. To act as Secretariat to NCLG with the highest authority to draft and amend policies and by-laws related to LG. 2. Responsible for the development of the administrative systems of LAs so as to improve its services and capacity to execute it activities at the grass root level. 3. Responsible to monitor the activities of LAs to be in line with the national policies. Continue.. 21 4. Responsible to co-ordinate and assist in provisions of grants and funding from the Federal Government. 5. To provide advisory functions to LAs in the financial planning and the improvements of their financial positions. 6. To organize seminars, workshops and relevant courses to LAs to improve and exchange of knowledge, experience and best practices.
STATE GOVERNMENT CONTROLS OVER LOCAL GOVERNMENT 22 State control over local government are mainly through the Local Government Act, 171. The State Government has full authority over LG, thereby leaving no autonomy to LG. Although the LG is said to have financial autonomy, the financial expenditure and budget of LG is approved by the State Government. Financial controls: Financial Controls: This can be seen through; S. 39 - Revenue of local authority S. 41 - Raising of loans by local authority S. 42 - Power to issue bonds S. 46 - Power to borrow for special purposes S. 47 - Loans by government S. 49 - Overdrafts from banks
23 Cont.. S. 55 - Where the budget needs approval of state government. S. 56 - Supplementary estimates need approval of state S. 60 - Audit of accounts to be tabled in state legislative assembly S.130 - Basis of assessment of rates to be decided by state and any increase in rates need approval of state authority 24 Administrative controls: S. 3 - Declaration and determination of status of local authority areas S. 4 - Change in name, status and alteration of boundaries S. 5 - Merger of two or more local authorities S. 9 - Power of State authority to issue directions S.10 - Appointment of councilors 25 Cont S.16 - List of offices which show a full list of posts, numbers and types must be sent to state authority. Any reduce in rank of category A officers appointment must be approved by state authority S.26 - Votes of majority decisive but in case of conflict, state authority can intervene S.102 - All by laws must be approved by state government 26 CONTROLS UNDER ACT 172 Under the Town and Country Planning Act, 1976 all local authorities have to prepare a Structure Plan for their local areas once in 5 years. This plan will show the land use of the area. This plan needs the approval of the state authority. The plans also need to be exhibited at public places for a month for the public to give their views. 27 EFFECTS OF THESE CONTROLS ON LOCAL GOVERNMENT 1. It restricts their financial autonomy of local authorities since they cannot spend as they wish and cannot increase taxes as they like. 2. Local governments administrative autonomy is also restricted since they cannot hire and fire their own staff especially for group A.
28 Cont 3. State authorities can issue directions to local authorities and instruct them to do as they wish. For example. asking local authorities to install CCTVs in public places and helping state authorities to curb the sale of illegal VCDs are all not functions of local authorities but have to be carried out. 4. It slows down the decision making process because whatever project or programs that they want to carry out need approval of state government.
29 Cont.. 5. It prevents decentralisation at the local level and local authorities become more like deconcentrated bodies and cannot practice full devolution and be independent. 6. If local authorities are controlled by opposition parties as in the case of Kelantan, it will create conflict with the Federal government. 30
The transforming roles of district officer (DO)
It can be said that the first change in the traditional role of the DO came during the Emergency in 1948. Before the war, the DO was regarded as a strong and silent administrator spending much of his time under the punka ( fan operated by manual method) in his office dispensing order, writing well- phrased letters and minutes and quite often indulging in paper departmental war. The pace of work was quite leisurely. There was no pressure(Raja Shah Kobat as cited by Tan Sri Ahmad Sarji, May 20, 1995). 31 Basic roles of DO It can be summarised as follows:
32 Administration Planning and development Statutory function
Community relations Cont.. These roles must be well understood and effectively executed by the DOs, as leader at the district level. 33 Cont.. To undertake the above roles DOs are required to learn and acquire new knowledge and skills. More importantly, DOs must be able and willing to initiate and accept changes in all their work processes especially in respect to planning and development. 34 35 Role of District Officers powers The next layer in the government hierarchy, which is at the local level, is the district administration. The British formalised district administration nationwide. Today it still is the prominent administrative machinery at district level, for both the state and the federal governments. The District Officer (DO) heads the district council; in that capacity he is also the Land Revenue Collector and President (chairman) of most district councils. In the former Federated Malay States such as Selangor and Perak as well as the former states of the Straits Settlements such as Penang and Melaka, the DO is a senior federal officer from the elite Administrative and Diplomatic Service.
36 In the states of Sabah and Sarawak and the former Unfederated Malay States such as Kedah, Terengganu and Kelantan, the DO is a senior officer from the respective State Civil Service. The position of the District Officer as the chief administrative officer in a district is further enhanced by virtue of the fact that he is the most senior officer in the district and answers directly to the state secretary. The District Officer is responsible for the development of the district as a whole. 37 Cont.. Coordination of the various development activities is done through the various district committees most of which the District Officer chairs. The two most important committees are the District Development Committee and District Action Committee. They include all the heads of governments and agencies at the district level such as the District Council, Agricultural Department and Public Works Department. Although no statute provides for these consultation committees, administratively, they constitute an important machinery to monitor and coordinate all development proposals and activities in the district.
Main sources: Local Government in Asia and the Pacific. www.unescap.org/huset/lgstudy/country/malaysia/malaysia. 38 Case study: Roles of District Officer in Sarawak: Traditional roles: 1. Administrative Function Being the chief executive of the District, he is the Chief Administrator and thus must ensure that District and sub- district administration is efficiently and effectively executed. He administers his resources (staff and funds), his time and his work. As a leader, he leads, directs, executes, monitors and evaluates. 2. Statutory Function Certain Acts and Ordinances give power and authority to officers to execute legal duties in their official capacity (ex- officio). Thus a District Officer is also a Licensing Officer under the Arms Act. He is also a Power of Attorney and the Commissioner of Oaths under the Statutory Declarations Act. 39 Cont.. 3. Protocol Function and Events Manager As there will be regular visits of leaders and dignitaries, it is not uncommon that the protocol function may also take a certain, if not, considerable portion of his time. With these visits will come the management of events and activities, logistics and people. Thus, if and when official functions or official visits are made and require the presence of leaders and dignitaries within the District and Sub-District like Ketua Masyarakat and the rakyat it is the DO and SAO (Sarawak Administrative Officers) who will be responsible to invite them. 40 Cont.. 4. Social Development, Social and Socializing Function Another function that also needs to be performed particularly at the ground level is one that relates to social development, social and socializing function. While economic and development activities are being implemented by the other departments and agencies within the District and Sub-District, the social development, social and socializing function also need to be executed. He is expected to mix and mingle with the local populace and requires him to understand their local customs, adat and traditions. These are the traditional roles. We shall now focus on what we see as the new, challenging and glamorous roles of the District Officer: that of a development planner, project director or manager, and a resident project officer for his District. 41 Cont.. 5. DO as a District Development Planner A DO can play and perform the role of a development planner and contribute in performing a macro planning function for his district. He can start by collecting, compiling, generating, collating and analysing socio-economic data and information about his District. These data and information are not hard to obtain and should include the size of the district and sub- districts, the population and demographic information, resource endowment like land use under agriculture, forestry, industry and many other activities. Other important data cover employment and occupation, production and productivity, physical and social infrastructure. These information are very useful for planning. Such information can provide the benchmark for forecasting and formulating the District Development Plan. 42 Cont.. The DO can also prepare the list of programmes and projects that have been implemented in his District over the years. For example, all programmes and projects implemented during the past Plan (7MP) or planned, approved and scheduled for implementation (8MP) should have been compiled and used as the District Reference Book. 6. DO as a Project Director or Project Manager Currently, the DO has only been known to be the person/officer in charge in implementing Minor Rural Projects (MRPs). On this basis alone and based on his experiences, the DO is in fact already performing the function of a Project Director or Project Manager. 43 Cont.. In performing the role of project director or project manager in his district, he is not necessarily working alone on his own. He has under his administrative role the district engineer and the full array of technical assistants and support staff, the land officers, the local council staff and whomever he can avail. In this role, he administers and manages. He needs to be an organizer and coordinator of events, tasks and activities. 7. DO as the Resident Project Officer As the ground or resident project officer, the DO being responsible for implementing and completing a project (and on time), within budget, and in accordance with technical performance requirements must be in total command of the following tasks: 44 Cont.. Project Planning Project Co-ordination Project Staffing and Training Project Implementation Project Management Control and Reporting Project Interfacing or Linkages Conflict Management Change Management Project Financial Management Compliance with Procedures Project Turnover and Commissioning
Main sources: Rakan Sarawak, October 2001. Thank you.. 45
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