Rwanda Civil Society Platform

R.C.S.P

Final Report

SURVEY ON CITIZENS’ PARTICIPATION IN THEPERFORMANCE CONTRACTS

“IMIHIGO” PROCESS

By

MAKUZA Jean Marie Vianney, Senior Consultant

Managing Director /Cope consulting Ltd

Tel: +250 788506146/ P.O Box 3786

Kigali-Rwanda

December2011

  • P.O Box: 3786 Kigali-Rwanda
  • Tel: +250 0788506146
  • e-mail:

December, 30th 2011

The Spokesperson of Rwanda

Civil Society Platform

Kigali, Rwanda

Dear Sir,

Subject: Final Report on Citizen Participation in the Performance Contracts “Imihigo” Process

We have the pleasure to submit to you the Final Report of the Survey on Citizens’ Participation in the Performance contracts “Imihigo” Process.

Could you need any further clarification on the same, please do not hesitate to contact us.

Yours Faithfully,

For Cope consulting Ltd

Makuza Jean Marie Vianney, M.B.A

Managing Director

Table of Contents

i.LIST OF ABBREVIATIONS

ii.ACKNOWLEDGMENTS

iii.EXECUTIVE SUMMARY

1.INTRODUCTION

1.1 Background to Imihigo and its Definition

1.2Imihigo planning process and citizens’ participation

1.2.1 Background, Definition and Objectives of Imihigo

1.2.2 How citizens should participate in Imihigo process?

1.3 Background to the study

1.4 Objective of the study

2. RESEARCH METHODOLOGY

2.1 Study area and research approaches

2.2 Sample Definition and design

2.3 Recruitment, training and work plan of research assistants

2.4Research instruments

2.4.1 Documents review

2.4.2 Interview

2.4.3 Questionnaire

2.4.4Focus group (Community score cards) and Indicators assessment

2.4.5. Data entry

2.4.6. Data processing

3. SURVEY FINDINGS

3.1 Quantitative analysis.

3.1.1 Characteristics of respondents

3.1.2Participation in planning, implementation and evaluation in Imihigo process.

3.1.3 The role of the consultative council in Imihigo process

3.1.4 Gender issues in the Imihigo process

3.1.6 Consideration of Individual and village Imihigo by higher administrative levels

3.1.7 Imihigo process and accountability day

3.1.8 Achievements of performance contracts.

3.2 Qualitative analysis- The results of Community score cards

3.2.1 Setting of Indicators

a.Standard indicators

b. Community generated indicators

3.2.2 Justification of the scores and suggestion for improvements

4. MAJOR FINDINGS, CONCLUSIONS AND RECOMMENDATIONS

4.1 Major findings

4.2 Conclusion

ANNEXES

Annex 1: Imihigo documents tracking Matrix

Annex II: Questionnaire

Annex III: Community score cards matrix

BIBLIOGRAPHY

i.LIST OF ABBREVIATIONS

9YBE / Nine Years Basic Education
AIDS / Acquired Immuno Deficiency Syndrom
CIDA / Canadian International Development Agency
COPEDU / Cooperative d’Epargne Duterimbere
CSC / Community Score Cards
CSPRO / Census and Survey Processing System
EDPRS / Economic Development and Poverty Reduction Strategy
HIMO / Haute Intensité de Main d’Œuvre
JADF / Joint Action Development Forum
MDGs / Millennium Development Goals
MFI / Micro Finance Institution
MINALOC: / Ministry of Local Government
MINECOFIN / Ministry of Finance and Economic Planning
RALGA / Rwanda Local Government Association
RCSP / Rwanda Civil Society Platform
RGAC / Rwanda Governance Advisory Council
SACCO / Savings and Credit Cooperatives
SIDA / Swedish International Development Agency
SPSS / Statistical Package for Social Sciences
VUP / Vision 2020 Umurenge Program

ii.ACKNOWLEDGMENTS

This study was made possible by the support of numerous individuals and institutions.

Special thanks go to the Spokesperson, the Executive Secretary and staff of the Rwanda Civil Society Platform for their valuable support to the study.

The Ministry of Local Government (MINALOC) also provided support and encouragement for which we are grateful. The assistance provided by various key informers was critical at the inception of the study and throughout the course of the exercise and we specially appreciate inputsfrom local leaders and representative of Civil society organizations of the Districts of Gicumbi, Musanze, Gisagara, Ruhango , Nyamasheke, Karongi, Kicukiro, Gasabo, Bugesera, Kirehe and particularly those from Sectors of Byumba, Mutete, Muhoza, Kinigi, Ruhango, Byimana, Ndora, Kansi, Kagano, Macuba, Rubengera, Rugabano, Masaka, Kagarama, Kacyiru, Rusororo, Nyamata, Mwogo, Kirehe and Mahama.

We want to acknowledge the substantive support provided by the funding organizations, namely CIDA and Christian Aid.

Last but not least, we thank ARIPES, COPORWA, RGAC, RALGA, IBUKA, AMUR, IRDP,GIZ and Transparency Rwanda for the valuable input in this study.

iii.EXECUTIVE SUMMARY

In 2000, Rwanda adopted the decentralization policy and strategy to guide the process of transferring powers, authority, functions, responsibilities and the necessary resources from central government to local governments. This move was intended to increase the participation of the local communities in decision making process, bring services closer and empower them to determine their own future in order to improve good governance and enhance pro poor service delivery and sustainable development.

Although decentralization established a number of mechanisms such as Performance contracts (Imihigo) that offer citizens’ engagement in planning, implementation and monitoring of development programmes at all levels, in practice the level of civic participation and engagement remains poor and the government seems to remain the main planner, dispenser and evaluator of impact of development.

It is against this background that Rwanda Civil Society Platform assignedCope consulting Ltd to undertake a comprehensive study to assess citizen participation in Imihigo process and provide recommendations necessary to enhance participation in the process at national and local levels.

To achieve its objectives, the study used a wide range of quantitative and qualitativeresearch approaches as outlined below:

  • Documents review
  • Questionnaire
  • Key informant interviews
  • Focus group Discussion (Community scorecards)
  • Participant/on site observations

The quantitative survey therefore consisted of a sample size of 600 respondents including heads of households, local leaders, cooperative leaders and representatives of civil society organizations. The operative areas for the research included two sample sectors per District. The sampled districts were the following: Gicumbi, Musanze, Bugesera, Kirehe, Kicukiro, Gasabo, Nyamasheke, Karongi, Gisagara and Ruhango

Community members were also approached to discuss the Imihigo process, its benefits, challenges, opportunities and impact, using the Community score cards (CSC) model. Under this model members of focus group discussed and assessed service delivery under Imihigo in a participatory manner using standard indicators set up with the facilitation of the consultant and research assistants. In addition, both community members and service providers were facilitated to identify their own indicators; which were also used for assessing the level of citizens participation in Imihigo process, reasons for the level of appreciation and suggestions for improvement.

Two focus group discussions per district (each focus group discussion included two sessions: one for service providers and another for local leaders and opinions leaders) were organized and their inputs were included in this report..

The survey results show that citizens participate in Imihigo process to an appreciable level. Performance contracts (Imihigo) offer various opportunities for community participation including various meetings at the district, sector, cell and village. Accountability days and public meeting after umuganda are interesting opportunities for participating in performance contracts. The above opportunities are exploited by many including communities, women, consultative councils who actively participate in performance contracts.

This study also indicates that many achievements have been registered due to performance contracts. Main ones include improving public service delivery, keeping security, unity and reconciliation, working in transparency, encouraging competitive spirit among leaders, improving health (mutual health insurance), improving education (9YBE), eradicating grass thatched houses , improving hygiene and sanitation, Girinka programme, fighting diseases, job creation, land consolidation, Umurenge SACCO, strengthening cooperatives, providing land titles and infrastructures development, establishing citizen assembles, judgment execution/finishing trials, and eradicating injustices.

The level of participation is reported to be very big in Nyamasheke district, followed by Karongi and Kicukiro districts. The pattern of districts performance with respect to citizen participation in the planning, implementation and evaluation mimics 2010/2011 evaluation results by government Imihigo where districts such as Nyamasheke that performed very well are reported to involve citizens in imihigo implementation.

Nyamasheke, Karongi and Kicukiro have been performing exceptionally well under performance contracts and it is therefore not surprising that they have also consistently been reported to involve the local communities in Imihigo process.

The survey results also show that the level of citizens’ participation in Imihigo process is satisfactory.They also show that thereare factors affecting this citizens’ participation in performance contracts Imihigo. These include:

  • Programmes initiated from the top are not discussed enough with the population. e.g The cost of Mutuelle de santé, Land consolidation and eradication grass thatched houses..
  • There are times when the performance contracts are beyond the means of the population.
  • The concept of performance contracts is still new for both leaders and population
  • Resistance to change by community
  • Community do not participate in the evaluation of the performance contracts.
  • The youth doesn’t participate in Imihigo process
  • Accountability days usually take place at levels far from the community (Districts and Sectors)

Among suggestions there are the following:

  • Develop a comprehensive policy to guide the planning, implementation and evaluation of Imihigo process
  • Transforming performance contracts into the foundation of the village and the linkage between the leaders and the led
  • Allocation of enough time to discuss performance contracts that are initiated from higher levels (eg. The cost of Mutuelle de santé, Land consolidation and eradication grass thatched houses)
  • Communities sensitization on the benefits of performance contracts
  • Rewarding best performing individuals, villages, cells and sectors.
  • Capacity building of leaders and community in different ways: eg study tours
  • Improvement of cooperation between leaders community and other stakeholders during preparation, implementation and evaluation of performance contracts
  • Drawing of Imihigo programme at every level, informing all the people and establishing a known day for evaluation
  1. INTRODUCTION

1.1Background to Imihigo and its Definition

In 2000, Rwanda adopted both decentralization policy and strategy to guide the process of transferring powers, authority, functions, responsibilities and the necessary resources from central government to local governments. This was aimed at reversing the past public administration trend in which the central government minimally involved the population in matters affecting them but instead used a top down approach to decide on their behalf for all political, economic and social matters. This move was intended to increase the participation of the local communities in decision making process, bring services closer and empower them to determine their own future in order to improve good governance and enhance pro poor service delivery and sustainable development.

According to Rwanda Governance Advisory Council (R.G.A.C), the government introduced performance-based approach ‘Imihigo’ in 2006 as one of the key tools to reinforce the local government for accelerating the implementation of identified priority programs. Performance-based approach or the Imihigo ritual was found to be a genuine and meaningful way to give the population a chance to understand and to take an active part in this decentralization reform in order to improve public sector effectiveness.

Imihigo is an ancient Rwandan cultural practice where an individual would set himself/herself targets for achievement within a specific period of time following some principles and having determination to overcome the possible challenges. In the modern day, the Imihigo practice was adopted by Rwanda as a means of planning to accelerate the progress towards economic development and poverty reduction. Imihigo has a strong focus on results which makes it an invaluable tool in the planning, implementation, accountability and monitoring and evaluation processes.

Through this approach, local governments together with the local communities annually articulate their own objectives and targets based on both national and local priorities and set realistic strategies to achieve them. This cultural based performance approach and contract was for first time publicly entered into and signed on the 4th of April 2006 between H.E the president of the republic of Rwanda and District Mayorsthe above parties and since then local government authorities and institutions (Family, Village, Cell, Sector, and Districts) use it to set local priorities, annual targets as well as to define strategies for achieving them.

1.2Imihigo planning process and citizens’ participation[1]

1.2.1 Background, Definition and Objectives of Imihigo

The GoR adopted the decentralization policy and strategy in 2000, with commitment to empower local communities to determine their own future to achieve good governance, pro poor service delivery and sustainable development. The aim of this policy was to increase the participation of the population in decision making and to bring services closer to the population.

One of the key tools introduced by the GoR in 2006 for reinforcing the local government was the performance-based approach ‘Imihigo’. Imihigo is as old as pre-colonial Rwanda. Imihigo is a cultural practice in the ancient tradition of Rwanda where an individual would set himself/herself targets to be achieved within a specific period of time and to do so by following some principles and having determination to overcome the possible challenges.

Through this approach local governments articulate their own objectives which reflect priorities of the local population and develop realistic strategies to achieve these objectives. This cultural based performance approach was initiated out of the concern of top leadership of the country about the rate and quality of execution of government programs, thus, making the public agencies more effective.

It is in that respect, that the President of the Republic, on the 12th of March 2006 while addressing a meeting of members of District Executive Committee with their Executive Secretaries in Murambi, requested that the district leadership prepares an activity program for the remaining part of the year which he would sign with them. In that meeting, His .Excellence the President, pointedly requested a joint evaluation after six months. Since that date, the districts were guided into the preparation of the performance contracts or Imihigo which were publicly signed on the 4th of April 2006 for the first time. Since 2006 the approach has been used by local government authorities (Households, Village, Cell, Sector, Districts) for setting local priorities, setting annual targets and defining activities to achieve them.

1.2.2 How citizens should participate in Imihigo process?

The exercise starts with the central government identifying national priorities to be implemented at local levels basing on Millennium Development Goals (MDGs), Rwanda’s long term development strategy (Vision 2020), Economic Development and Poverty Reduction Strategy (EDPRS), National Programmes and policies, Leadership retreat resolutions, National Dialogue and Cabinet resolutions. While setting priorities, attention is paid to areas of quick wins, synergy and avoiding duplication and this applies to priorities whose resources have been either earmarked or not in which case line ministries identify how to mobilize them.

The above priorities are thencommunicated and discussed in a meeting bringing together Central and Local government leaders. In order to identify local priorities to include into the above national priorities, the districts consult and discuss with their respective District Development Partners and different stakeholders including local communities at Province/Kigali City, district, sector, cell and village levels. At the village levels these consultations and discussions are held directly with all the people contrary to other levels that involve only people’s representatives. Finally Districts consolidate local and national priorities at district level; discuss the draft (for District and Province/Kigali city) with Quality Assurance Technical Team (MINALOC and MINECOFIN), Present them to stakeholders and are eventually approved.

1.3 Background to the study

Rwanda aspires to become a middle income by 2020 with an annual per capita income of

900$US. These aspirations are expressed in its Vision 2020 and the government has developed an Economic Development and Poverty Reduction Strategy (EDPRS) that provides a medium-term framework for achieving the above long term development goals.

Both Vision 2020 and EDPRS highlightthe promotion of people’s participation at the grassroots level through the decentralization process as a means to empower local communities in the decision making process thus enabling them to address issues affecting their lives.

Although decentralization established a number of mechanisms such as performance contracts (Imihigo) that offer citizens’ engagement in planning, implementation and monitoring of development of government programmes at all levels, in practice the level of civic participation and engagement seem to remain poor and the government seems to remainthe main planner, dispenser and evaluator of impact of development and this could jeopardize the ownership of policies by the citizens.

It is against this backgroundthat Rwanda Civil Society Platform assignedCope consulting Ltd to undertake a comprehensive study to assess citizen participation in Imihigo process and provide recommendations necessary to enhance participation in the process at national and local levels.

The study is expected to assess the level of citizen participation in Imihigo process, key opportunities offered by citizen participation, key issues regarding the use of the existing opportunities, the impact of Imihigo on life of the community, and specific recommendations necessary to enhanceparticipation in the process at national and local levels. The implementation of the study findings will increase citizen participation in the development, monitoring and evaluation ofpolicies hence creating policies ownership by the population.

1.4Objective of the study

This research aimed at deepening and broadening the understanding of the opportunities and factors influencing popular participation in the Imihigo process as a local development mechanism. Accordingly therefore, the study had the following specific objectives:

  • Indicating how the process promotes democracy and good governance in Rwanda through effective citizen’s participation
  • Assessing the levels and factors affecting effective citizen in the Imihigo process and recommend key improvements /changes
  • Mapping spaces or opportunities available for fostering citizen’s participation
  • Increasing understanding of the effectiveness of utilization of the available spaces/opportunities and related successes and constraints
  • Identifying strategies and measures needed to improve citizen’s participation to safeguard the achievements of performance contracts
  • Assessing citizens’ perception vis a vis Imihigo and their role in spreading the socio-economic development of the country and increase the population awareness on the performance contracts Imihigo experience
  • Providing room for discussion and dialogue on common challenges on performance contracts in the longer term

2. RESEARCH METHODOLOGY

2.1 Study area and research approaches

To achieve its objectives, the study used field surveys, secondary data collection, site visits and stakeholder wider consultations. A wide range of tools were used as outlined below: