DOWA DISTRICT COUNCIL

Strategic and Implementation

Plan

Dowa District Council

Private Bag 2
Dowa
+ 265 1 282 264

June 2011

Table of Contents
Foreword.
Preface
Abbreviations.
1.0 Introduction and Background.
1.1 Introduction..
1.2 The Planning Process...
1.3 Institutional Background of the Council
1.4 Structure of the Report...
2.0 The Status of the Decentralization Process at Council level.
3.0 Lessons Learned during the implementation of the DDPs
and the National Decentralisation Programme.
3.1 Review of progress made since 1998.
3.2 Key Lessons Learned during implementation of the DDPs
and National Decentralisation Programme.
4.0 The Situation Analysis (SWOT Analysis)..
4.1 Strengths
4.2 Weaknesses.
4.3 Opportunities.
4.4 Threats
5.0 Key Strategic Issues/Challenges
6.0 Mandate, Vision, Mission and Core Values
7.0 Implications of the Malawi Growth and Development
Strategy on Decentralisation
8.0 The Strategic Direction
8.1 Strategic Outcomes and OutcomeTargets
9.0 Monitoring and Evaluation
Annexure
Annexure 1: Outputs and Annual Output Targets, and Implementation Plans
Annexure 2: List of Members of the Planning Team

FOREWORD
1

Dowa District Council is a local authority in Malawi established under section

146 of the Republican Constitution. Moreover, following the adoption of the
Decentralization Policy and the Local Government Act of 1998, the Malawi
Government has devolved certain political, social and fiscal powers to local
authorities whose responsibility is, among others, to promote infrastructural
and economic development through formulation and execution of local
development plans and encouragement of business enterprises.
Dowa District Council promotes and regulates socio-economic development
through policy implementation and enforcement, local democratic
participation, capacity building, resource mobilization, and implementation
of district development plans in collaboration with stakeholders for the
benefit of local communities.
Its goal is to ensure sustainable social
economic growth by the delivery of public services within its administrative
boundary and possibly beyond.
The delivery of the above-mentioned functions requires clear focus and a
sense of direction in order to achieve them. But the Council encounters many
challenges in the implementation of the development programmes and
projects, and the provision of services due to the fact that the tasks of the
implementing departments are not harmonized and mainstreamed in the
form of a single and unified document. It is against this background that
Dowa District Council has decided to come up with its Strategic and
Implementation Plan.
The intention is to strengthen the capacity of the Council to ably take a
leading role in the implementation, monitoring and evaluation of socioeconomic development programmes at the grassroots level.
The Strategic and Implementation Planning process will give this Council
clear direction for future operations, and will further ensure that the Councils
plans, mandates and vision are aligned to the national legal and policy
frameworks, e.g. Vision 2020, Malawi Growth and Development Strategy
(MGDS) as Government of Malawis overarching policy, Integrated Rural
Development Strategy (IRDS), Local Government Act (LGA), Decentralization
Policy, HIV and AIDS Policy, Gender and other cross cutting issues, and any
other relevant policy and legislation in Malawi, thereby, promoting efficiency
and effectiveness in service delivery.
In the long-term, it is intended that the Councils Strategic and
Implementation Plan would not only facilitate the consolidation of democracy
in the district, but will also achieve people empowerment and improvement
of the socio economic development of the local people in line with the
Government of Malawis overarching policy framework.
James S.A. Manyetera
DISTRICT COMMISSIONER
2

PREFACE
Dowa District Council is one of the districts under the Malawi Local
Government Strengthening and Investment Programme (MLOGSIP) support.
One of the activities in the annual work plan is the production of the
Strategic Plan. This Strategic Plan has, therefore, been formulated to
operationalise the implementation of the District Development Plan (DDP)
and the Sector Investment Plans (SIPs) as a means of improving service
delivery in the district.
In essence, the development of the strategic plans was part of the overall
public sector reform program aimed at promoting good governance, gender
balance and equity, accountability, efficiency and effectiveness and the
elimination of duplication of roles and responsibilities amongst ministries,
departments and other government agencies (MDAs). The need to develop
Strategic and Implementation Plans which are aligned to the MGDS was,
therefore, a felt need for Dowa District Council.
It is, however, a fact that Dowa District Council did not have adequate
financial resources for the development of its Strategic and Implementation
Plans. It is with this background that the Ministry of Local Government and
Rural Development (MLGRD) in conjunction with the Department of Public
Service Management (DPSM) sought for financial assistance from the Local
Development Fund (LDF) Technical Support Team (TST) to fund the process of
facilitating the development of Strategic and Implementation Plans for the
district.
The Ministry of Local Government and Rural Development in conjunction with
DPSM organized a working session at Pottery Lodze in Dedza in July 2011 to
allow the District Management Team members of Dowa District Council to
develop their Strategic Plans. The process involved establishment of a
Planning Team from the Council Secretariat. The process also involved
facilitators drawn from the Ministry of Local Government and Rural
Development, specifically, the Human Resources Section and the
Decentralisation Section, and the Department of Public Service Management
to guide and give direction on the assignment.
The exercise to facilitate the development of this Strategic and
Implementation Plan followed a participatory approach. The initiative was
aimed at building the capacity of the Council directors to ably develop those
plans. The delivery methodology included the transfer of new knowledge
(facilitator to participant), transfer of skills and tools for the review of
available literature and relevant documents, and the development of
Strategic and Implementation Plans. The increased capacities would
eventually enable the Council to implement and monitor its various socioeconomic programs.
3

Dowa District Council Strategic and Implementation Plan has been developed
to cover a period of five years from July, 2011 to June 2016 in line with
Malawi Growth and Development Strategy II. The Council is guided by
such national planning instruments as the District Development Planning
System (DDPS) and the Public Sector Investment Programme (PSIP) which
form the basis for the formulation of the Development Budget of the Council.
It is thus the view of this Council that the Strategic Plan will provide direction
and guidance as it performs its functions to achieve the vision and also the
targets of the district development plans and the Sector Investment Plans.
The Strategic Plan is a very important document because it sets out the
means of achieving the vision and the aspirations of the people of Dowa in
the systematic, effective and efficient manner. The Strategic and
Implementation Plan is a single document which will improve the
relationships among the various stakeholders implementing the plans at the
district level, thereby, giving an opportunity for sector devolution to be
strengthened further.
This Strategic and Implementation Plan is also a framework which provides
the basis for mobilization of resources for the implementation of different
development programmes at the district level.
It should be mentioned, however, that this Strategic Plan is the first
document of its kind in the history of Dowa District Council. The Strategic
and Implementation Plan, therefore, comes alongside the following other
documents which this Council has produced since the advent of
decentralization:

The
The
The
The

District Socio-Economic Profile of 2000, 2008 and 2010.

District Development Plan of 2002, 2008 and 2010.
District HIV/AIDS Plan of 2002.
Draft District VAPs Document of 2006.

Dowa District Council is committed to this Strategic Plan as it will assist

development stakeholders to achieve the vision of being the best reliable
provider of sustained quality socio-economic services.
C.H. Mzilahowa
DIRECTOR OF PLANNING AND DEVELOPMENT

ACKNOWLEDGEMENT
Dowa District Council is grateful to the Ministry of Local Government and
Rural Development and the Department of Public Service Management for
considering this Council to be amongst the Councils that have benefitted
from the reform programme. The Council is of the view that it has gained the
necessary skills and competences, which are required in the formulation of
the Strategic and Implementation Plans.
Special gratitudes extend to the Planning Team which was composed of the
following members:Name
Designation
Dr R. Piringu
District Health Officer
Mr E.G.N Yamikani
District Agriculture Development Officer
Mr D.M. Banda
Director of Administration
Mr C.H. Mzilahowa
Director of Planning and Development
Mr J.S.A Manyetera
District Commissioner
Mr C.K. Nyando
Director of Public Works
Mr L.F. Chakhota
District Education Manager
Mr M. Donda
Director of Finance (Acting)
Furthermore, this Council is also thanking Messers Salim Sumaisi, CHRM&D
and Darwin Pangani, CLGOD from the Ministry of Local Government and Rural
Development; and Messers Abel Mwamlima and Eric Yesaya including Mrs
Khumbo Segula from the DPSM for their technical and moral support.
Lastly, Dowa District Council would like to commend the Executive Director
of the Local Development Fund TST for the financial and material
contribution towards the development of this Strategic and Implementation
Plan.

LIST OF ACRONYMS
ADC
CBM
CEO
CHRM&D
CIDA-GAP
Assistance
CLGOD
DC
DDCs
DDP
DDPS
DEC
DLGS
DPD
DPSM
DPW
DRD
DWDO
HRD
HSC
IEC
IPC
IRDS
LASCOM
LDF TST
MEO
MDGs
MGDS
MLGRD
NGOs
NLGFC
PSIP
SEP
SIPs
TOT
TSC
VDC

Area Development Committee

Community Based Management
Chief Executive Officer
Controller of Human Resource Management and Development
Canadian
International
Development
AgencyGovernment
Project
Chief Local Government Officer for Decentralisation
District Commissioner
District Development Committees
District Development Plan
District Development Planning System
District Executive Committee
Director of Local Government Services
Director of Planning and Development
Department of Public Service Management
Director of Public Works
Director of Rural Development
District Water Development Officer
Human Resource Development
Health Service Commission
Information, Education and Communication
Internal Procurement Committee
Integrated Rural Development Strategy
Local Authorities Service Commission
Local Development Fund Technical Support Team
Monitoring and Evaluation Officer
Millennium Development Goals
Malawi Growth and Development Strategy
Ministry of Local Government and Rural Development
Non-Governmental Organizations
National Local Government Finance Committee
Public Sector Investment Programme
Social Economic Profile
Sector Investment Plans
Training of Trainers
Teaching Service Commission
Village Development Committee
6

1.0 Introduction and Background

1.1

Introduction

Dowa District with a population of 556,678 faces a wide range of

development challenges. About 54% of the population lives below the
national poverty line, and most of the social indicators which define poverty
are still poor despite the three year implementation of the first District
Development Plans of 2002/2007. As a way of contributing to poverty
reduction, the District Executive Committee (DEC) instituted a Task Force to
critically revise the District Socio-Economic Profile (SEP) which has been
updated using the District Development Planning System (DDPS) to identify
and prioritise major issues affecting the district.
The need for a Strategic and Implementation Plan for Dowa District Council
cannot be over-emphasized as it acts as a framework for providing a clear
direction for future operations and to meet its mandate. In essence this is the
first Five-Year Strategic and Implementation Plan for the period 2011/12 to
2015/16. It presents the strategic direction of the Council and the
implementation process. The objective of developing the Strategic Plan [SP]
is to provide guidance to the local authority to achieve optimal performance
in fulfilling its vision and mandate, roles and social responsibilities for
implementing the National Decentralization Programme.
It is with the above background that the MLGRD and the Department of
Public Services Management [DPSM] facilitated the development of the
Councils Strategic and Implementation Plan for the period 2011/12
2015/16.
To ensure that the needs of the communities are incorporated, in line with
the decentralization process, the district has produced a consolidated Village
Action Plans document with an analysis of issues at village, area and district
levels. The output of the whole process is the list of prioritized issues
indicated as follows:

High prevalence of HIV and AIDS and malnutrition

Inadequate planning systems

Food Insecurity

High environmental degradation

Inadequate rural infrastructure

High child and maternal mortality rates

Low revenue generation base

7

Inadequate institutional capacity

High illiteracy levels in the district
Low income among disadvantaged groups

These issues will be addressed through a set of projects and programmes

time framed over the 5 year period. To achieve significant poverty reduction,
the Strategic Plan has taken a balanced approach based on the economic
and social perspective; the argument is that social development alone,
without consideration to economic factors, cannot reduce poverty.
The development strategies of the district are also aligned to the five
thematic areas of the Malawi Growth and Development Strategy, i.e.
sustainable economic growth, social protection and disaster management,
social development, infrastructural development and good governance.
Basically this implies that the Millennium Development Goals [MDGs] and
targets are being addressed by the same Strategic Plan.
1.2

The Planning Process

This Strategic Plan has been developed in a highly consultative and

participatory manner. Firstly, a seven-day strategic planning workshop was
held which drew participants from the Senior Management team of the
Council. The facilitators conducted presentations on the Strategic Planning
process and on the status of decentralization in Malawi. The workshop was
aimed at building consensus and consolidating information got from the
members of the directorates to build on key strategic issues that would result
in the Strategic Plan.
The formulation of the Strategic Plan has taken into account the National
Policy Framework. Of greater significance is the fact that the Strategic Plan is
built around the Malawi Growth and Development Strategy. Other main
policies and strategies which have been taken into account are:
Vision 2020: - reflects the long term aspirations of Malawians and forms the
basis for the formulation of short and mid-term policies. It defines national
goals, policies and strategies that assist the government, private sector and
the society in general to improve development management.
Integrated Rural Development Strategy (IRDS): - objective is to
resuscitate the rural economies and advance the cause of rural areas as potential
engines of economic growth to contribute towards own development and to broad
national development agenda as defined in the MGDS agenda. The IRDS aims at

attaining socially cohesive and stable rural communities with viable

institutions, sustainable economies and universal access to social amenities,
able to attract and retain skilled and knowledgeable people who are
equipped to contribute to growth and development. The intention of IRDS is
8

to harness available local resources and capitalize on potential synergies

among various state and non-state programmes in order to promote and
support more rapid and equitable rural transformation. The objectives will be
achieved through strengthening coordination of key players within Local
Governments, Wards and Villages and between Central Government and
Local Governments, the Private Sector and non-governmental institutions
both at planning, financing and implementation of bankable projects.

1.3

Institutional Background of the Council

The Malawi Government inherited a decentralized system of Local

Government at independence in 1964, based on the 1962 Local Government
Act. This Act introduced local elections and devolved more powers and
functions to District Councils which among others included education, roads
and public health.
In 1967, the Government created the District Development Committees
(DDCs) which were parallel administration structures, with similar mandates
as Local Authorities. With their political support, the DDCs gradually took
over some of the responsibilities of the local authorities. In due course, this
resulted into a scramble for limited resources, with DDCs receiving a lions
share. Local Governments were sidelined in the decision making process,
despite being mandated by an Act of Parliament.
During the one party era, the Public Service was characterized by a highly
centralized decision-making process. The centre through the Ministry of Local
Government used to dictate on the Council functions such as development,
management, nomination of election candidate, and so on. Furthermore, the
capacity in Councils was very low; consequently the Ministry of Local
Government seconded civil servants to occupy key positions to man the
Councils. These civil servants were not answerable to the Councils but to
their masters at the Ministry headquarters. This frustrated development
efforts of the Councils.
With the introduction of multiparty politics in 1994, the role of the Councils
slowly began to be significantly recognized. In 1998 Parliament enacted the
New Local Government Act no. 42 and adopted the Decentralisation Policy.
The Policy and Act provided for the creation of a conducive environment for
local empowerment of the grassroots and provided the legal basis for policy
implementation, through local authorities. The new Act and Policy also allows
the masses to nominate and elect their leaders thereby participating in
decision making.

The objectives of Local Governments are to further the constitutional order

based on democratic principles, accountability, transparency and
participation of the people in decision-making and development processes.
The country had the first crop of elected Councilors under a multiparty
dispensation in 2000-2005. To date the Councils are yet to elect new office
bearers.
In line with the Decentralisation Policy and the Act, Government is now
channeling an increasing amount of resources from the national budget
directly to district, municipal or city Councils. The recently launched Local
Development Fund (LDF) provides additional financial resources for
implementing programmes and projects that address local development
needs. All these resources require a proper framework for overseeing the
implementation of such programmes and projects. This is why it is important
to understand the institutional set up of the Councils. The institutional
structure allows a district to tackle its peculiar problems and therefore
empowers it to take part in the attainment of the Millennium Development
Goals.
The Local Government System in Malawi is comprised of the Council and its
sub-committees at the top. Under the Council, we have the Area
Development Committees (ADC) and Village Development Committees
(VDC). The planning process starts at the VDC level with the formulation of
Village Action Plans which are a set of key priority needs from the village.
These are then forwarded to the ADC which is an amalgamation of all the
villages under a Traditional Authority. Having passed through the ADC, the
priorities are then consolidated into the District Development Plan (DDP). The
DDP represents the priorities of the entire district. In the formulation of the
DDP the issues are aligned to the national policies as enshrined in the MGDS
and the secretariat provides technical guidance on its formulation and
thereafter the Council approves the DDP.
Dowa District Council is made up of two bodies, namely: an elected Council,
composed of Councillors and other members; and also an administrative
body called the Council Secretariat. Whilst Councillors are elected to serve a
five year term, the Council Secretariat is managed by permanent Council
employees. The Head of the secretariat is the District Commissioner (DC)
who is a controlling officer.
Just as a Council has various Committees to deal with specific issues, the
Council Secretariat has Directorates. Each Directorate is headed by a
Director who is answerable to the DC. The following are some of the
Directorates that the new Council establishment has:
1.
Directorate of Administration
10

2.
3.
4.
5.
6.
7.

Directorate
Directorate
Directorate
Directorate
Directorate
Directorate

of
of
of
of
of
of

Agriculture, Environmental Affairs and Natural Resources

Planning and Development
Education, Youth and Sports
Finance
Health and Social Services
Public Works.

1.4 Structure of the Report

This Strategic Plan is structured into nine (9) sections and (2) annexes as
follows:Section One: Presents the introduction and briefly describes the background
to the process of formulating this Strategic Plan. It also presents the
planning process, institutional background of the Council and the structure of
the report.
Section Two presents the status of the decentralization process at council
level highlighting the sectors that have been devolved.
Section Three reviews the progress made since 1998 and also presents key
lessons learnt during the implementation of the District Plans.
Section Four presents the situation analysis and highlights the strength,
weakness, opportunities and threats of the Council.
Section Five presents the key strategic issues and challenges which the
Council experiences.
Section Six presents the mandate, vision, mission and core values of the
council.
Section Seven describes the implication of the Malawi Growth and
Development Strategy.
Section Eight presents the strategic direction highlighting strategic outcomes
and outcomes target.
Section Nine presents the Monitoring and Evaluation of the implementation
of the Councils Strategic Plan and Implementation Plan.
The last part of this report presents annexure to this Strategic and
Implementation Plan which are Outputs and Annual Outputs Targets and the
Implementation Plan; and the list of members of the Planning Team.

11

2.0 The Status of Decentralization process at the Council

level
Decentralisation is the process by which Central Government gradually
transfers some of its administrative responsibilities over public functions,
political power, and financial resources to Local Governments (Councils). This
process gives Local Governments the authority and resources to provide the
necessary services in areas under their jurisdiction.
In 2000, the Ministry of Local Government and Rural Development prepared
a ten -year implementation programme to operationalise the National
Decentralisation Policy. The first phase was implemented from 2001 to 2004
and has since been reviewed. A One-Year Crash programme preceded the
first phase. A follow-up National Decentralisation Programme was prepared
to be running from 2005-2009. Due to a number of factors this NDP II 20052009 was not officially launched and only limited progress has been attained
since. The postponement of Local Government Elections made it difficult for
the MLGRD to justify the programme to the development partners. Starting
an initiative to address the capacity issues that came out from the review of
the NDP I the MLGRD conducted a Capacity Needs Assessment that led to
the development of a Capacity Development Strategy. In order to align a
Capacity Programme to the national implementation programme the former
NDP II was updated to the present NDP II 2008-2013.
The National Decentralisation Programme II [2008-2013]
The National Decentralisation Programme II 2008-2013 has been developed
through a multiple stakeholders participatory approach. Just like the initial
programme, this revised NDP II programme was through a consultative
process under the leadership of the Ministry of Local Government and Rural
Development.
Critical guiding factors have been considered as follows:
The need to deepen decentralisation process so that fundamental socio
-economic and political transformation is achieved;
12

The need for a smooth and speedy but orderly Sector Devolution
Process;
The need to develop operational linkages between the Decentralisation
Policy and other Strategic National Policy Frameworks;
The need to improve the management of the programme activities
and;
The need to establish sound Monitoring and Evaluation Structures.

The NDP II (2008/2013) has four components as follows:

Sector Devolution
Institutional Development and Capacity Building
Fiscal Devolution and Financial Management
Local Development Planning and Financing Mechanisms.
Sector Devolution is the transfer of selected functions from Sectors, from
National & Regional Headquarters level to the Local Authorities. The
functions devolved are determined by the individual Sector. Usually these are
functions for which the Councils are better placed to implement than the
centre. To successfully transfer defined functions from central sectors and
other Ministries and Departments to Local Governments and integrate these
into Local Governments, appropriate laws and policies will be amended to be
consistent with the Local Government Act 1998. Support for Local
Governments to build their capacities to prepare by-laws that will guide the
management of the devolved functions will also have to be provided.
At the centre 11 sectors have so far prepared their devolutions plans:
Education, Health, Agriculture, Natural Resources and Environmental Affairs,
Water, Gender and Community Services, Lands and Physical Planning,
Transport and Public Infrastructure, Commerce, Housing, and Labour. Nine
sectors have prepared Guidelines to guide absorption and implementation of
devolved activities in Councils, namely: Health, Agriculture, Water, Gender
and Community Services, Transport and Public Works, Commerce, Housing,
Education, and Labour. The Councils are currently managing some devolved
functions. In addition, the budgets for 14 Sectors have been devolved to
Councils from Treasury.
Since the Decentralization Policy was enacted in 1998, the following sectors
have devolved their functions to Dowa District Council:
Health
Education
Immigration
Agriculture
Gender, Youth and Community Services
Water development
Housing
13

Commerce and Industry

Natural Resources and Environmental Affairs
Lands, Valuation and Surveys

3.0 Lessons Learnt during the Implementation of DDPs

and the National Decentralisation Programme
3.1

Review of progress made since 1998

Since 1998, Dowa District Council has put in place decentralization

structures at community level as a way of enhancing community
participation. The district has managed to establish 9 Area Development
Committees, 9 Area Executive Committees and 136 Village Development
Committees as main structures. There are other supporting structures
dealing with specific aspects under the VDC such as Village Health
Committees, Village Natural Resource Committees, and Community Based
Organisations among others.
The Council has also managed to put in place a vibrant District Executive
Committee (DEC) which provides all the technical expertise to the Council
and other stakeholders for the socio-Economic development of the district.
Various sub committees give a hand to the DEC by performing various
functions on behalf of DEC and report to it. Table 1 is a summary of
achievements and emerging issues in the district.
Table 1: Achievements and Emerging Issues
Component

Achievements

1. Legal
Reforms

The Local Government Act was

amended to;

Reconcile the term of office for

the elected members of Councils as
provided for in the Local Government Act
and the Local Government Elections Act.

Align the Local Government Act to

the Constitution on the functions of
LASCOM

A comprehensive review of the

Local Government Act was conducted.

Ministries of Education, Lands and

Physical Planning and Housing, and
Natural
Resources
(Environmental
Affairs) revised their acts in line the
National Decentralisation Policy.

Central institutions like The

National Local Government Finance
Committee and MALGA were established

2.
Institutional
Developmen
t

Outstanding Issues
/Emerging issues

Drafting of the proposed

amendments of the Local
Government Act and subsequent
passing of the amendments

Amending of various laws

so that they are in harmony with
the Local Government Act

Implement the new

organisational structures for
Local Governments

14

3. Building
a
Democratic
Culture

4. Fiscal
Reforms

5. Financial
Accounting
and
Manageme
nt

and are functional

A number of partnerships with

development partners to technically and
financially support the Decentralisation
process namely UNDP/UNCDF, ADB, GTZ
and
NORAD
were
established.
A
Government/Donor Technical Committee
that
reviews
implementation
was
established.

A
number
of
both
career
development as well as short -term
performance
improvement
capacity
building initiative have been provided to
staff both at the Council and the centre

Vehicles and equipments (like

computers) have been procured and
provided to Local Governments.

New Organizational Structures for

each Council were developed.

Human Resource Management

System was developed

More staff for Local Governments

were recruited and posted

Increased awareness of the

Decentralisation

Policy and understanding of the

role of Local Governments, elected local
officials
and
civil
society
among
Malawians

An
Intergovernmental
Fiscal
Transfer System was approved by
Parliament

General Resource Fund from

Government is being transferred to Local
Governments.

Development
Funds
including
DDF, MASAF, the NRA Road Fund, HIPIC
and the Environmental Fund are being
distributed and transferred to Local
Governments

Some sectors like Agriculture,

Gender, Commerce, Water, Housing, and
Education started direct sectoral fund
transfer

Completed preparation of final

accounts of Local Governments

Conducted auditing of some

Council accounts

Developed Financial Reporting

Guidelines

Local Governments preparing and

regularly submitting financial reports

Computerization of IFMIS in Local

The need to restructure

the management of the NDP

The need to transform

the NLGFC into a commission

The need to restructure

the MoLGRD

Ability of Local
Governments to retain staff

Open (public) debates on

Council operations

Role conflicts between

Councillors and Members of
Parliament

Central Government not

meeting the 5% GRF

Accountable institution
for devolved funds

Completion of the
computerization of accounting

The need to link the

National IFMIS and the Council
IFMIS

15

6. Sector
Devolution

7. Local
Developme
nt and
Financing
Mechanism
s

Governments

Developed an integrated Pay Roll

System

Transfer of funds to Local

Governments being published

10 Sectors (Education, Health,

Agriculture, Natural Resources and
Environmental Affairs, Water, Gender
and Community Services, Lands and
Physical Plans, Transport and Public
Works, Commerce, Housing) prepared
their Devolution Plans and 7 sectors
(Health, Agriculture, Water, Gender and
Community Services, Transport and
Public Works, Commerce, Housing)
prepared
their
Sector
Devolution
Guidelines to guide the absorption and
implementation of devolved functions

Some
sectors
commenced
(Agriculture, Gender, Commerce, Water,
Housing, and Education) transferring
some
functions
to
the
Local
Governments

Guidelines
for
managing
devolution prepared by 7 line ministries

Local Governments have started

managing some of the devolved
functions

Completed the installation of

electronic data base and preparation of
all District Socio-Economic Profiles and
District Development Plans

Increasingly
development
projects are being implemented by Local
Governments

District Councils implementing

projects as defined in the Development
Planning System

More donors funding projects

through the District Development Fund

Central Structures of the

devolving sector ministries not
drawn.

Preparation of sector
devolution plans and guidelines
for some ministries

Commencement of
transfer of sectoral funds by
some sectors

Orientation of the Local

Governments and communities
on what devolution is and its
implications for their day to day
activities

The need to come up

with specific and effective
measures for overcoming
resistance to the devolution
process

Lack of a clear devolution

strategy

Re-organization of some
line ministries has affected the
structures of the prepared
devolution plans. The need to
prepare new strategic plans in
view of the devolution of
functions

Linking of the District

Development Planning System
to the National systems

Preparation of Village
Action Plans

Creation of Local
Development Funds in Urban
Councils

The need to focus on

promotion of Local Economic
Development

Geographical focusing by
Donors not a viable approach to
funding Development Projects.

The need to update the

District Development Plans

The need to develop a

basket financing mechanism

16

3.2 Key Lessons Learned during implementation of the DDPs and

National Decentralisation Programme
3.2.1 Key Challenges
During the period 1998 to date the implementation of the National
Decentralisation Programme has faced a number of challenges. Some of
them are as follows:

Inadequate funding, staffing and lack of necessary equipment for the

provision of public services

As determined by the Constitution, local government elections must be

held within one year after general elections. This has not been done as Local
Councils have now been dissolved. This is an obvious obstacle to effective
Local Government System.

Pace in the implementation of Devolution has slowed down.

Inadequate office space to conveniently accommodate the new

structure of the Council in that offices are spread all over district.

Vacancies and Inadequacies in certain skills and capacities at the Local

Authority level.

Approved Establishments / structure for Councils not yet put into

effect/implemented

Staff and members of the Council need proper training to effectively

deliver quality services

Low Quality Service delivery due to:

Inadequate trained/skilled/experienced human resources in
District Councils,
Serious human resources capacity depletion partly due to
HIV/AIDs pandemic
Unclear career path for Local Government employees,
Misunderstanding on pension schemes between civil servants
and Local Government employees, and
Absence of a unified system of service between Local and
Central governments.

The need to ensure that District Councils get their allocations as

budgeted, due to inadequate and erratic funding to District Councils,

The need to ensure accountability and transparency at Council level on

transferred funds.

Inappropriate structures to accommodate devolved functions at both

the District Council level and below,

Absence of a mechanism to sensitize ministries devolving in the

second phase,

Inadequate linkage between decentralization and public sector reform

program,

Absence of mechanisms for monitoring implementation of devolved

functions at Council level.
17


Financing the training of central ministry officials on their new roles
following devolution of their functions.

Financing the training of District Council staff (specific areas e.g.

finance,
accounting,
planning,
administration,
human
resources
management) in order to improve performance capacity in the Councils.

Financing capacity replenishment efforts for the District Councils.

Financing revenue generation and mobilization strategies in the District

Councils so as to broaden their revenue base.

Declining overall coordination of sector devolution (Committee

meetings, enforcement of devolution plans etc.);

Absence of Devolution Plans and Guidelines for devolved sectors at

the Council level

Slow pace of implementation in some initially devolved sectors;

Some sectoral and other laws not aligned to the Decentralisation

Policy;

Absence of by-laws for managing devolved functions;

Existing sector guidelines need to be reviewed to be able to address

emerging issues:
Limited human resource capacities;
High staff turnover and vacancy rate in Local Governments;
Poor office accommodation;
Approved organisation structures and systems at LG level not effected;
Central structures for devolved sectors not aligned to the
Decentralisation process;
Established human resources management systems not effected;
Frequent and adhoc staff relocation by the Ministry of Local
Government and Rural Development
Inadequate vehicles and equipment;
Lack of decentralized payroll system.

Weak capacity for financial management, accounting and

transparency;

Delayed approval of consultants report on the revised

Intergovernmental Fiscal Transfer Formula;

Fiscal devolution not fully completed;

Currently no system in place supporting intra-district fiscal transfers;

Limited procurement skills;

Ceding of revenue to Local Governments by Central Government not

happening;

Limited revenue base of Local Governments;

Lack of adherence to guidelines on the use of revenues collected;

Central initiatives that target improvement of the local revenue base

not coordinated;

Widespread vacancies and ad hoc transfer in Finance Departments in

Local Governments.

Development Planning Systems for rural and urban Councils do not

18

fully incorporate contemporary development aspects and cross-cutting

issues of HIV/AIDS, Gender, ICT and Environment;

Weak linkages with the National Planning Frameworks, e.g. the MGDS;

Inappropriate monitoring of the implementation framework;

Low synchronisation / alignment of sector specific plans to the DDPs

(timing of plans, guidance from MLGRD);

Low implementation of activities / measures from the DDPs;

Absence of Strategic Plans of Local Governments;

Low community participation;

Low capacity for promotion and management of local economic

development at the centre and local level;

Unclear development planning and management structures below the

district Council level;

Unplanned urbanisation;

Unclear linkages between economic and social development planning

with physical development planning.
3.2.2 Key Lessons Learnt in the implementation of the National
Decentralisation Programme
In view of the above strategic challenges and issues the following are
considered vital to the effective implementation process of the National
Decentralisation Programme in the district:
The need for National Level Champion for Decentralisation
There is need for the process to have a strong political will from the top. It is
therefore critical that the Office of the President champions the
decentralisation process.
The need for sustained socio-political transformation
The decentralisation process has been pursued in an environment
characterised by the persistent influence and power struggle between
elected members of Local Governments, Members of Parliament and
Traditional Authorities1. Traditional Authorities by the nature of the social
structure enjoy a more positive image among ordinary people than do
elected members of the Local Governments. There is a strong patron-client
relation characterised by a tendency for ordinary people to look to
government to provide for them and resign themselves to poor services
provided by public officials and institutions. This observation has important
implications on the way in which the devolution process is undertaken to
empower the citizenry so that the citizens can hold public officials and
institutions accountable for their performance in the delivery of public goods
and services. Therefore there is strong need for appropriate socio-political
transformation to redress the situation if the gains and strides made in the
1

NDP I Review Report 2004

19

implementation of the policy are to be sustained and deepened.

The need for accelerating the Devolution Process
The transfer of defined functions and resources to local governments by key
sectoral ministries was slow under NDP I and yet sectoral function devolution
is at the centre of the decentralisation policy. This slow pace has been
attributed to:
Limited appreciation of the benefits of devolutionary decentralisation;
Absence of a clear political and institutional driver for the devolution
process and;
Fear among politicians and government officials of losing control over
resources.
Accelerating the transfer process will therefore be the centrepiece of NDP II.
Having an administrative champion who would ensure that there is effective
coordination of the decentralisation process at the technical level is also
critical. Due to the nature and complexity of the decentralisation processes,
the office of the Chief Secretary for the Public Service in the Office of the
President and Cabinet should take the leadership role because this position is
directly associated with the institutional reforms in the public sector that are
at the centre of the devolution process.
Need for Improved Linkage between Decentralisation and other
Policies
The 2004 review revealed that the decentralisation process was poorly linked
to major national policy frameworks such as the Malawi Poverty Reduction
Strategy (MPRS); the Public Sector Reform Programme (PSRP); Sector Wide
Approaches (SWAPs); and Sector Investment Plans (SIPs). While there were
some conceptual linkages between these frameworks and the
decentralisation process, operational linkages were found to be inadequate.
The only strong linkage was found to be with the Malawi Social Action Fund
(MASAF). This lack of strong operational linkages is detrimental to the
decentralisation process. The government has to date established a Policy
and Research Unit in the Office of the President and Cabinet whose mandate
is to ensure that all government policies are harmonized before Cabinet
approves. This Research Policy Unit reports to the Public Sector Reform
Committee.
Need for improved Management of Programme Activities
NDP I lacked effective mechanisms for managing the implementation of the
decentralisation process. The programme had seven components and the
components were implemented in a fragmented manner such that they
failed to build synergies among themselves. Although the Decentralisation
Secretariat was charged with the responsibility of managing the Programme,
some of the components required mandates and capacities that were beyond
the capacities and mandates of both the Ministry of Local Government and
20

the Decentralisation Secretariat. The Ministry of Local Government and Rural

Development will manage the National Decentralisation Programme II [200813] all the directorates playing their roles in line with their functions.
However, other institutions with relevant mandates will be involved in the
implementation of the programme.
Enhanced Monitoring and Evaluation Systems
The NDP I provided for the establishment of a Monitoring and Evaluation for
tracking the implementation of the decentralisation implementation process.
However, while a system was developed this was not fully institutionalized
because of capacity problems at national and district levels. There was no
coherent framework for linking programme-level and component-level
objectives and outputs to the implementation progress to enable effective
monitoring and evaluation. Most importantly NDP I consisted of a set of
programmes supported by various development partners with reporting
demands, which meant that monitoring was donor specific.
Sector devolution in this programme is where the central government
ministries transfer functions to the Local Governments. Essentially this
means that service delivery is placed under the responsibility of the Local
Governments with central government being left with the responsibility of
providing policy direction. The initial sectors that were earmarked for
devolution were Ministries of Agriculture and Food Security, Health,
Education, Trade and Industry, Women and Child Development, Natural
Resources and Environmental Affairs, Transport, Public Works and Housing,
Lands and Natural Resources, Irrigation and Water Development These
Ministries prepared their Devolution Plans and began the process of
transferring the defined functions and associated funds.
This component will continue to effect smooth transfer of devolved functions
to Local Governments and ensure that the Local Governments assume their
roles and responsibilities. The following table outlines the roles and
responsibilities of the MLGRD, the Local Governments and the devolving
sectors.
Institutional Development and Capacity Building
A clear institutional structure, sound management tools, and human resource
capacity at national, district and local levels are critical to the success of the
decentralisation process.
An appropriate functional structure for each Council and human resource
management systems were developed during the NDP I but were only
partially implemented. Capacity in areas of local government management,
financial management, local development planning and management was
also developed. However, there is need for implementation of the structures
at local government level that:
provide for effective management of the devolved functions,
21

attract and retain staff through acceptable Human Resource

Management systems,
provide more appropriate office space,
vehicles and equipment to accommodate and support management of
the devolved functions.

Fiscal Devolution, Accounting and Financial Management

Fiscal Devolution is concerned with the determination of the level and
modality of financing for devolved functions. It is therefore a critical
component to the success of the decentralisation process. For devolution to
succeed there must be a clear and strong fiscal relationship between central
and Local Governments in terms of funding for devolved functions, revenue
mobilization powers, resource allocation mechanisms, as well as
management and accounting of funds.
During the implementation of NDP I [2001-2004] Parliament approved an
Intergovernmental Fiscal Transfer System to run for three years. Government
has since reviewed the formulae for existing and also developed some new
transfer funds to Local Governments, all of which will be subjected to the
approval process. New Funds include the anticipated Local Development
Fund (LDF) and the NRA Road Fund, and the Environmental Fund. Treasury is
funding Local Governments directly in respect of the following sectors,
Agriculture, Health, Gender, Commerce, Water, Housing, Education,
Environment and Forestry. The revised intergovernmental Fiscal Transfer
Formula also includes an Intra-District resource allocation mechanism.
An Integrated Financial Management Information System (IFMIS) for Local
Governments is planned to be developed and subsequently used. A study to
help Local Governments improve their revenue base through access to ceded
revenue in compliance with the Decentralisation Policy was conducted and
its recommendations are yet to be adopted by GoM.
However, as Local Governments take on increased functions and
responsibilities from central government, the revenue and expenditure
estimates including the General Resource Fund (GRF) for the recurrent and
development budgets have to be linked to the Local Development Plans.2
Local Development Planning and Financing Mechanisms
Local Development Planning requires that development at local level is fully
under the control of the community members. This means that development
plans will be initiated at community level by the designated community
structures through the Local Council to the national level structures.
Local Development Planning and financing however, has in the past been
biased towards social infrastructure development with limited attention to
2

GRF is unconditional and can be used for both recurrent and capital expenditures.

22

promotion of Local Economic Development. There is need to broaden the

planning framework so that it includes issues of physical development
planning and local economic development. There is further need for the
District Development Planning System to incorporate emerging crosscutting
issues, especially Gender, HIV and AIDS, ICT and Environment.
Specifically, in view of the DDP and Decentralization process the district has
learnt the following lessons:
The absence of the Councilors creates a gap in the system
Normal and coordinated operations of the Council is depended on
adequate office space
For smooth operations of the Council, the line ministries have to fully
devolve the functions as opposed to current scenario where
functions are devolved without corresponding resources.
Harmonised reporting system is vital in the operations of the Council.
Adequate resources are instrumental in the implementation of
decentralization process

23

4.0 The Situation Analysis (SWOT Analysis)

This part of the report highlights the internal and external environment
assessment of the Council using the SWOT Analysis technique. The analysis
has taken advantage of information got from some review reports, feedback
received from staff members within the Council and contributions received
during the Strategic Planning Workshop.
It considers the internal (strengths and Weaknesses) and the external
(Opportunities and Threats) factors that are most pertinent to the Council in
particular.
4.1
STRENGTHS

The Council has financial support from Central Government

It has structures in place

It has qualified and skilled human resources

There is good relations between community and the Council

There is existence of Social Economic profiles and District

Development Plans

The Council is backed by legal mandates

4.2

WEAKNESSES
The Council has capacity gaps
Inadequate and poor infrastructure
There is inadequate resources
There is poor coordination between sectors
Poor mindset among staff members in the Council
Absence of Councilors in the Council
Weak enforcement of bye-laws at Council level
Dual reporting of sectors
There is resistance to change
The Councils over reliance on central funding.

4.3

OPPORTUNITIES
There is proximity to the community
Willingness of community to undertake programmes
The Councils has political support
There is existence of development partners
There is availability of policy framework
Availability of business initiatives
Availability of natural resources.
24

4.4
THREATS

Political manipulation/interference

Global financial crisis

Climate change and natural disasters

Erosion of self-help spirit within the community

Central Government directives that are uncertain

Erratic and inconsistent funding that could

implementation of the plans.

affect

the

5.0 KEY STRATEGIC ISSUES/CHALLENGES

The District Council has identified 10 development issues from a thorough
situation analysis and these issues provide the basis for the district
development objectives and Strategic Plan.
The following are the district issues in order of priority.
1. Low Agriculture production Crops and Animals
2. Limited access to safe water
3. High maternal and infant mortality rate.
4. Low quality of education
5. Poor accessibility
6. Low security Service and coverage
7. High Environmental degradation
8. Increase of OVCs
9. Low levels of income
10.High illiteracy levels
11.Low Participation in Development Activities
12.Low early learning and simulation Services

6.0 Objectives and Strategies for Development

In line with the MGDS which is the overall government policy aimed at
reducing poverty by achieving economic growth and development, the
district Council has prepared strategies to deal with the pressing needs in the
community. These needs have been prioritised in order of severity and
strategies are hereby proposed in line with national and district objectives.
These projects are conceived in tandem with Thyolo District Councils Vision
and Mission statement as stated below:
6.1 Mandate
25


To make policy and decisions on local governance and
development for the district

To consolidate and promote local democratic participation

To promote infrastructural and economic development through

District Development Plan

To mobilize resources within and outside the District

To maintain peace and security in the district in conjunction with

the National Police Service

To make by-laws which facilitate its functions

To appoint, develop, promote and discipline its staff

To cooperate with other Councils to learn from their experiences

and exchange ideas

To perform other functions such as registration of births and

deaths and participate in the delivary of essential services as may be
prescribed by the act of parliament
6.2 Vision:
To become the best reliable provider of sustained
quality socio-economic services
6.3 Mission: "To provide socio-economic services through active
participation of all stakeholders in order to empower the community and
improve their quality of life in the district.
6.4 Core Values.
Effectiveness and efficiency
Transparency and accountability
Trustworthiness
Client focused
Participatory decision making
Equal opportunity
Collaboration and Coordination
7.0
7.1

Implications of the Malawi Growth and Development

Strategy and Decentralization on the Council
Malawi Economic Growth and Development Strategy
The Malawi Growth and Development Strategy (MGDS) is an
overarching strategy for the country. It provides a policy framework
that addresses both economic growth and social policies and how
these are balanced to achieve the medium term objectives for Malawi.
The strategies contained in the MGDS have been developed based on
past lessons and experiences of the MPRS implementation while taking
into consideration the current political, economic and social
developments in the country. It has also been aligned with existing key
26

sectoral strategies and policies from both the private and public
stakeholder institutions
In line with the MGDS which is the overall government policy aimed at
reducing poverty by achieving economic growth and development, the
Council has prepared strategies to deal with the pressing needs in the
community, documented in the Council Strategic Plan. The Malawi
Growth and Development Strategy is based on five thematic areas and
these are:-

7.2

Theme One: Sustainable Economic Growth. This is a priority for

Malawi in the medium term and its rationale is to create wealth for
the nation and enable the poor to determine their economic destiny,
share in the ownership and management of the countrys wealth, be
food secure and participate in economic activities.

Theme Two: Social Protection. This aims at protecting the

vulnerable and mitigating the impacts of disasters, recognizing that
there will continue to be a proportion of the population that will be
vulnerable as we pursue economic growth.

Theme Three: Social Development. This recognizes that a

healthy, educated and productive population is necessary to
achieve poverty reduction and sustainable economic growth.

Theme Four: Infrastructure development which is recognized

as a prerequisite for growth and poverty reduction and

Theme Five: Improved Governance, which underpins the

achievement of all the growth and social objectives. These are the
main strategic components that are contained in this volume in the
form of a detailed matrix for each of the strategy areas.
Decentralization and Governance

The Decentralization Policy provides for the establishment of Local

Governments as the basis and a framework for the devolution of
functions, responsibilities, powers and resources to District Assemblies.
Decentralisation policy defines the responsibilities that the council
27

should carry out. These have been reflected in the mandate that the
council has to implement as defined above.

8.0 OUTCOMES

AND

OUTPUTS.

Dowa District Council

STRATEGIC OUTCOME

TARGET

1.0 Food Insecurity

1.1 Reduce Food Insecurity from 23% to

10% by 2016

2.0
Inadequate
rural
2.1 To improve access to social services by
infrastructure for priority social
70% by 2016
services

3.1 Reduced child/infant and maternal

3.0
High child and maternal mortality rates from 68/1000 and 98/1000 to
mortality rates
45/1000 and 50/1000 respectively
by 2016

4.0 High illiteracy levels in the 4.1 Reduced illiteracy levels from 21% to
district
15% by 2016

5.0
High
degradation

Environmental 5.1 Reduce environmental degradation by

2016

6.0 Low income among

disadvantaged groups

7.0
base

the 6.1 Improved income among disadvantaged

groups by 2016

Low revenue generation 7.1 Improve revenue generation base by

2016
28

8. 0
systems

Inadequate

planning

8.1 Improve planning systems by 2016

9. 0
Inadequate institutional
9.1 Improve institutional capacity by 2016.
capacity

10.0 High prevalence of HIV and 10.1 Reduce prevalence of HIV and AIDS
AIDS and malnutrition
from 12 to 4% and malnutrition by 2016

29

9.0

Monitoring and Evaluation

The development of the Strategic and Implementation Plan is the first critical
step for ensuring that the performance of the Council is improved in relation
to service delivery. This, however, cannot be achieved unless a framework
for checking progress in the implementation of the plans is in place. Thus
the monitoring and evaluation will be an integral part of the implementation
of the Councils Strategic Plan as it will enable it and its collaborative
partners assess and see whether the strategic objectives are being
implemented as planned. Periodic evaluations will enable the implementing
units to determine whether the plan has achieved its intended outcomes. It
is therefore important that the Monitoring and Evaluation is developed and
put in place as it will attempt to provide solutions to the problems
encountered and propose measures for the Council to effectively achieve its
objectives in line with the MGDS.
This Monitoring and Evaluation is based on the implementation plans that
have been developed which are reflected as Annex 2 to this report. The M &
E focus will be on performance monitoring in terms of whether the agreed
upon outputs and annual outputs targets are being effectively and correctly
implemented. Furthermore, it will focus on whether the required resources
(inputs) are provided in a timely manner, the outputs are being realized and
ultimately the outcomes are being achieved, and whether there is any
impact on services delivery in line with the aspirations of the Malawi Growth
and Development Strategy and the MDGs. The Monitoring and Evaluation will
also assist the Council to identify challenges that may hinder the smooth
implementation of the Strategic and Implementation Plan. The M & E will
thus allow for regular and consistent tracking of performance through the
review of the various elements of each sector, section or unit in accordance
with the implementation plans.
This five year strategic plan will therefore be subjected to annual reviews.
Data will be gathered periodically during the course of implementation for
informed decisions during the reviews. Adjustments will be made where
necessary, at the end of each review to reflect realistic path of the plan. At
the end of the five year timeframe, there will be an evaluation to check how
the plan has been implemented whether successfully or not. Data gathered
throughout the five years will assist in the evaluation process.

30