Uganda's Baseline Study: Community Involvement in Budgeting & Implementation, Summaries of Decision Making

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OXFAM BRIEF BASED ON FULL BASELINE REPORT:

APRIL 20, 2020

RURAL ECONOMY CONSULTS INTERNATIONAL P.O. BOX 21305 KAMPALA

BWEYOGERERE KAMPALA

ACCU Anti-Corruption Coalition Uganda ACHPR African Charter on Human and Peoples’ Rights ACODE Advocates Coalition for Development and Environment ADB African Development Bank AGODA Albertine Graben Oil and Gas Districts Association ATIA Access to Information Act BCC Budget Call Circular BMAU Budget Monitoring and Accountability Unit CBR Central Bank Rate CBS Central Broadcasting Service CG Central Government CHOGM Commonwealth Heads of Government Meeting COSASE Committee on Statutory Authorities and State Enterprises CSCO Civil Society Coalition on Oil and Gas CSBAG Civil Society Budget Advocacy Group CSO Civil Society Organization DENIVA Development Network of Indigenous Voluntary Association DGF Democratic Governance Facility DLG District Local Government DP Democratic Party DPs Development Partners DRM Domestic Revenue Management EACOP East Africa Crude Export Pipeline EITI Extractive Industries Transparency Initiative FBO Faith-Based Organization FDC Forum for Democratic Change FGD Focus Group Discussion FINMAP Financial Management & Accountability Programme GAPR Government Annual Performance Reports GCIC Government Citizens Interaction Centre HUMC Health Unit Management Committee IDF Independent Development Fund IFI International Financial Institutions IMF International Monitory Fund JLOS Justice, Law, and Order Section KCCA Kampala Capital City Authority KII Key Informant Interview LGA Local Governments Amendment LGAC Local Government Account Committee LGPAC Local Government Public Account Committee LGs Local Governments MDAs Ministries, Departments and Agencies MEMD Ministry of Energy and Mineral Development MoFPED Ministry of Finance, Planning and Economic Development MoGLSD Ministry of Gender, Labour and Social Development MoLG Ministry of Local Government MoLG Ministry of Local Government MSC Multi Sector Group NBS Nation Broadcasting Service NDP National Development Plan NGO Non-Government Organization NODPSP National Objectives and Directive Principles of State Policy NRM National Resistance Movement OAG Office of Auditor General OPM Office of the Prime Minister PAU Petroleum Authority of Uganda PEFA Public Expenditure and Financial Accountability PFM Public Financial Management PFMA Public Financial Management Act PPDA Public Procurement and Disposal of Public Assets PSA Production Sharing Agreement SDG Sustainable Development Goals SMS Short Message Service SWGs Sector Working Groups TOR Terms of Reference UNRA Uganda National Road Authority URA Uganda Revenue Authority VFM Value for Money WSSD World Summit on Sustainable Development List of Acronyms i

Oxfam in Uganda is implementing the NORAD II Project in Uganda’s districts of Rakai and Buliisa with partners the Civil Society Budget Advocacy Group (CSBAG) and the Civil Society Coalition on Oil and Gas (CSCO). The three-year project focuses on building coalitions of active citizens and communities affected by extractive industries. The goal is to help them influence governments to change policies and practices to benefit citizens. Oxfam conducted a baseline study in the districts of Buliisa and Rakai to better understand citizen engagement with government. The sample consisted of 385 respondents, of whom 61 percent were from Rakai and 39 percent, from Buliisa. The findings will inform the design of interventions to improve citizen participation in governance and service delivery processes. The study applied qualitative and quantitative approaches and cross-sectional study design for data collection and analysis. The baseline survey found that community members felt they had little influence on how public authorities design and implement fiscal policies, for example, those that shape local health and education service. Similarly, community members also felt they had no influence on policies that govern oil and gas extraction from their areas—particularly those policies that affect the local environment, local employment rates, and mining companies’ fiscal obligations to their hosts. To have any influence, citizens must actively engage those that govern them. But this is not happening. Survey respondents said effective participation is hindered by citizens’ lack of skills in engaging the government, poor communication between public officials and their constituents, and citizens’ lack of trust. Citizens also complain that they are subject to government intimidation. To change this, CSOs engaged in formal and informal dialogue with international finance institutions (IFIs), private companies, and government decision makers. CSOs recorded some positive results in proposed approaches to improve service delivery and influencing decision-makers to consider the interests of poor and marginalized people. CSO engagement with oil companies has been less successful. Citizens overwhelmingly feel that oil companies are not committed to address community concerns. Meanwhile, oil companies complain that citizens demand too much from them. If citizens’ perceptions are accurate, their lack of influence on public financial management and the extractive industries is concerning. For example, only 7 percent of community members said that they were consulted during the formulation of laws and policies, and only 24 percent of the respondents knew that they have a legal right to participation in the formation of those laws and policies. There are some bright notes to report in terms of Uganda’s accountability and transparency. An assessment by the Public Expenditure and Financial Accountability (PEFA) program, which was initiated in 2001 by seven international development partners, has given Uganda high marks when it comes to providing information on the national budget. Indeed, Uganda has developed a robust legal, policy and institutional framework to support transparency and accountability in extractives and public finance management. For example, at national level, the Ministry of Finance, Planning and Economic Development (MoFPED) publishes several annual budget documentations. Also, Uganda in August 2020 joined the Extractive Industries Transparency Initiative (EITI), an international standard for openness around the management of revenues from natural resources. Uganda’s first EITI report is expected in February 2022. The EITI aims at reducing poverty among natural resource countries by improving accountability and transparency in the payments and receipts of natural resource revenues. Still, there are gaps in the implementation and enforcement of the laws that undermine transparency and accountability in the extractive industries. For example, disclosure of production-sharing agreements is hindered by confidentiality clauses that block public access to vital information on contracts. This study offers several recommendations for stakeholders to address the challenges discussed above. They include:

• Develop and implement programs aimed at enhancing information accessibility and literacy;
• Enhance citizens’ awareness of their roles, responsibility, and rights in fiscal governance in the extractive industries;
• Enhance transparency and accountability in extractive industries, with respect to oil and gas;
• Strengthen planning, monitoring, and feedback for effective service delivery; and
• Strengthen CSOs’ independent budget analysis and participatory public expenditure tracking programs. ii

Executive Summary

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1.3. Drivers of Change in

Tax Justice and Revenue

Accountability

Oxfam defines participation “as a way of engaging poor people in joint analysis and the development of priorities” with the ultimate goal of fostering the existing capacities of local, poor women and men and to increase their self-reliance, control of project results and integrating them in the decision-making processes and structures that shape their lives.^2 Clearly, people are more likely to participate in public affairs if they think they can make a difference.^3 The converse is also true.^4 As a result, it has been suggested that one of the most important determinants of effective citizen participation is their perception of the entire process, including responses to their consultation.^5 And their perception is likely influenced by several factors, including their access to information, their understanding of their rights and ability to act on them, and the quality of services delivered.^6 Public participation in local governance has multiple benefits: It enhances transparency and local accountability, and it increases the likelihood that solutions will fit local problems.^7 Moreover, participation leads to improved service delivery and fosters sustainability^8 and a sense of community ownership.^9 In Uganda, there are documented instances in which citizen participation through the local council system has promoted a great sense of ownership of local development projects.^10 However, citizens’ participation in service delivery in Uganda is still quite low due to the limited capacity of community members and elected officials.^11 The recent National Service Delivery Survey confirms this observation, noting that at a national level, more than half of the households (53 percent) are not involved in the decision-making processes of development projects at all. This situation is more acute in urban areas (59 percent) than in rural areas (51 percent).^12 Fiscal governance is an element of fiscal responsibility and can be defined as a set of rules, regulations, and procedures that influence the fiscal policy preparation, approval, implementation, and monitoring.^13 Citizen participation in fiscal governance— that is, the different of ways in which the public directly interacts with public authorities on fiscal policy design and implementation—is accepted as a critical link in the chain between fiscal transparency and better fiscal and development outcomes. Citizen participation in fiscal governance does not only involve public financial management (PFM) around the annual budget cycle, but also includes new policy initiatives or reviews that extend over a longer period.^14 Participation can take many forms, including face-to-face and written consultations,^15 and include:

• Budget formulation, encompassing planning for the use of the coming year’s resources in accordance with policy priorities whereby broad policy goals are translated into financial targets and proposals;
• Budget approval, involving the debating and enacting the proposal into law;
• Budget execution, in which resources are collected, disbursed and spent; - Accounting and reporting, whereby each spending agency records its expenditures and reports how the budget was implemented; and - External oversight, in which an independent government body reviews the government’s revenue collection and spending, and issues findings to Parliament on the execution of the budget and the strength of the PFM systems.^16 According to the OECD, stakeholder participation in the budgeting process reduces the clientelism—the exchange of goods and services for political support— common in most developing countries.^17 It also increases the chances of allocating more resources to those areas more in need^18 and creates a forum that enables low-income citizens and marginalized groups to advocate for themselves. Additionally, transparency and accountability are essential for the effective and efficient mobilization of domestic resources and managing their use by government.^19 Governance systems that are transparent, responsive, participatory, and accountable ensure that benefits and services are delivered to the citizens who need them most, especially the poor and marginalized.^20 Accountability promotes local democracy, arouses more citizen interest in how services are delivered, and increases the capacity of local councilors to serve their communities in accordance with their preferences. For the accountability to work, certain conditions must be met, including transparent access to information, reliable accounting systems, and an independent media and judiciary.

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1.4. Legal Framework and

Public Participation

Internationally, this right to participation is provided under the Universal Declaration of Human Rights, particularly the principle of self-determination that is embodied in Article I of the Charter.^21 Similarly, the UN Conference on Sustainable Development (Rio+20), 2012, emphasizes citizen involvement in their governance.^22 At the regional level, Article 13 of the African Charter on Human and Peoples’ Rights (ACHPR) states that: i. Every citizen shall have the right to participate freely in the governance of his country, either directly or through freely chosen representatives in accordance with the provisions of the law; ii. Every citizen shall have the right of equal access to the public service of his country; and iii. Every individual shall have the right of access to public property and services in strict equality of all persons before the law. National Legal and Policy Framework Uganda has enshrined citizens’ involvement and participation in influencing public policy and governance as a human right 23 in the 1995 Constitution of Uganda. As part of the National Objectives and Directive Principles of State Policy (NODPSP), the Constitution provides that “the State shall be based on democratic principles which empower and encourage the active participation of all citizens at all levels in their own governance.” Article 1 states that citizens’ power is central to the governance and management of public affairs of the country.^24 Article 38 categorically makes citizen’s involvement and participation in influencing public policy and governance a human right. Similarly, the Constitution provides that all authority in the State emanates from the people of Uganda, who shall be governed through their will and consent.^25 Provisions on decentralization are found in Chapter II, with some provisions relating to social accountability. Article 176 (1), Chapter II, provides that the system of local government in Uganda shall be based on the district as a unit, under which there shall be such lower local governments and administrative units as Parliament may by law provide. The NODPSP further provides that the composition of government shall be broadly representative of the national character and social diversity of the country.^26 Relevant to this analysis is Objective XXVI, which provides that all public offices shall be held in trust for the people and that all persons placed in positions of leadership and responsibility shall be answerable to the people. It further states that all lawful measures shall be taken to expose, combat and eradicate corruption and abuse or misuse of power by those holding political and other public offices.^27 Local Government Amendment Act, 2015: The act—preceded by the formulation and implementation of the 1987 National Resistance Council and Committees Statute, the launch of the decentralized local government in 1992, and the 1997 Local Government Act (LGA)—accelerated the devolution of powers to local government and increased citizen participation. Section 2 of the LGA defines its objectives, which include the objective to give full effect to the decentralization of functions, powers, responsibilities, and services at all levels of local governments.^28 This is in addition to ensuring democratic participation in, and control of, decision-making by the people concerned,^29 as well establishing a democratic, political- and gender-sensitive administration in local governments. Indeed, the above objectives underscore the aspirations of community participation, service delivery and affirmative action for marginalized groups. This sets the principles and procedures for a sound fiscal policy and macroeconomic management; the processes for the preparation, approval, and management of a transparent, credible, and predictable annual budget; the mechanism for the operation of the Contingencies Fund; the mechanisms for cash, assets, and liability management; reporting and accounting systems, and internal controls. The Act also provides that the proposed annual budget should be prepared in consultation with the relevant stakeholders,^30 taking into consideration balanced development, gender, and equity responsiveness.^31

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2.1. Research Design

The study adopted a mix of qualitative and quantitative approaches to inform study recommendations. The quantitative approach included a cross-sectional study design that facilitated the generation of data at a specific time the study was undertaken and enabled the generation of numerical data that allowed comparison of variables to establish possible associations. The qualitative methods included Focus Group Discussions (FGDs), key informant interviews, documentary review and analysis, and data management and analysis. Qualitative approaches assisted the researchers with understanding the underlying causes of citizens’ participation— and lack of participation—in local development projects. A literature review on participation was also conducted.

2.2. Sites and Scope of

the Study

The study was undertaken in Buliisa and Rakai districts in Uganda between October and December 2019. In each of the districts, two sub-counties were selected by the research team in consultation with Oxfam. In Buliisa District, the study was undertaken in the two sub-counties of Ngwedo (including the parishes of Ngwedo, Muvule, Avogera and Nile) and Buliisa (including the parishes of Buliisa, Bugana, Nyamitete, and Kakoora). Within Rakai District, the study was undertaken in the sub-counties of Kifamba (in the parishes of Kabala, Kifamba, Kawunguli and Kisaasa) and Lwanda (in the parishes of Kiyovu, Bitabago, Kanoni, Kasensero and Lwanda. The unit of analysis was the household. The survey engaged key stakeholders and partners, including religious leaders, local councils, youth, households, financial institutions, private sector actors in the oil and gas sector, and CSOs.

2.3. Data Collection Procedes

2.3.1. Sample Size and Selection The sample size for the study was generated using the Krejcie and Morgan Table (1960) (see Appendix), which helps researchers determine the right population Table 2: sample size Buliisa Buliisa 3,216 150 Ngwedo 3, Rakai Kifamba 3,131 235 Lwanda 6, Total 15,991 385 District Sub-country No. of Households Sample (Source: National Population and Housing Census, Buliisa & Rakai districts, 2017). representative sample size with confidence levels of 95 percent to 99 percent. The two sub-counties from each of the two districts were chosen by Oxfam and based on the project scope. This formed the target population from which the sample was drawn. As illustrated in Table 2, below, the overall sample size for this study was 385 households. Samples per sub-county were calculated based on the area’s general population, as estimated in Uganda Bureau of Statistics records. Parishes and villages were randomly selected from the sampled sub-counties. Within the sampled villages, 385 households were also randomly sampled, though there was a conscious effort to achieve gender balance in the number of those interviewed.

METHODOLOGY AND APPROACH

Page The study purposely included in its sampling key informants from the Uganda Revenue Authority (URA); district local governments (DLGs); CSOs; oil companies; and ministries, departments, and agencies (MDAs). Key Informants provided expert assessment as to what extent community members felt: (1) their voices influenced decision- making on fiscal governance and extractive industries; (2) they can meaningfully engage decision-makers on revenue and public financial management; and (3) there is adequate transparency and accountability in domestic resource mobilization and the management of public financial resources. 2.3.2. Household Survey To collect quantitative data, a structured household survey instrument was designed by the consultants with approval from Oxfam. The questionnaire captured information on the general characteristics of households, including: gender, age, level of education, household’s size, and livelihoods. Twenty research assistants, including eight females and 12 males, were recruited and trained to administer structured questionnaires among randomly selected household heads in the project intervention areas. Experience in social research, the ability to communicate in the local language, gender and cultural sensitivity, and education level were key considerations in selecting research assistants. 2.3.3. Detailed Documents and Literature Review A preliminary review of documentation was conducted during the development of the technical proposal and continued throughout the baseline evaluation process. Some of the documents reviewed included: NORAD project documents, National Oil and Gas Policy, 2018; Local Content Policy for the Oil and Gas Industry, 2018; Petroleum Upstream and Midstream Act, 2013; Petroleum Regulations, 2016; Value for Money audits for the extractive industry; Public Finance Management Act, 2015; among others. The literature review was supplemented by interviews and other sources, including field data. For qualitative analysis, data from all the FGDs and key informants were considered. 2.3.4. Key Informant Interviews Semi-structured interview guides were developed by the consultants with approval from Oxfam staff. These were used to collect data from key informants, including officials from who the URA, the Petroleum Authority of Uganda (PAU), DLGs, CSOs, oil companies and other actors in the oil and gas sector, and IFIs. 2.3.5. Focus Group Discussions For qualitative data collection, FGDs were conducted using question guides to facilitate discussion. During the survey, 11 FGDs (two for general community members, three for youth, three for women, and three for men), each comprised of10 to 14 members, were conducted. In total 64 people, including 33 women and 31 men, participated in the FGDs. The discussions enabled the research team to explore the community’s perception of citizen participation in the fiscal governance of the extractives sector, as well as the capacity of CSOs to engage IFIs, private companies, and government. The discussion also explored citizen perception of local and national government on transparency and accountability practices in domestic resource mobilization and management of public financial resources. 2.3.6. Data Quality Management and Analysis Experienced data coders were trained using the household survey instrument. A coding sheet was then jointly developed with the statistician and data coder; Excel package templates were designed for data capturing. In the templates, appropriate error traps and validation routines were built-in to ensure that data coding and entry errors were kept to a minimum. After the data were entered and cleaned, printouts of the raw data were made and compared the actual questionnaire entries. After further cleaning the data, the statistician analyzed the data to further ensure the accuracy and consistency of the data. The verbatim responses were post-coded by item in their raw form. This assisted in mapping out patterns in responses and then used to strengthen the quantitative findings from the household survey.

2.4. Challenges

The biggest challenges encountered by the consultants during the study was the lack of financing; Oxfam did not offer advances until the final report was approved. Additionally, field data collection, especially in Rakai District, was disrupted by heavy rains which flooded most of rural areas. The team had to suspend field data collection for some time until roads were accessible. Another challenge in conducting the baseline study was the distrust of community members. The general sense is that the government—and the oil companies—are to blame for a delay in compensating the community for crops and property damaged by the oil and gas development. The consultants found they had to assuage public anxiety about participating in the baseline study.

Page Table 3: Descriptive Statistics of the Demographic Data Survey Findings, 2019

were males

were female. Given this, it’s clear that projects looking to improve citizen engagements in governance and public policy should design gender-specific interventions to foster inclusiveness.

were aged 31 to 50 years;

35% 18 to 30;

51 to 65; and

65 and older. The relative youth of the respondents suggest that many are active citizens with the potential and interest to engage decision- makers.

were married;

15% single;

widowed;

divorced.

32% of

households were between five to seven members

two to four;

38% eight or

more. The large households imply higher level of dependence and poverty.

45% had attained

primary education;

32%, secondary

education;

11% no formal

education; and

11%, higher

levels of education. The relative high education suggests that citizen have the potential to understand, appreciate, and participate in issues related to governance and service delivery.

73% are crop

farmers;

business people;

5%, livestock

farmers;

3% have

more formal employment;

2% boda-boda

drivers

1% casual

laborers. To put the demographics in perspective, consider: Gender (^) Age Marital status Household size Education Livelihood

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Attend Meetings Attend Barazas Evaluation of Services InfluenceAgenda Involvement in Planning Elect Leaders Follow up Projects

Male Female 71% 19% 9% 14%^ 18% 26% 14% 77% 15% 6% 8%^ 10% 25% 11% 3.2.2. Perception of the Participation of Women, Youth, and the Disabled Men tend to dominate community meetings, giving short shrift to women, youth, and the disabled. During FGDs, it was revealed that men are dominant during meetings and other participatory events. FGD with men pointed out that women are timid when it comes to speaking in public and as such, they have not effectively used the existing space to express their views. Equally, there is no special consideration for disabled persons because there is a general feeling that the disabled have nothing to offer. Figure 1: Citizen Perception on the meaning of participation Figure 2: Perception of Participation by various groups 10% Men Women Youth Disability

Low Medium High 23% 46% 59% 71% 26% 35% 25% (^) 21% 51% 19% 16% 8% The lack of participation by women, youth, and the disabled was summed up clearly by one participant of a youth focus group in the village of Bugana, in Bugana Parish, Buliisa District: “Women are not educated, so they lack confidence to express themselves. Even School Management Committees are supposed to have women representation, but to get them it’s a challenge. Because of the English language and education, they shy away. The few who are active are very helpful. They do participate by raising complaints, especially those related to improving access to health and education. The youth have vigor on governance of our communities, raise concerns on unemployment and poverty, but they are not supported well. The disabled do not have space. It is only the old men who dominate the meetings.”

Page Figure 5: Perception of Community Influence on budget processes 3.2.4. Community Perception on Influencing Decision-Making on Oil and Gas Extraction The study revealed that most community members feel that their views have little influence on decision-making in the oil and gas industry. Overall, 51 percent of the respondents did not know whether their concerns on planning for development of extractives were taken seriously; 30 percent were unsure; and 18 percent believed their concerns are considered. However, 29% of community members felt they could influence land acquisition; 23 percent, routing and surveying; 14 percent, resettlement planning; 13 percent, goods and service supply; 12 percent, 5% Budget Implimentation Evaluation of Services Budget Monitoring Budget Appraisal Budget Preparaton

13% 15% 17% 14% 7% 7% 19% 19% 16% 12% Male Female Figure 6: Perception of Community Influence on Oil Sector 5% Routing and Surveying Goods Supplies Land Acquisition Resettlement Employment Environment Planning Management of Benefit Livelihood Compensation Restoration Laws/ Lawmaking

23% 29% 14% 13% (^) 12% 12% 11% 9% 7% 2% environmental issues; 9 percent, livelihood; and 2 percent, polices and laws related to oil and gas (Figure 7). Communities perceive that they have very little influence when it comes to oil and gas. In FGDs, participants expressed their apathy toward issues of oil and gas exploration due to their perceived lack of power. “In our first meeting, the implementing company valued a coffee tree at 50,000/= for five years, but the government official later came around and advised us to reduce to 30,000/=. The compensation itself is taking long, yet we are not using the land. When it came to our land titles, they were taken for photocopy, but we have not received them back. On compensation, it was initially agreed that implementing company will take the responsibility of relocating the cemeteries but afterword, they refused.”

• FGD participant in Luteebe Village, Kanoni Parish, Lwanda Sub County, Rakai District

Page Table 4: Community perception on adoption of health and education proposal 3.2.5. Adoption of Health and Education Proposals Communities felt a continued lack of influence within the health and educations spaces. Table 4 shows that 74 percent of the respondents disagreed or strongly disagreed that the local government listens to their views, and 12 percent were unsure. Fourteen percent agreed or strongly agreed that local government listens to their views. When asked whether local government considers community proposals for health and education during development planning, 60 percent said it does not; 34 percent were unsure; and 6 percent believed it does. Parameters % response (overall)n= Rakai n= Buliisa n= Female n= Male n= Local government listens to our views concerning the development of our community Strongly Disagree 18% 20% 16% 19% 17% Disagree 56% 58% 54% 59% 53% Not sure 12% 12% 12% 10% 14% Strongly Agree 10% 7% 12% 8% 11% Agree. 4% 3% 5% 4% 4% Do you believe that your budget proposal on health and education were adopted at sub county, district or national levels? Yes 6% 8% 6% 6% 7% No 60% 57% 62% 61% 59% Not sure 34% 35% 33% 34% 33% Source: Study Findings, 2019 Community members’ sense of being ignored is particularly acute in matters of budget expenditure. “We need more health centers in our area,” said one woman participating in an FGD in Avogera Village, in the Ngwedo Sub-County, in Buliisa District. “They are upgrading the current health center to Level 3 to capacitate it to the whole sub-county and to serve people from other sub-counties, such as Kigwera, Buliisa, and Buliisa Town. During the agriculture and rain seasons, the whole health center is flooded with patients. You find that the drugs meant for a given population are used for the entire district.” The sense of being ignored was similar on matters of education. Overcrowded classrooms—some with 80 to 90 students, high dropout rates caused by students’ long treks, and the promotion of unprepared students, remain unaddressed issues, according to a church pastor in Ngwedo Sub-County, Buliisa District. “As far as education, we do not have any recognized government school within our community, and this makes it hard for our children to study because of the long distances, “ said the pastor. District officials pushed back on these complaints, saying that all proposals are discussed in the different forums, but community member’s perception remains critical. 3.2.6. Functionality of School and Health Management Committees for Influencing The baseline report sought to establish the existence and functionality of Health and Education Management Committees. The Second National Health Policy provides for the establishment of Health Unit Management Committees (HUMCs) to provide stewardship in operation of health centers. Similarly, the School Management Committees, established under the Education Act 13, 2008, are mandated to oversee the management of schools and represent the interest of local community and parents. The committees are required to hold the school leadership accountable to the parents and other stakeholders. Both committees are required to convene regularly to discuss issues pertaining to education and health. Then, the feedback is given to the committees accordingly, where the school and health leaderships are supposed to present reports for discussion and remedial actions. Some of the actionable points are escalated to the local government structures. The research team interviewed committee members of Avogera Health Centre III in Buliisa and District HC IV in Rakai District, and found that the committees have been established with members who know their roles, but have not been meeting regularly or with effective oversight. Quite often, members said, the committees air out service delivery issues for action but no actions are taken. “The issues range from frequent drug shortages, to lack of beds for maternity ward, to lack of transport for health personnel” said an HUMC member at Avogera Heath Centre III, Ngwedo Sub-County. “The drug shortage is a serious issue at Avogera Health Centre III… The center receives drugs meant for Heath Centre II and not Centre III, as required by National Drug Authority guidelines. For this reason, we have requested the district to upgrade the center into a hospital, but we have not received feedback to our request.” The education committee meetings are held twice each term to discuss emerging issues and submit recommendations for review and onward submission to the district education office for action, but feedback is slow. “It takes a long time to receive feedback. At times, no feedback is received at all,” said a School Management Committee member at Kijangi Public School, Kigoya Parish, Buliisa Sub-County. “For instance, for the last 18 months, Kijangi primary school has been without a mathematics teacher. We have raised the issue to the district officials for action, but we haven’t received any response. This has cost us a lot.”

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ACODE

has regularly conducted evidence-based research on environment, poverty, oil and gas, and governance;

FOWADE

has conducted analysis on gender budgets; and

CSBAG

research uncovered weaknesses in the tax administration system, including high levels of informality, tax evasion, detrimental tax incentives and a narrow tax base. Uganda Debt Network and the National NGO Forum have conducted research on pro-poor budget processes, governance, participation, economic development, and poverty; Through Research CSOs provide evidence-based research and analysis, and often findings shared with technical officers in line ministries and relevant committees of Parliament inform policies and programs. For instance: Government officials and development partners have acknowledged that such high-level, evidence-based research is important in policy dialogues.^40 Nevertheless, evidence-based research has been hampered by limited capacity in terms of finance, skill, and facilities. Some CSOs contacted for this report complained that they do not have the funds to hire skilled researchers and analysts to produce independent research. As a result, research is sometimes sponsored by biased government agencies and politicians, the CSOs said. Through Lobbying Additionally, CSOs use lobbying as an informal undertaking to influence policy agenda.^41 For example, because of CSBAG’s lobbying efforts, 47 of the 91 budget proposals that CSOs submitted to Parliamentary committees for fiscal year 2017–2018 were adopted.^42 CSBAG’s engagement with the Ministry of Finance, Planning and Economic Development (MoFPED) office since 2012 generated a dialogue that has seen better prioritization towards pro-poor budgeting. In the fiscal year 2012-2013, CSOs were successful in lobbying Parliament not to approve taxes on key agricultural inputs.^43 Through Alliances CSOs in Uganda have moved away from working in an ad hoc manner to deliberately engaging in joint actions through coalitions and networks on various policy issues with some notable achievements.^44 The formation of CSO platforms, alliance, coalitions and networks such as CSBAG, the Tax Justice Alliance in Uganda, Advocates Coalition for Development and Environment, Uganda Debt Network, Uganda National NGO Forum, Civil Society Coalition for Oil, CSO Budget Coalitions, ACCU, and DENIVA among others has provided opportunities for knowledge sharing and for increasing the influence of the CSO.^45 The Civil Society Coalition on Oil and Gas (CSCO) has met frequently with oil companies and government departments and presented a united civil society perspective on oil and gas development. CSCO has also hosted numerous forums to share knowledge and promote discussion around oil issues and has held community training and capacity building workshops for member organizations in areas affected by oil exploration.^46 However, networks, coalitions and alliances need to be managed well in terms of coordination, resourcing and avoid capture by politicians. Through Media Advocacy CSOs have used mass and social media to influence the policy agenda. The tools have included press releases, news conferences, letters to editors, TV or radio interviews, newsletters, websites, blogs, and social media are used as forms of communication. “CSBAG ensures that for every activity, there is a media component,” said a CSBAG official. Through Government Capacity-Building CSOs engage in policy implementation initiatives with a focus on capacity building and empowerment of communities and government officials. Capacity-building includes developing policy advocacy skills, technical knowledge, research skills, and increasing the availability of the resources necessary to support an organization. For example, CSCO runs several capacity- building programs for different community stakeholders on issues such as the right to education, land rights, women rights, and vocational training. However, CSCO has had difficulty building the capacity of its key stakeholders in the specialized skills required in the oil and gas sector. 3.3.2. CSO Engagements with IFIs IFIs provide financial support and technical assistance for economic and social development activities and promote international economic cooperation and stability.^47 In recent years, CSOs have urged IFIs, including the World Bank, to support an enabling environment for public participation^48 and greater accountability of government actions to the public. Significant success has been registered^49 in Uganda where CSOs say IFIs have been influential in supporting programs that facilitate effective CSO policy dialogues. For instance, it was mentioned that IMF, World Bank, and others have been pooling resources under different funding arrangements and deliberately discussing CSO perspectives on various subjects to the central government. IFIs have also supported government and CSO capacity-building on governance, oil and gas, the environment, and anti- corruption institutions. 3.3.3. CSO Engagement with Oil Companies Oil companies’ engagement with communities before starting exploration activities helps them clarify their role, responsibilities, and duties. This helps avoid conflict with local communities.^50 CSOs, as representatives of the community, are supposed to engage oil companies on issues concerning the local people so that the development of the extractive industries positively impacts the communities.^51 CSCO members say that CSOs have been engaging oil companies in the Buliisa and Rakai districts at the district, sub-country, parish, and village levels. Studies on stakeholder engagement confirm those reports^52 and CSCO conducts quarterly meetings with oil companies. Oil companies have also implemented programs as part of their corporate social responsibility to benefit local communities.^53 Global Rights Alert has also been active, working on issues of land acquisition, resettlement, and compensation of people affected by oil and gas infrastructural developments in the Albertine.^54 Similar observations were made by CSO officials about CSBAG. Oil companies have their limit, however. Oil company officials interviewed during this study raised concerns they are unable to meet the many expectations raised by communities. The companies noted that CSOs presents many requests to them that are beyond their purview, including the construction of schools, hospitals, roads, and infrastructure to access water.

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Lack of Time Lack of Interest Not Aware of the Meeting Not Aware of the Right Not Aware of the Location Empty Promises Fear of Violance Uneven Distribution of Resorces Lack of Interest

Male Female Figure 7: Obstacles to effective engagement in decision-making 41% 20% 55% 15% 28% 30% 2% 13% 13% 22% 17% 63% 9% 18% 36% 10% 17% 41% 3.4.1. Citizens’ Awareness on Existing Policy and Regulatory Framework on Participation The study sought to establish whether the people are aware of the policies and laws relating to citizen participation in revenue mobilization and public financial management. The views of participants in FGDs indicate that majority of the population are not. Some participants said that had not been made aware of these rights. Some said the laws and policies are hard to understand because they are written in English with no translations to local languages. And still others said the laws not accessible to everybody because they are shelved at the district headquarters. 3.4.2. Community Consultation on Laws, Policies, Plans When asked whether communities are involved in developing oil sector laws, policies, and budgets that affect them, 72 percent of the respondents said they were not; only 7 percent said they had been consulted. In response, district officials said that such consultation is done at the sub-county and district levels but is limited to public representatives and technocrats. The cost to inform the general public is cost-prohibitive, the district officials said. Some CSOs have tried to bridge this gap by informing the public through local radio announcements. When asked on what issues they should be consulted, 20 percent of community members said they should be consulted on budget preparation; 19 percent, on needs identification; 19 percent, on monitoring projects; 16 percent, on evaluating service delivery; 10 percent, on making tax policies and laws; and 9 percent, on revenue mobilization. Although community members appreciated consultations as a good gesture, many felt the gestures were disingenuous. “The consultations which district officials conduct on the budget, or when it comes to a new project, is a waste of time because local leaders just want to show the world that we consulted them, but they are never genuine,” said a participant in a men’s focus group in Kifamba Sub-County, Rakai District. When asked on what issues they should be consulted regarding oil and gas, 97 percent said land acquisition; 66 percent, routing and surveying; 36 percent, resettlement They also complained that CSOs always oppose oil companies’ proposals out of hand, without due consideration. CSOs reject these characterizations, countering that oil companies are more concerned about making profits than fulfilling promises of transparency and compensation. “They will do what is possible to ensure that their objective is achieved even when it means hiding the truth,” said a CSO official interviewed for this report.

3.4. Result Area 3 |

Empowered Citizen

Engagement

Citizen participation in revenue mobilization and public financial management leads to a responsive budget allocation, enhances good governance, and improves the delivery of public services.^55 Meaningful citizen participation 56 requires that they be provided opportunities and space to enable them to exercise their rights in determining their destiny. This study sought to understand what enabled engagement and what obstacles were hindered participation in planning, implementation, monitoring, and evaluation of service delivery. As reflected in Figure 759 percent of respondents said they are not informed about meetings and 41 percent said they lacked the time to attend. Other hindrances included being unaware of the location ( percent); unaware they had the right to participation (23 percent); lack of interest ( percent); and fear of violence (13 percent). Other challenges mentioned during FGDs included:

• Language barriers. In some communities, there are many ethnic groups. The biggest tribe dominates, and its language is used for communication during meetings to the disadvantage of others;
• Failure to implement the resolutions of the meetings discourage many from attending meetings;
• Meetings coincide with public events;
• Sometimes leaders politicize meetings; and
• Poor weather, especially during rainy seasons.