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1. Decentralization with Safeguards
Decentralizing the authority of national governments is an important part of the democratization
and good governance agendas promoted by international funding agencies and supported by
analysts of developing countries.
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Deconcentrating central government offices by locating them
closer to where citizens live constitutes one part of decentralization; but the more important part
concerns devolution or mandated transfers of authority and resources to independently elected
local governments (Crook and Manor 1998; Rondinelli et al. 1989; Uphoff 1986).
Decentralizing authority is advised for the sake of promoting higher participation, facilitating
accessible and responsive governance, engendering superior service delivery, and permitting
more effective poverty reduction.
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However, while decentralization can help improve performance overall – by enabling
flexible and context-sensitive decision making, by encouraging competition among local
administrations, by facilitating local resource contribution, and by mobilizing communities’
social capital
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– grave doubts have been voiced concerning the effects of decentralization on
equity and equal access.
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The “most important caveat,” stresses the World Bank (2001:106), “is
that decentralization can bolster the power of elites.” Instead of facilitating equity – in
participation, representation, influence and benefit sharing – decentralization might result,
instead, in providing additional “instruments of oppression in the hands of influential elites”
(Human Development Center 1999: 53).
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Unless it is undertaken appropriately, with adequate safeguards and sufficient preparation,
decentralization might severely impair equity and representation at the local level. What sorts of
safeguards are helpful and necessary? What policy measures should proceed or accompany
Convention