Ethnicity and Decentralisation in Sub-Saharan Africa: A New Model for Policy-Based Solutions

Decentralisation has been heralded as a powerful mechanism for improving governance performance, particularly in sub-Saharan Africa (SSA). This process, which began in the late 1940s in the region, aimed to bring the government closer to the people, thereby enhancing democracy, accountability, and development. Despite its long history, the SSA remains plagued by poor governance, economic underdevelopment, security issues, and human rights violations. Reports show alarming poverty rates, with 50% of SSA countries having poverty rates above 35%. Violence and conflict further destabilize the region, with numerous countries embroiled in wars and hosting the highest number of refugees and internally displaced people globally.

The paradox is evident: why, despite decades of decentralisation, has SSA not seen the expected improvements in governance? The answer lies significantly in the region's high ethnic diversity, which complicates the decentralisation process. This paper argues for a new model that considers the impact of ethnicity on governance performance and advocates for policy-based solutions to address these challenges.

Theoretical Explanations

Decentralisation's ineffectiveness can be attributed to several factors. Studies suggest that without specific conditions, decentralisation can lead to adverse outcomes like elite capture, localized corruption, and fiscal mismanagement. Effective decentralisation requires strong local authority, sufficient resources, capable institutions, and transparent political processes.

For instance, Olowu and Wunsch (2004) emphasize the need for local autonomy, resources, and accountable political processes. Sharma (2014) lists eight preconditions, including social readiness, administrative capacity, political commitment, capacity building, legal transparency, high-performing local government organizations, appropriate rationales for decentralisation, and effective judicial systems.

Other scholars, like Saito (2001, 2005) and Sorens (2009), highlight the importance of socio-economic and socio-cultural factors. They argue that ethnic and minority issues significantly affect the distribution of responsibilities between central and local governments. Hankla (2009) adds that successful decentralisation depends on specific responsibilities, spending freedom, democratic elections, and mechanisms promoting public goods provision and regional equity.

Democratic Structure

The structure of political institutions is crucial for decentralisation to improve governance. Decentralisation is most effective when local governments operate democratically, with institutional constraints to hold politicians accountable. Competitive local elections motivate incumbents to improve governance and prevent local elite capture. Without democratic reforms, decentralisation may empower local elites rather than enhance the quality of governance.

Citizen Participation

Decentralisation is often justified by its potential to enhance allocative efficiency and service delivery quality and reduce corruption through increased citizen participation. Local governments, being closer to the people, are assumed to have better information about local needs and preferences. Citizens, in turn, can more effectively monitor local government actions.

However, this theoretical assumption does not always hold in practice. Subnational governments must actively engage citizens to obtain accurate information about their needs. Mechanisms for citizen participation are essential to bridge the information gap and promote accountability.

Transparency

Transparency is another critical factor for successful decentralisation. Citizens need access to information about government actions and performance to hold officials accountable. Without transparency, it is challenging for the public to monitor government activities and enforce accountability.

Fiscal Decentralisation

For decentralisation to succeed, local governments must have the fiscal authority to raise revenues and make spending decisions. The relationship between fiscal decentralisation and governance performance is complex, involving multiple levels of government with real fiscal powers. Effective fiscal frameworks must link local financial powers with service delivery responsibilities.

Capacity of Subnational Governments

Local governments need the capacity to plan, implement, manage, and evaluate policies effectively. Differences in human capital, administrative infrastructure, and resources significantly impact decentralisation outcomes. Adequate training, administrative structures, and resources are necessary for effective decentralisation.

Societal Features

The success of decentralisation also depends on societal characteristics. Social and economic heterogeneity, lack of social trust, and divisive cultural norms can undermine governance. Economic disparities can polarize citizens, reducing civic engagement and governance quality. Ethnic diversity can affect public goods provision and increase corruption, complicating decentralisation efforts.

Ethnic Diversity and the Low Success Rate of Decentralisation in SSA

The failure of decentralisation in SSA is not due to a single factor but a complex web of causes. Empirical and theoretical evidence suggests that ethnic heterogeneity is a significant factor influencing decentralisation outcomes. Studies show that even with similar local government capacities and political structures, decentralisation outcomes vary based on ethnic diversity.

Decentralisation aims to improve governance by enhancing bottom-up accountability. However, ethnic diversity affects citizens' accountability behaviour, complicating this process. The current approach focuses on the divisive effects of ethnicity, leaving little room for policy-driven solutions.

A New Model for Policy-Based Solutions

This paper proposes a new model incorporating State Exploiting Mentality (SEM) and Negativity Accountability Behaviour (NAB) to address the impact of ethnicity on decentralisation. SEM arises when citizens, confronted with problematic policies influenced by ethnicity and colonialism, develop a mentality of exploiting the state. This leads to NAB, where citizens adopt a nonchalant attitude towards state accountability.

By targeting SEM and NAB through public policies, policymakers can improve decentralisation outcomes in SSA. This approach offers a practical, policy-driven solution to the challenges posed by ethnic diversity, enhancing the effectiveness of decentralisation and governance performance.

Conclusion

Decentralisation in SSA has not achieved its intended outcomes due to the region's high ethnic diversity and other complex factors. A new model focusing on SEM and NAB provides a policy-friendly approach to address these challenges. By implementing targeted policies, SSA can enhance decentralisation's effectiveness and achieve better governance, economic development, and social equity.