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Mapping of Development Partners Interventions in supporting Local Governance

Local Development in JordanUNDP/EU Decentralisation and Local

Development Support Programme 2019-2017

Policy, Legislation and Regulation

Institutional and Organizational

Inter-Governmental (Institutional)

Relations

Systems, Procedures and

Manuals

Capacity Development

Functional Assignment

Local Public Finance

BackgroundThe Decentralisation and Local Development Support Programme (DLDSP) is an initiative funded by the European Union (EU) and implemented by the United Nations Development Programme in partnership with the Government of Jordan to support democratic governance in the Kingdom. The DLDSP works closely with the Ministry of Interior (MoI), Ministry of Municipalities (MoMA, Ministry of Planning and International Cooperation (MoPIC), the Ministry of Political and Parliamentary Affairs (MoPPA), and the Ministry of Finance (MoF) through the Inter-Ministerial Working Group on Decentralisation.

Reform of the system of national and sub-national administration has been at the forefront of political reform efforts in Jordan over recent years. His Majesty King Abdullah II has supported these efforts through a series of policy statements that have called for undertaking Decentralisation reform focused on increasing participation by citizens in decision-making and in oversight of public institutions at the local level, with a particular focus on increasing accountability and transparency in the allocation and utilization of public resources for local development. The process of political and economic reforms at subnational levels seeks both to achieve democratic progress and to address disparities between regions in the quality and coverage of basic services, especially in non-urban and remote localities that show growing rates of unemployment in all regions, particularly among women and youth.

Parliament’s adoption of the Law on Decentralisation and a revised Law on Municipalities in 2015 provide a framework for increasing civic participation in decision-making relating to local development and increasing the responsiveness of the local administration to peoples’ needs. The Decentralisation Law defines the mandate and functions of new Governorate Councils and articulates their relationship to the various components of the existing system of local administration and municipalities. The Governorate Council is composed of 85% elected and 15% appointed members. Each Governorate is sub-divided into a number of districts that return one or more members of the Council. The representation of women on the Council is ensured by 10% of elected seats being reserved for women candidates, as well as one third of appointed seats being assigned to women. In parallel, the Municipalities Law establishes a new structure at the municipal level, including new Local Councils that interact with Municipal Councils and Mayors. Significant efforts were applied to ensure the coordinated development of the two laws while attempting to maximize clarity in the assignment of functions of each tier and optimizing coordination between them.

Role of the DLDSPThe DLDSP’s main objective is to support the Government of Jordan guide the Decentralisation and local development process, organize the actions of development partners, and create the appropriate institutional and organizational settings for its implementation. The DLDSP concentrates its actions on supporting the Inter-Ministerial Committee (IMC) to lead the process and undertake the necessary modifications to the institutional and organisational arrangements at both Governorate and Municipality level that correspond to newly assigned or modified mandates introduced by the modified legal framework. A key element of this work is to support the Government of Jordan in the development of its vision and policy for the reform of local administration and the formulation of a National Strategy and Programme for Decentralisation.At a technical and policy level, the DLDSP contributes to the introduction of managerial systems, procedures and capacities to activate the new functions created and/or required by the laws. The focus of the programme is to seek to empower the entities responsible for the Decentralisation

process, thereby ensuring that key ministries and local bodies develop the organizational and human capacities needed to direct and coordinate the reform and institutional technical support, including that of donor support, with the goal of improving coherence and effectiveness of holistic local development efforts. Key partners for the DLDSP in promoting the use of social capital towards a consultative, inclusive and participatory approach to local governance are local Community Based Organizations (CBOs), and Civil Society Organizations (CSOs).

Mapping of Development Activities on DecentralisationTo achieve a more efficient and flexible use of resources and to ensure technical assistance is assigned where needed, the DLDSP aims to provide support towards articulating a pragmatic and feasible Decentralisation Strategy and Capacity Building Plan in order to align and better organise the resources deployed by donors and governmental entities. In this regard, MOPIC requested UNDP to map all the support being provided both at municipal and governorate levels to compare donors’ interventions to the actual needs to identify any critical gap and avoid duplication whilst maximising impact. The assignment focused on mapping the interventions of development partners and documents the supply side of support to the process of application of Decentralisation reform and the development of the local governance system in Jordan. This produced a Matrix of interventions by development partners in support of the implementation of the two laws (Decentralisation and Municipal) and in support of the development of the sub-national system at Governorate and Municipal levels.

The donor mapping assignment took place from September-December 2017 and it covered the following set of activities:

1 1 Define the areas of focus of relevant, on-going interventions undertaken by development partners;

1 2 Identify potential areas of interface and/or overlap, and suggest modifications in scope or focus to enhance complementarity of such actions;

1 3 Identify gaps in coverage and define the scope of future intervention to address such gaps;1 4 Engage development partners and ministries/ public agencies working on the development

of future interventions to support the application of laws or further development of the local governmental system with the view of ensuring alignment and complementarity with on-going actions and addressing gaps in current coverage;

1 5 Support the development of a multi-partner/actor action plan to enhance application of the Decentralisation and Municipalities laws to be used to consolidate and optimize all on-going and planned initiatives;

MethodologyThe assignment undertook both document and field research to collect, analyze and assess data and, subsequently, attain the targeted objectives and deliverable. This consisted of a first-round series of face-to-face meetings with all relevant development partners, followed by more focused meetings with those considered most relevant, a round of information-sharing and fine-tuning with development partners and DLDSP/UNDP staff, culminating in the elaboration and delivery of the matrix. The consultant that developed this assignment adopted a participatory and transparent method ensuring that main client was fully informed and engaged at all stages.

More specifically, the following steps were taken: 1 1 Held in-depth meeting(s) with DLDSP and UNDP (Amman) to better understand the focus,

direction and targeted outputs of the mission; 1 2 Identified, with the help and guidance of DLDSP/UNDP, relevant development partners

currently engaged in Decentralisation and local governance reform; 1 3 Scheduled and conducted a first round of meetings with identified development partners; 1 4 Produced an Inception Report containing an initial general matrix of current/planned

development partners’ initiatives; 1 5 Fine-tuned development partners’ interventions utilizing a second round of focused meetings

with most relevant entities and using results from the parallel assignment;1 6 Engaged UNDP in discussing all the above, receive feedback and agree on the way forward; 1 7 Produced pre-final report and specific matrix; 1 8 Engaged with the UNDP expert to produce a visualization package;1 9 Engaged with development partners, most probably in a workshop/focus group setting, to

review outputs from the pre-final report and matrix; 1 10 Discussed the findings; 1 11 Produced and submitted the final report, matrix and visualization package.

Collected Data and FindingsThe final matrix presented with this report is structured around the following seven themes:

1 1 Policy and legislative framework;1 2 Functional and resource assignments;1 3 Institutional and organizational structures;1 4 Inter-governmental, inter-institutional relationships (at vertical and horizontal levels);1 5 Systems, procedures and manuals;1 6 Capacity development;1 7 Local finance.

The matrix shows who among development partners (Funding and Implementing Agencies) is providing support; what each development partner is providing, in which theme/sub-theme; and where the support or intervention is taking place. All of this information is mapped according to the agreed seven themes and sub-themes. In addition to straightforward mapping, the matrix also highlights (in theme colors) which of the various development partners is considered a key contributor for that particular theme. The matrix tracks development partner projects/interventions directly relevant to the process of Decentralisation and local development. Interventions that are not considered related in a clear systematic way to Decentralisation and/or local development are not shown. This point needs to be stressed whenever this matrix is presented.

The findings that were derived from the final matrix can be summarized as follows:1 1 This mission tracked 20 funders commissioning 28 implementing agencies in support of

Decentralisation and local development in Jordan. 1 2 Those 28 implementing agencies operate through 48 projects that then develop into 208

separate interventions at central and local levels. 1 3 Development partners of intervention in each theme and sub-theme are shown in the

illustrative diagrams below.

1.1 Decentralisation and Local Governance

Vision and Policy

1.2 Legal Framework - Decentralization and Municipalities Laws

1.3 Bylaws and Regulations

Policy, Legislation and Regulation11Spain / AECID (DCP)

UKAID / Global Partners (DMLA)

USAID / CHEMONICS(CITIES)

USAID / Deloitte Consulting LLP (FRPFM)

not specified / UNDP (MISC)

Spain / AECID (DCP)


USAID / CHEMONICS(CITIES)


USAID / NDI (PSP)

USAID / Palladium (JHFGA)

Denmark / Danish Aid,Action Aid (DAPP)

EU / UNDP (DLDSP)

EU / UNISCO (EMIS)

Transition Fund / OECD (PGGOG)

USAID / CHEMONICS (HRH)

USAID / Deloitte Consulting

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2.6 Municipal Level – Category A, B and C

2.5 Joint Services Council Level

2.8 De-concentrated Directorates of Central

Ministries Level

2.9 Civil Society Level

2.7 Local Council Level

Functional Assignment21USAID / Palladium (JHFGA)




Japan / UNIDO (EFCHC)



USAID / Global Communities (CEP)

Japan / JICA (WMP)

EU / UNDP (PLEDGE)

Japan, Swiss Development Cooperation, Kuwait / UNDP (COP)

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Canada / UNDP (SWMU)



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EU / UNDP (DLDSP)



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2.6 Municipal Level – Category A, B and C

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3.1 Central Level 3.2 Governorate Level 3.3 Municipal Level

Institutional and Organizational Structures31USAID / Palladium (JHFGA)

USAID / Deloitte

Consulting LLP (FRPFM)

EU / UNDP (PLEDGE)

WHO / WHO (HSS)




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5.1 Central Level

5.4 Joint Services Council Level

5.2 Governorate Level 5.3 Municipal Level

Systems, Procedures and Manuals51USAID / CHEMONICS (CITIES)

Spain / AECID (DCP)USAID / Global Communities (CEP)Netherlands / VNG (LGRP)not specified / UNDP (MIJHC)


USAID / FHI 360 (LENS)Italy / Italian Agency for Development Cooperation ITDC (SMASRIJ)

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USAID / Global Communities (CEP)France / AFD (RLDP II)Netherlands / VNG (LGRP)

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Capacity Development61USAID / Palladium (JHFGA)USAID / CHEMONICS (HRH)Transition Fund / OECD (PGGOG)

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Spain / AECID (DCP)USAID / Global Communities (CEP)Canada, RDPP, US Dept1 of Labor / ILO (NFCL)Canada, RDPP, US Dept1 of Labor / ILO (SLED)Netherlands / VNG (LGRP)EU / UNIDO (IFP)Germany (BMZ) / GIZ (PRM)Germany (BMZ) / GIZ (TWEE)Germany (BMZ) / GIZ (SWDM)

USAID / IRI (International Republican Institute) (PE)

USAID / NDI (YPPP)Germany (BMZ) / GIZ (SWMG)

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Germany (BMZ) / GIZ (PRM)USAID / IRI (International Republican Institute) (PE)USAID / NDI (YPPP)Denmark / Danish Aid, Action Aid (RMPVE)Denmark / Danish Aid, Action Aid (SC)Germany (BMZ), EU / GIZ (WMP)USAID / IRI (International Republican Institute) (JLGP)

EU / AFD (RLDP II)not specified / UNDP (PVE)

EU / World Bank (MSSRP)

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