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07/05/2013

Guillaume NICAISE | PhD Candidate, Public Affairs Consultant

CONSULTING

PROPOSAL

GOOD GOVERNANCE IN RWANDA

- IMPLEMENTATION PROCESS ANALYSIS -

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Foreword

I am pleased to submit this consulting proposal to your consideration for an

innovative and rewarding field research on Good Governance in Rwanda.

The current decentralization process in Rwanda is one of the most

ambitious reforms programs implemented by a developing state. Imihigo,

its spearhead, is a fascinating form of public performance management tool

unlike any that have been achieved before. This consulting proposal

represents an outstanding opportunity to study those accomplishments and

increase knowledge on the implementation of good governance norms.

In presenting the broad outlines of this project, my intent is to convince you

that this research and the conclusions it could draw are of sufficient benefit

that you may want to participate in its financial support. Employing a subtle

combination of knowledge in systemic analysis, public administration and

political science, its original methodology is ideal to perform a deep, original

and comprehensive field work. This report is meant to be a turnkey solution

to implement a performance management mechanism, from its technical

process to its human dimension.

This field work in Rwanda is part of a PhD research at the EHESS (School

for Advanced Studies in the Social Sciences) entitled “the public

administration in Rwanda and Burundi in the age of international policies

for good governance; an anthropological comparative approach”.

__________________________________________________

About the Author:

I am an independent public affairs consultant. I achieved expertise in systems of systems analysis and policy recommendations thanks to my experience at NATO as a Strategic Research Analyst. I graduated with the grade distinction in Diplomacy from the SOAS University and in

International Relations and Political Science from the University of Bologna. For further information, please refer to my online CV.

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Subject

Content Approach ..................................................................................................................... 2

Background ................................................................................................................ 3

Objectives .................................................................................................................... 3

Expected outputs ...................................................................................................... 5

Tasks and responsibilities ..................................................................................... 5

Requirements ............................................................................................................ 6

Contacts ........................................................................................................................ 6

Appendix I: Road map and planning .................................................................. 7

Appendix II: Provisional costs .............................................................................. 8

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Approach

Table 1: Summary of the overall research process

Methodol

ogical

tools

Achieved

results

Public Agents, Civil

Society, Population Reforms and

strategy

implemented within

the decentralization

framework

International norms,

good governance reforms

related to Structural

Adjustment Plans

- Documentary analysis

- Negotiation agreement

analysis

- Interviews with key

stakeholders

- Normative framework

- Legal and political

framework

- Content and

framework of the

structural adjustment

plans’ negotiations

- Ideal governance

- Public policies

analysis

- Systemic analysis of

local government

administration

- Participant

observation with

key stakeholders

- Interviews with

civil servants and

civil society

- Causal model

- Political-

administrative plans

- Sociology of the

groups within the

Rwandan Ministry

of local government

- Integration,

application and

interpretation of

international

norms

- Nature and

legitimacy of the

practical norms

- Real governance

Force, Influence, Finance

Impact

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Background

Since 1994, the Government of Rwanda (GoR) initiated several policy reforms and put in

place administrative and social-economic programs aimed at improving the living

conditions of the Rwandans. Since the adoption of the Poverty Reduction Strategy and

the National Decentralization Policy (NDP) in 2000, GoR enhanced good governance

principles, in particular implementing an ambitious decentralization process to bring

government closer to citizens, to strengthen accountability and transparency and to

improve the delivery of public services.

These developments occurred thanks to the collaboration between the GoR and the

Bretton Woods Institutions. However, structural adjustments implemented by the World

Bank and the International Monetary Fund (IMF) are based on a different normative

structure: a different understanding of the way a state’s organization function than the

reality in many Sub-Saharan states. In other words, these principles of governance exert

an economic but also socio-cultural impact which modifies social ties and existing

solidarities, affects organizational behaviours within the institutional framework, and

change the relation between the State, the administration and the citizens.

My aim is to analyse the transposition of international norms of good governance into the

bureaucratic procedures in Rwanda, in particular the decentralization process. The

findings and recommendations of the research will be relevant to improve the chain of

decision-making (policymaking, planning and operations) and to increase knowledge on

the implementation of organizational changes. It is also a way to optimize structural

adjustment plans on decentralization and increase knowledge on its socio-cultural

consequences.

A particular focus is directed towards Imihigo (performance contracts), an effective and

unique performance management system in place since 2006 in Rwanda. Imihigo has its

roots in a pre-colonial Rwandan cultural practice whereby leaders or warriors would

publicly vow to achieve certain goals—and face public humiliation if they failed. The

modern Imihigo process linked this traditional Rwandan practice to monitoring and

evaluating local leaders’ development initiatives. It increases accountability towards the

central government (top-down control) and civil society (bottom-up liability). By 2010,

government officials believed that the Imihigo process had resulted in improved service

delivery at the local level. However, no study has been carried on the social and the

human conditions which enable its success; this research is a way to get the implantation

process for this pioneer performance management tool.

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Objectives

The first objective of this 6 months field research in Rwanda is to analyze and assess the

institutional arrangement - the formal and informal rules that influence individual and

organisational behaviour and performance within public administration at the sector

level. The research will focus on the rules (laws, policies, executive/administrative

instructions, procedures, cultures and customs) as well as the social and power relations

which provide negative or positive incentives for the promotion of good governance. For

this purpose, a systems analysis of the public administration will be carried out at the

sector level of the Ministry of Local Government.

Table 2: Systemic analysis conceptualization

The second objective is assessing the Imihigo’ system’ specific measures for planning,

monitoring and evaluating the work of public administration. The purpose is to examine

networks, partnerships and public-private contracting practices at the local level (sectors)

and within the Imihigo framework, in order to highlight the social accountability of the

public sector towards the society. Assessing the evaluation process of the Imihigo will be

achieved through interviews and participant observations in collaboration with focal

points at the sector level, including the Mayor, Executive Secretary and directors in

charge of good governance and public/private partnerships.

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Expected outputs For contributors

To increase knowledge on the implementation of organizational changes.

To enhance awareness on the process to normalize behavior within an organization

and the functioning of the state in a developing country.

To gain a comprehensive understanding on a pioneer performance management tool

already exported to other African states (Uganda, Burundi) and which could be also

very interesting for western countries.

To identify strategies for refining decentralization design.

For Rwanda

To get accurate information on the level of assimilation of the new public

management tools and good governance principles by civil servants.

To achieve a better public service delivery and to support the implementation of the

local government capacity.

To increase awareness on the successes of one of its most emblematic reforms.

To improve the chain of decision-making (policymaking, planning and operations).

Tasks and responsibilities

To carry out and coordinate field work: systemic analysis, participant observation

and interviews with the focal points at the sector level.

To carry out analysis of the findings.

To write down an English language report of approximately 30-50 pages that

substantiates the research process, its recommendations and conclusions for

sponsors and GoR. This report represents the deliverable that will be provided by the

consultant.

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Requirements

The period of assignment (preparation, field visit, analysis and synthesis) will not exceed 180 days, starting 1st August 2013. Details for the assignment period are provided in Appendix I.

Total fee for this project: 9500 Euros (1500 Euros of self-financing and 8000 Euros to be financed by sponsors). Sponsors can choose between a payment of the entire cost (8000 Euros) to receive a regular contact with the consultant and a deliverable tailored to their specific requests. They can also opt for a lower contribution to receive a standard version of the deliverable. Details for the budget needs are explained in Appendix II.

Thank you for taking the time to consider this consulting proposal. I hope you found it clear, stimulating and convincing enough to encourage your

willingness to be part of its development. In that regard, your contribution would be greatly appreciated. For additional information do not hesitate to

contact me directly.

Contacts

GUILLAUME NICAISE Public Affairs Consultant www.guillaumenicaise.com SIRET N° 79073403200010 – RCS N° 790 734 032 – VAT N° FR 81790734032 –

Address: 7 Rue des Grands Moulins 88100 Saint-Dié, FRANCE

Phone: Tel: +32 (0)483430599 (Belgium) Skype: guillaume_de_bologne E-mail: nicaise_g@hotmail.com

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Appendix I: Road map and planning

Activities # Days Location Expected Output

Preparation for assignment Settlement 3 days

(2-5 Aug.)

Kigali Solving housing issues and enabling good

working conditions

Administrative tasks 3 days

(5-7 Aug.)

Kigali Solving administrative issues (valid working visa

and signed research clearance)

Work organization with

assistants

3 days

(8-10 Aug.)

Kigali Presentation of the research (methodology,

objectives, needs)

Definition of tasks and planification

Assessment of logistical aspects

Presentation to key

stakeholders

11 Aug Kigali High-level backing for the research

contact with MINALOC representatives

Finalisation of roadmap 12 Aug. Kigali Roadmap finalised

Field analysis – Kigali Sector (Nyarugenge District, Kigali province)

Data collection on processes

Definition and answer to

knowledge gaps

Sociological Observation

18 days

(13-31 Aug.)

Kigali Laws, policies, executive/administrative

instructions, procedures, cultures and customs

Orientation of the field analysis

Sociology of the groups (networks/ relations

between subsets, individual positioning, actors’

behaviours

Interviews 2 days

(2 Sept./30

Sept.)

Kigali Formal rules, perception and understanding of the

procedures by civil servants

Participant observation with

key stakeholders

26 days

(3 Sept. -29

Sept.)

Kigali Integration of the norms, networks, partnerships

and public-private contracting practices

Draft analysis 5 days

(1-6 Oct.)

Kigali Data processing, development of hypothesis,

draft analysis

Field analysis – Muhanga Sector (Muhanga District, South province)

Move to Muhanga 7 Oct. Muhanga Settlement, solving housing issues and enabling

good working conditions

Data Collection on resources

Definition and answering of

knowledge gaps

Sociological Observation

22 days

(8 Oct.-30

Oct.)

Muhanga Financial constrains, material capacities, Imihigo

implementation planning

Orientation of the field analysis

Sociology of the groups, organisational context

Interviews 2 days

(15 Oct. – 31

Oct.)

Muhanga Formal rules, perception and understanding of the

procedures by civil servants

Participant Observation with

civil servants

25 days

(1 Sept. – 29

Oct.)

Muhanga Integration of the norms, networks, partnerships

and public-private contracting practices

Draft analysis 7 days

(1st Nov. – 7

Nov.)

Muhanga Data processing, development of hypothesis

Field analysis- Gishyita Sector ( Karongi District, West province)

Move to Kibuye - Settlement 5 days

(8 Nov- 12

Nov.)

Kibuye Settlement finalized.

Data Collection

20 days

(13 Nov – 2

Kibuye Accountability towards civil society,

accountability towards the central government

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Sociological Observation Dec) Sociology of the groups

Interviews 2 days

3 Dec – 30

Dec.)

Kibuye Formal rules, perception of the civil servants

towards the State

Participant Observation 25 Days

4 Dec – 29

Dec)

Kibuye Integration of the norms, networks, partnerships

and public-private contracting practices

Draft analysis 7 days

(1 Jan. – 7

Jan. 2014)

Kibuye Data processing, development of hypothesis

Report Writing

Data analysis

10 days

(8 Jan.-17

Jan.)

Kigali Compilation of all important data and summaries

of each field analysis

Report writing 10 days

(18-27 Jan.)

Kigali Draft version of the final document

Reviewing, Recommendations

and Conclusions

2 days

(28-29 Jan.)

Kigali Final version of the deliverable

Submission of Final Report to

sponsors

31 Jan. Paris Fulfilment of the contract‘s conditions

Appendix II: Provisional costs

Entitled Operations Amount

Health Vaccinations Malaria Treatment Survival kit and repellents Insurance

37 Euros x 12 boxes

150 Euros 440 Euros 150 Euros 200 Euros

Transport Paris – Kigali – Paris Moves within the country

1000 Euros 200 Euros

Accommodation expenses Rent + charges Hotels during moves within the country

600 Euros x 6 months 15 Euros x 20 nights

3600 Euros 300 Euros

Food Every day food

7 Euros x 120 days

840 Euros

Professional Requirements Computer Dictaphone Communication (Internet and telephone) 2 working assistants Documentation Miscelleanous expenses

500 Euros x 1 25 Euros x 4 1 Euros x 120 days 5 Euros x 120 days x 2 assistants

500 Euros 100 Euros 120 Euros 1200 Euros 200 Euros 200 Euros

Formal Fees Research clearance Visa

150 Euros 100 Euros

TOTAL 9500 Euros Self Financing 1500 Euros Sponsors 8000 Euros