Ministry of Regional, Local Government and Housing and Rural Development
In recognition of the importance of local government and housing, the new government of the Republic of Namibia established the Ministry of Local Government and Housing in 1990 to run the local governments of the new Namibia.
Local government occupied a special critical position in the politics of both the former colonial dispensation and the liberation movement. During the colonial period, local government structures consisting of the Department of Governmental Affairs and its arms, such as, municipalities and the Peri-urban Board; and second tier structures of eleven ethnic representative authorities reflected, represented and underpinned apartheid. They even survived all the cosmetic changes to apartheid prior to independence. Swapo had therefore identified the need for comprehensive reforms of the colonial local government system at an early stage. Specific ideas on how local government should be structured in independent Namibia were developed and documented. These ideas influenced the development of local government after Namibia became independent.
The
most serious political consideration in establishing the new
Ministry of Local Government and Housing in 1990 was the
government’s desire to remove the legacy of the oppressive
and divisive apartheid era. In its place, the government wished
to establish local government structures that were truly
democratic, fostered national unity and promoted people’s
participation in the development process. Local government was
viewed as an instrument for institutionalising democracy and as a
vehicle for national development and therefore for the
satisfaction of people's basic needs.
The
Ministry of Local Government and Housing obtained its overall
mandate with respect to local government from the constitution.
In addition, the new ministry was given the task of spearheading
the provision of housing -- one of the four priorities of the new
government, viz., housing, education, health and
agriculture.
The
ministry is committed to facilitating the establishment of an
effective regional and local government system that brings
government closer to the people and is capable of delivering
services to the satisfaction of all communities. In the carrying
out of its task, it provides central government support to
regions and local governments in the areas of housing, community
development and physical planning.
Structure of the Ministry
In
September 1990, the first structure of the ministry was adopted
based on an investigation carried out under the guidance of the
Office of the Prime Minister with the active participation of the
new minister and the permanent secretary. This structure emanated
from the local government structures of the unbundled Department
of Governmental Affairs and various regional representative
authorities. The ministry, called the Ministry of Local
Government and Housing, comprised two directorates and two
separate divisions.
The
two directorates were the Directorate of Regional and Local
Government Co-ordination, and the Directorate of Housing. The
Directorate of Regional and Local Government Co-ordination had
three divisions dealing with Municipal Co-ordination and
Townships Board; Towns and Villages (communal towns and
unproclaimed villages); and Other Regions. Under this
arrangement, local government functions of the old Department of
Governmental Affairs were captured and fourteen commissioners
were appointed to replace the representative authorities to take
care of regional affairs in the temporary regions. The
Directorate of Housing was a new establishment meant to handle
one priority issue of the new government, i.e., provision of
housing.
The
two separate divisions were the Division of General Services, and
the Division of Community Development. The Division of General
Services handled ministerial support services and the Division of
Community Development took over the community development section
of the Department of Governmental Affairs. In 1992, the division
was elevated to the level of directorate to provide additional
impetus to community mobilisation and development issues.
First
notable changes to the ministry’s structure occurred in
1993, after the Regional Councils Act and the Local Authorities
Act were passed. With the establishment of regional councils and
additional local authorities, the ministry's name was changed
from the Ministry of Local Government and Housing to the Ministry
of Regional and Local Government and Housing.
In
1993, fourteen commissioners were replaced by governors and
regional councillors in the thirteen regions, and mayors and
councillors in local authority areas including twelve new town
councils. These political structures were administratively
supported by a complement of skeleton staff seconded by the
ministry. Agency agreements were concluded between the ministry
and the new political and administrative structures of regional
councils and new town councils. These agreements stipulated that
the ministry would continue managing all service delivery
functions on behalf these new institutions until such time as
local capacities were developed.
In
July 1993, the regional and town planning portfolio was
transferred to the ministry from the National Planning Commission
to rationalise physical planning in the government.
Earlier, it had also been noted that the Directorate of Housing
had started its own planning division to address its planning
needs. The two planning divisions were therefore merged into one
division under the Directorate of Regional and Local Government
Co-ordination.
In 1996, the Division of Towns and
Villages Administration under the Directorate of Regional and
Local Government Co-ordination was elevated to Directorate of
Towns and Villages Administration. This move was in response to
the increased needs of and problems with the newly proclaimed
town councils, such as, proclamation issues, demands for the
management of services delivering to these towns by the ministry
as per various agency agreements, and the need to accelerate the
development of local structures.
As
of 1999, the ministry was divided into four directorates, viz.,
Directorate of Regional and Local Government Co-ordination,
Directorate of Towns and Villages Administration, Directorate of
Housing, and Directorate of Community Development. In addition,
the ministry had a Division of General Services that provided
support services to the ministry in administration and finance.
For
purposes of deepening democracy, bringing government closer to
the people, promoting broader participation in governmental and
developmental affairs by all citizens, the ministry formulated a
decentralisation policy for Namibia in 1996. According to the
policy, officially launched in 1998, decentralisation will go
through various stages (deconcentration, delegation), but its
broad and ultimate goal would remain the devolution of agreed and
sanctioned authority, functions, responsibilities and resources
to lower tiers of government.
The
ministry is the lead agency for the implementation of this policy
at all levels-- national, regional and local. In the carrying out
of this responsibility, the ministry is required to fine-tune it
where necessary, develop policy implementation strategies and
programmes, advocate the policy within and outside the
government, and monitor broad implementation of the policy.
Throughout the process, the ministry is responsible for obtaining
political commitment at the highest level on its implementation.
Further, it is responsible for building inter-sectoral consensus
around concepts, strategies and objectives required to implement
the policy.
At
the national level, the ministry is required to help national
stakeholders, which are mainly other ministries, to develop
sector implementation strategies with clear targets, action
steps, and monitoring and evaluation mechanisms.
At
regional and local levels, the ministry is required to explain
the policy and its implementation strategies. It is expected to
assist these tiers of government to rationalise their
institutions and build their capacities to carry out their
respective functions. The ministry is also responsible for
supporting, supervising, mentoring and providing additional
resources to the lower tiers of government. In addition, the
ministry has the responsibility of monitoring and evaluating the
performance of all lower tiers of government.
In
addition to spearheading the implementation of the
decentralisation policy, the ministry remains responsible for
legislation and policy issues related to housing, regional and
town planning, regional government, local authorities and
administration. Hence, the adoption of the decentralisation
policy required that a comprehensive review of the whole
ministerial structures be carried out and a Directorate of
Decentralisation be created.
In
mid-1999, a new organisational structure of the Ministry of
Regional and Local Government and Housing was approved. Five
directorates were established with clearly distinguishable
mandates and functions.
Government's
main administrative functions prescribed by Local Authorities,
Regional Councils and Traditional Authorities Acts are exercised
through the Directorate of Regional, Local Government and
Traditional Authorities Co-ordination. Its structure recognises
the particular needs of the clients, viz., regions,
villages and settlements separated from municipal co-ordination,
and town co-ordination. However, under the roof of one
directorate a coherent approach in administrative matters is
secured. The directorate is subdivided into three divisions. The
Division of Regional Co-ordination looks after the administrative
requirements of the regions, villages and settlement areas
(subdivision) and traditional affairs (subdivision). The Division
of Municipal Co-ordination and Townships Board Secretariat has
one subdivision for general municipal co-ordination with a
section on legislation and general municipal affairs, and a
section on the Townships Board Secretariat; and a second
subdivision is responsible for civic affairs, mainly dealing with
civil defence, and land transactions. In the Division of Town
Co-ordination, one subdivision deals with general town
co-ordination and legal services and the second with land
transactions.
The
Directorate of Professional Services Co-ordination combines
technical expertise and financial know-how essential for the
promotion of infrastructure development, service delivery and
financial management in regions, towns and settlements. The
NAMPAB Secretariat is also situated in this directorate. The
directorate also provides supervisory control and monitoring
functions in all relevant technical fields. Its financial
management function is subdivided according to the main clients:
local authorities, regions and villages; and housing finance
co-ordination.
The
directorate is divided into three divisions. The Division of
Regional and Local Authority Planning Co-ordination comprises
three subdivisions, with one subdivision with the same name, a
second subdivision that houses the Namibia Planning and Advisory
Board (NAMPAB) Secretariat and the records office, and the third
subdivision dealing with policy research and legislation. The
Division of Technical Services and Inspections has a subdivision
for technical services co-ordination, technical standards
development and monitoring and capital projects co-ordination.
Within the Division of Financial Management and Information
Systems, local authorities finance is co-ordinated in one
subdivision, regional and villages finance and accounts in
another subdivision, and information system in the third
subdivision.
All
in-house services, such as, administrative matters of the
ministry, are concentrated in the Directorate of General Services
and Personnel. The directorate has two divisions dealing with the
key requirements of the ministry itself, viz., finance and
auxiliary services, and personnel. Ministerial and management
services, office support, transport management and registry form
the four sections under the Sub-division of Auxiliary Services.
The Division of Finance has two subdivisions – one for
expenditure and income, and the other for housing finance
co-ordination. The Subdivision of Expenditure and Incomes has
four sections (salaries, creditors, budget and income control,
and regional and local authority accounts). Personnel Division
comprises a Subdivision for Personnel Management with sections on
labour relations and conditions of service and general
administration.
The
Directorate of Housing and Habitat Co-ordination is responsible
for concretising developmental initiatives of the government with
regard to housing and for facilitating the realisation of the
provisions of the Habitat Convention. Work of the National
Housing Enterprise as the agency providing shelter at affordable
cost to Namibians, and community development activities are
co-ordinated from this directorate. The directorate carries out
its responsibilities through two divisions, viz., Housing
and Habitat Co-ordination and Community Development and Early
Childhood Development Co-ordination. The first division has two
subdivisions: Administration and NHE Co-ordination (sections:
Legislation and Schemes), and Habitat Co-ordination (sections:
Administration and Research); and the second division has a
Subdivision Community Development (sections: Community
Participatory Assessment and Mobilisation, and Advocacy Material
Production), and Subdivision Early Childhood Development
(section: Management Administration).
The
Directorate of Decentralisation Co-ordination is a newly created
directorate that would spearhead the implementation of the
decentralisation policy and, indeed, any future local government
reform policy initiatives. In this directorate, special emphasis
would be placed on legislation review and policy formulation to
create the necessary framework to devolve functions, authority,
and financial responsibility. The directorate would further
ensure that policy issues are adequately articulated both at
horizontal and vertical levels and there is systematic monitoring
of the implementation process. Professional back-up by
development planners and financial advisors would also be
provided. Promoting commitment to adherence to good governance
would receive special attention. The directorate incorporates two
divisions, viz., Legislation Review and Policy Formulation
with subdivisions Office Administration and Support Services,
Research and Policy, Legal Services and Policy Articulation and
Monitoring; and Planning and Investment, and Capacity Building,
subdivided into Development Planning, Financial Planning
Management, Good Governance Co-ordination and Training.
Achievements
At its inception, the Ministry of Regional
and Local Government and Housing had formidable challenges. The
most critical challenges of the ministry could be summarised as
follows:
1.
where possible to transform the old local government to meet the
requirements of the new political order,
2.
in other cases, to create new local government structures to
fulfil the new political objectives in local governance and
housing, and
3.
to manage local government affairs in transition.
The
new local government structure had far-reaching national and
constitutional significance as it was out of these new structures
that the second house of parliament, the National Council,
emerged.
The
ministry has achieved major successes in meeting its immediate
challenges at inception and many other subsequent challenges.
Many challenges were completely resolved while others are still
in the process. The following count as major achievements of the
ministry:
1.
management of local government during the transitional period
2.
establishment of the new ministry structures, transformation of
the old local government structures (unbundling of the Department
of Governmental Affairs, disbanding and fusion of old structures
-- Representative Authorities, Peri-urban Development Board),
reorientation of staff from the old dispensation and integration
of new staff;
3.
formulation of new local government legislation -- the Regional
Councils Act (1992), the Local Authorities Act (1992) ,the
Traditional Authorities Act (1995), the Council of Traditional
Leaders Act (1997) -- and the National Housing Enterprise (NHE)
Act (1993);
4.
establishment of thirteen regions and twelve town councils --
delimitation of regions, proclamation of former communal towns
into newly proclaimed eleven towns, and constitution and staffing
of regional and town councils;
5.
facilitating re-integration of Walvis Bay into Namibia;
6.
reviewing and initiating amendment to all discriminatory pieces
of legislation dealing with local government and housing, e.g.,
Municipal Ordinance (1963), Peri-urban Development Board
Ordinance (1970), Natives (Urban Areas) Proclamation (1951),
etc., to ensure uniform application of legislation, town planning
ordinances, townships and division of land ordinances, etc.,
across the country including communal areas;
7.
initiating and formulating other key sector legislation, e.g.,
National Housing Development Bill, Trust Fund for Regional
Development and Equity Provisions Bill, and Decentralisation
Enabling Bill;
8.
initiating and formulating key national policies, e.g.,
Decentralisation Policy (1996), Housing Policy (1991), and Early
Childhood Development Policy (1996); and
9.
initiating and administrating diverse urban infrastructure
development projects, particularly in formerly disadvantaged
towns in communal areas (new town councils); and numerous housing
schemes, such as, the Build Together Programme, which earned the
country international awards.
Housing
-- Priority Area of Development
Immediately
after Namibia became independent, the government identified
housing as one of its four priority areas of development, along
with health, education and agriculture. This commitment of the
government led to the formulation of a National Housing Policy in
1991. The central goal of the policy is "to make resources
available for the development of infrastructure and facilities so
that every Namibian family will be given a fair opportunity to
acquire land with water, energy and a waste disposal system, and
to facilitate access to shelter in suitable locations at a cost
and standard which is affordable to the family on the one hand
and to the nation on the other hand."
The
policy clearly states that the role of government is to
facilitate and promote partnership between public, private, local
and regional institutions and individuals. Thus, the primary
responsibility for the provision of housing is placed upon the
head of each household. The state will therefore intervene only
in aspects that are beyond the individuals’ control, such
as, access to serviced land and finance.
In this context, the Ministry of Regional and Local Government
and Housing has
undertaken numerous tasks as follows:
1.
preparation of National Housing Policy, National Housing Strategy
and National Housing Implementation Plan;
2.
monitoring, evaluating and reviewing the National Housing Policy,
Strategy and Plan on an annual basis;
3.
evaluating the success of individual housing projects;
4.
funding the public sector programme from its national budget
allocation and directing these funds to programmes and agents in
terms of the policy, strategy and plan; and
5.
co-ordination of housing executive agents (including NHE , NGOs
and other appropriate agents) for all public sector funded
housing programmes and projects.
Private
sector developers initiate, construct and sell housing units of a
standard and price and at a rate that should normally satisfy the
demands of all of the country's inhabitants at all income levels.
Wherever possible and practical, they are requested to undertake
"package" development that involves simultaneous
development of raw land and houses, utilising private sector
capital.
Community
savings and loan clubs are formed at the initiative of individual
communities, and are encouraged by community development
operations at both local and central government levels. Their
function is to encourage communities to save and to hold such
savings in trust for future distribution in support of the
housing needs of individual members.
Local
authorities play an eminent role in the provision of housing as
follows:
1.
to ensure adequate provision of land to be zoned and prepared for
use for housing development within its area of jurisdiction;
2.
to provide utility services (water, electricity and sewage
disposal) and residential land on individual or bulk basis to
developers;
3.
to sell utility services and residential land to developers on an
individual or bulk basis;
4.
to provide and retain bulk services (water, electricity and
sewage disposal) to housing project sites and, where such sites
are not developed by the private sector, to plan, survey, service
and sell individual building plots to developers and individuals.
5.
to inform, motivate, consult and involve the recipient community
in all aspects of housing project planning and implementation;
6.
to set up and manage site-and-service schemes involving self-help
and self-build processes, and to administer, on behalf of the
ministry, all plots and the supply of municipal services; and
7.
to undertake other functions, such as, development control,
maintenance of roads, drains and reticulated services, and
service to the community it represents.
Decentralization
would ensure that regional authorities receive wide powers and
responsibilities concerning rural government in general and
community development in particular. They will be required to
set-up and manage rural self-help schemes aimed at upgrading the
level of services in rural areas and assisting families to build
their own houses.
The
Namibia Housing Enterprise acts as the executing agent of the
central government in all aspects of low-income housing and
related development. Upon the instructions of the Minister of
Regional and Local Government and Housing or at the request of
local authorities, NHE undertakes or assists in the undertaking
of the responsibilities and functions of local authorities,
regional authorities or the private sector where such authorities
are unable or unwilling to fulfill their prescribed functions and
role. It also undertakes training aimed at improving project
implementation ability of local authorities. This training
emphasises project management, community development, and design
and construction of infrastructure services.
In
addition, NHE initiates, finances, constructs and sells completed
low-cost houses. Such housing is aimed at meeting the needs of
low-income families in the market segment where the private
sector does not operate. Where requested by the minister,
appropriate small contracts are awarded to small builders and,
wherever necessary, these contractors are also provided
technical, financial and management training.
It
should be noted that NHE received subsidies from government only
up to the 1992/1993 financial year. Number of houses completed by
NHE for the period subsidy was given to it is shown in Table 1:
___________________________________________________________________
Financial year
No of
Increased in
Interest
Value of
(1 July - 30 June) houses
share capital
subsidy (N$)
houses (N$)
1989/1990
818
1 603 000
456 000 4
032 907
1990/1991
340
7 853 868
895 000 3
122 021
1991/1992
164
8 122 900
510 175 7
358 055
1992/1993
267
2 517 000
426 307
1 247 5000
Total
1589
20 096 768
4 287 482 2
698 7983
The
Build Together Programme
Based
on the National Housing Policy, a National Housing Programme was
formulated with the assistance of the United Nation Centre for
Human Settlements and the United Nations Development Programme.
The programme was called "Build Together Programme" and
its implementation commenced during the 1992/1993 financial year.
The programme targets both urban and rural low-income groups.
Build Together Committees have been established all over the
country to facilitate the identification of families in need of
housing. This is seen as a way of allowing local communities to
take part in and control of decision-making process on issues
that affect their way of living. The programme also aims at
establishing revolving funds at both regional and local levels to
sustain the programme over the long term, and to reduce
dependency on central government for housing finance. The
programme not only concentrates on the construction of the new
houses, but also provides for the upgrading of existing services,
community facilities, production of building materials, and
creation of income generating projects in order to alleviate
poverty.
The
decentralised Build Together Programme is an umbrella programme
and has four sub-programmes.
The
objective of this programme is to:
1.
facilitate loans to low-income families with a monthly
income of less than N$2000 per month;
2.
assist low middle-income families living in un-proclaimed areas
and not having access to credit from banks, building societies
and housing delivered by NHE; and
3.
facilitate loans to low-income communities living in
disadvantaged, unserviced areas and informal settlements, such
as, squatter areas and shacks.
This
sub-programme is operating in towns, villages and settlements in
all the regions.
__________________________________________________________________
____________________________________________________________________
Kunene
Fransfontein 25
Khorixas
90
Opuwo
50
Outjo
244
Kamanjab
69
Sesfontein
17
Okangwati
9
Total
504
Omusati
Outapi
75
Tsandi
38
Oshikuku
140
Okahao
39
Ruacana
18
_______________________________________________________________
Total
310
______________________________________________________________
Oshana
Uupindi-Oshakati1
20
Oneshila-Oshakati
76
Oshoopala-Oshakati
26
Oshakati-West
20
Evululuko-Oshakati
64
Ondangwa
84
Ongwediva
110
_______________________________________________________________
Total
500
______________________________________________________________
Ohangwena
Omungwelume 44
Eenhana
56
Ongenga
33
Total
133
____________________________________________________________________
Oshikoto
Tsumeb 115
Onayena
8
Oshivelo
12
Oniipa
9
Total
144
_____________________________________________________________________
Kavango
Rundu
115
Nkurenkuru
11
_____________________________________________________________________
Total
126
_____________________________________________________________________
Caprivi
Katima
Mulilo
217
Bukalo
21
Total
238
_____________________________________________________________________
Erongo
Henties
Bay
188
Karibib
100
Omaruru
90
Usakos
45
Walvis Bay
60
Swakopmund
125
Otjimbingwe
24
Okombahe
51
Omatjete
38
Uis
35
_____________________________________________________________________
Total
756
_____________________________________________________________________
Otjozondjupa
Otjiwarongo
244
Okahandja
154
Grootfontein
159
Otavi
78
Okamatapati
70
Okakarara
21
Kalkveld
25
Okotjoruu
12
Okondjatu
12
____________________________________________________________________
Total
775
____________________________________________________________________
Omaheke Gobabis
190
Talismanus
92
Otjinene
24
Epukiro
19
Aminius
36
Corridor
No. 13 39
Witvlei
21
Leonardvile
36
__________________________________________________________________
Total
457
__________________________________________________________________
Khomas Katutura
individuals
758
Ombili
Group Katutura
112
People's
Square (Saam-
Staan) Katutura
68
Khomasdal
27
Single Quarters-Katutura
165
Total
1130
_________________________________________________________________
Hardap Stampriet
43
Aranos
73
Gochas
49
Khara
Tsasib-Mariental
19
Mariental
161
Maltahohe
31
Gibeon
93
Hoachanas
18
Kalkrand
42
Rehoboth
179
__________________________________________________________________
Total
708
__________________________________________________________________
Karas &n