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Stefan Leiderer et al. The main research question for this case study is therefore the following: What are the major constraints in Public Financial Management (PFM) at the central and local government level for implementing the Malawi Poverty Reduction Strategy (MPRS), particularly in the education and health sectors? Special attention is paid to the following PFM coordination processes: — Between central and local government level in general (vertical coordination); — Between education and health sector ministries and their respective deconcentrated units (vertical-sectoral coordination); — Between various administrative units and other institutions at the local level (horizontal-local coordination). The study also aims at identifying starting points for possible solutions to overcome these challenges. 3.2 Research approach The research approach selected for this study is mainly qualitative and the overall research design is a country case study. The rationale behind this choice is that the interrelations between PRS implementation, decentralisation and PFM – even PFM as such – are very complex and might take very different forms in different country contexts. Therefore, it can be assumed that meaningful results can only be gained by studying a particular case in detail. Malawi was identified as an ideal showcase in many aspects, being a poor sub-Saharan African country. Nevertheless, the overall aim of this study is to identify typical challenges and to carefully draw generalisations that could apply to similar processes in other developing countries as well. For this purpose, it was deemed appropriate to attempt to gain a genuine and thorough understanding of all aspects and underlying mechanisms of informal practices of public financial management, in particular processes of one specific case rather than trying to paint a broad but shallow picture of the challenges for sound PFM in Malawi. In an effort to gain such a thorough understanding, the research was even further narrowed down by concentrating on PFM in two sectors, namely health and education. Both sectors feature prominently in Malawi’s PRSP and are at the same time considered pilot sectors for its decentralisation policy. 42 German Development Institute
Public Financial Management for PRSP Implementation in Malawi The study intends to focus not exclusively on PFM at central but also at local government level. Because the situations differ significantly in urban and rural districts, the research team decided to concentrate on rural districts, given that roughly 85 percent of the population and 90 percent of Malawi’s poor live in these areas (Ellis et al. 2003, 1497; IFAD 2002, 9). The team selected two rural districts (Dedza in the central region and Rumphi in the north), choosing one considered a relatively good performer and one considered to face particularly many challenges regarding PFM (for a map of Malawi, see Annex 4). By resorting to this maximum difference sampling strategy, the study aims at covering the broadest possible range of performance in order to identify critical differences as well as general features in terms of factors and context conditions. 4 Therefore, in addition to PFM performance, three other criteria have been taken into account for district selection: — Pilot-districts for devolution in the education sector; — Different donor agencies involved in decentralisation/PFM activities at district level; — Regional and political party division in Malawi. The analysis is predominantly based on qualitative data collected during a three month field trip to Malawi. The main instrument of data collection has been semi-structured interviews with individually adjusted interview guidelines. Furthermore, official documents as well as grey literature have been collected. Data from a number of non-participatory observations and informal conversations complement the data gained through interviews and documents. The analysis of these data has been qualitative and guided by the principles of Grounded Theory. Annex I provides more details on methodology and research strategy. 4 For the initial evaluation of the districts’ PFM performance, the research team relied on assessments by different stakeholders in Malawi, in particular the local partner institution for this project, the National Local Government Finance Committee as well as donor representatives involved in activities with local governments. German Development Institute 43
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Public Financial Management for PRS
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Studies Deutsches Institut für Ent
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Preface The present study on ‘Pub
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Discussion Paper 16/2007 Schirm, St
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