Decentralization and Pro-poor Participation in Ghana: Unmasking the Barriers to Inclusive Grassroots Development

Abstract

Donors have strongly advocated decentralization on the grounds that it broadens the participation of citizens in development processes, thereby increasing government responsiveness to their needs. Although there have been studies seeking to establish the veracity of this claim, they remain weak on two fronts. One, while wealth differentials affect citizen participation, these studies approach citizens as a homogenous group. Two, participation is mostly viewed narrowly—participation in elections. Drawing on empirical data from Ghana’s decentralization reform, this paper addresses these gaps by questioning how pro-poor citizen participation in decentralized development planning has been. I argue that although Ghana’s decentralization was propagated on championing pro-poor grassroots participation in governance and development, in reality, participation is elitist and has failed to reflect the voices of the poor. My findings demonstrate that the participation structures and processes used in local development planning are unfavourable to the poor in many respects. Elite and representative participation is promoted to the detriment of broad citizen participation. This exclusion is resulting in surging apathy of citizens towards the district assemblies—institutions hitherto trusted as their development champions. This paper concludes that the poor will remain voiceless despite decentralization unless the structural barriers to their participation are tackled in decentralization design and praxis.