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I. NATIONAL INSTITUTIONAL ARRANGEMENTS FOR INTEGRATING ENVIRONMENTAL CONCERNS
INTO POLICY DECISION-MAKING PROCESSES
[ A | B | C
| D ]
C. Institutional framework
[ C | C-1 | C-2 | C-3 ]
1. Provincial/local governments
Provincial governments have been a critical feature of the administrative and political system of Papua New Guinea. In July 1995 an Organic Law introducing a new system of provincial and local-level governments was passed in Parliament. The changes came about as a result of long-term disillusionment with a system of provincial governments that had failed to improve the delivery of services and had been subject to widespread misuse of public funds. The reforms involve a radical restructuring of the system of government, including the abolition of separately elected provincial governments and the establishment of Provincial Assemblies. The Provincial Assemblies are to be headed by a governor who also represents one of the provincial electorates in Parliament. Interim arrangements were put in place pending the national elections in 1997. The interim Provincial Assemblies were made up of Parliament members; selected members of the previous provincial governments and heads of local councils appointed by the Prime Minister on the recommendation of NEC; and three persons nominated by the provincial executive council and the premier of the previous provincial government.
The Organic Law identifies two levels of administration: the province and the district. Although the composition of the line departments is not specified in the law, it is expected that the major line departments that exist at the national level will be present at the provincial level. That structure is replicated at the district level, with district administrators reporting to the provincial administrator, and district staff reporting to the district administrator. Provincial and district treasuries have been established as an extended arm of the Department of Finance. Provincial budgets must be approved by the Minister of Finance and Planning as well as the minister responsible for provincial affairs.
Section 80 of the Law redefines the role of the national departments, giving them the responsibility for:
- Formulating national policies and coordinating their implementation;
- Providing support to provincial and district administrations to ensure national standards are maintained;
- Supporting research, training and professional development;
- Developing the capacity to implement public sector investment programmes.
Provinces, in turn, are required to provide support to the activities of the national departments. Administrative functions that have been transferred to the provinces include:
- The maintenance of roads, bridges and infrastructure;
- Urban roads, public facilities, the environment and waste disposal;
- Health facilities and programmes;
- Educational facilities and curriculum;
- Housing;
- Water supply.
The reforms were rapidly introduced during the 1993 budget and at present there is considerable uncertainty concerning the funding of national and provincial departments as well as their functions and responsibilities. In particular, there is uncertainty about the lines of authority at the different levels of government. National departments are responsible for overall planning, policies and monitoring, but it is not clear what powers exist to enable those policies to be enforced in the provinces and districts that are entitled to guaranteed independent funding. With respect to environmental and related issues, there is no mention of how decision-making at the national and provincial levels will be coordinated. Operating guidelines that delineate roles and responsibilities are required, together with local representation in the decision-making process to ensure that concerns and policies are taken into account.
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