With support
from and in collaboration with the National Democratic Institute
(NDI), the Lebanese Center for Policy Studies conducted a multi-faceted
feasibility study to assess the need for the establishment of a
Municipal Resource Center (MRC) in Lebanon. The objectives of
the study were to identify the main challenges faced by municipalities,
to pinpoint their needs, to determine municipal officials' receptivity
to establishing an MRC in Lebanon, and to prepare a programmatic municipal
proposal.
In preparation for the project, the LCPS team reviewed the existing
literature of previous initiatives on municipal development programs.
The team also reviewed a bibliography selected by NDI, such as case
studies by Atallah and EL-Kak on specific municipalities, and a survey
targeting the background of Municipal Council officials in Lebanon,
as seen in the work by Baaklini. Notwithstanding a number of relevant
publications issued by the Center itself in past years, though none
of the mentioned works has thoroughly treated and determined the needs
of municipalities as institutions and their council members. The team
also documented and took into account major local and international
initiatives for the development and enhancement of municipal tasks
which were also provided by NDI, thus drawing from the various examples
of municipal resource associations in various countries.
Following several consultative and preparatory meetings with NDI,
the LCPS to achieve the project objectives launched the field research
which consisted of three components:
1. Implementation of a national survey,
2. Conducting 28 in-depth interviews, and
3. Holding four focus groups with municipal officials.
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1. National Survey of 350 Municipalities
The main purpose of this close-ended survey questionnaire of 350 municipalities
was first to seek factual information and knowledge on human resources
and structures and to quantify the challenges faced by municipalities
since the elections of 1998. The LCPS team, in consultation and collaboration
with NDI and various experts prepared the questionnaire targeted towards
municipal council presidents (See Annex #1). The final draft consisted
of 31 close-ended questions: the first part tackled municipal structural
issues such as size and location of the municipalities; and the second
part dealt with the role and priorities of municipalities and their
different challenges whether financial sources, staffing procedures,
level of skills, citizen outreach and relationship with each other
and with other institutions.
The survey was commissioned to Statistics Lebanon, which chose a sample
of one out of two municipalities as its target, thus 350 Lebanese
municipalities were surveyed (See Annex # 2 for list of municipalities
surveyed). Due to the subject matter of the questionnaire, Statistics
Lebanon recruited and trained a special team to carry out the interviews,
after having tested their efficiency with 10 pilot questionnaires.
Upon completion of the survey and data entry, the firm provided the
Center with a set of reports which compiled a large number of quantitative
tables analyzing each question. A first general report showed the
results in percentages according to answers in each question (see
general results of survey, annex # 3). A second report was a cross
tabulation by Caza (district), and the third report was prepared according
to three variables: the number of council members, the size of a village
(size of population) and the current situation of municipalities.
The results were analyzed and a detailed report describing the findings
was prepared (see report of survey results, annex # 4).
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2. In-depth Interviews with Municipal
Council Presidents (MCP)
The second component of the field research was the conducting of 28
open ended in-depth interviews, which represented the qualitative
analysis in comparison to the survey statistics and numbers. After
numerous in-house meetings and with close consultation with NDI through
the use of conference calls, the LCPS team outlined a skeletal set
of 13 questions. The questionnaire was designed to guide the interviewer
and to incite municipal council presidents to disclose and elaborate
on their problems and opinions around municipal work, and to provide
functional and practical suggestions about a potential MRC based on
their experience. Such questions on the relationship of municipalities
with citizens and the government, the cadre, skills and number of
municipal employees, the management of local funds, and the work of
municipal councils as well as municipalities' relationship with civil
society organizations were included (see interview questionnaire,
annex # 5).
The criteria used for selecting municipalities was made according
to size (population), location (urban/rural), and district (North,
South, East, West). In this context, interviewers conducted seven
interviews in the South, seven in the Bekaa, nine in Mount Lebanon,
and five in the North. (See list of interviewed MCPs, annex # 6).
All the interviews were taped and thoroughly transcribed. The LCPS
team held several meetings to discuss the main features that surfaced
out of both the interviews and the survey.
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3. Focus Groups
The LCPS planned, organized a set of four focus group meetings which
aimed at collecting a more qualitative exchange of concerns and determining
the participants' opinions and views on specific issues. In preparation
for the focus group meetings the LCPS met on several occasion to discuss
the major topics and questions to be raised, define the guidelines
for the evaluation of certain behaviors and ideas that might be generated
from the meetings. The LCPS team carefully chose the different groups
of guests to these gatherings, selecting each time an approximate
list of 9 to 10 participants in order to enhance the networking feature
of the meetings. As a result, the four focus groups held between December
2000 and February 2001. They brought together 25 participants including
municipal council presidents, municipal council members, researchers,
experts, academics, and lawyers who have first hand knowledge about
municipalities, as well as NGO representatives and citizens concerned
with municipal issues or have worked with them. (see list of focus
group participants, annex # 7).
Dr. Nasr and Fares Abi Saab moderated the meetings, without however,
excluding the participation of the other researchers on the team.
NDI staff members attended and participated in the four meetings which
tackled more or less the same problems, similar concerns and suggestions,
however with different perspectives and readings of the situation.
The focus groups proved to be beneficial as they created an opportunity
for municipal officials to meet and share their concerns with each
other. They also served as a forum for generating new ideas and were
the most interactive component of the research, as it allowed an in-depth
exchange of ideas and opinions between municipal members and leaders
and the rest of the guests. The LCPS and NDI used these occasions
of the focus group meetings to provide MCPs and MCMs with the available
research and publications on municipal governance.
In addition and as discussed with NDI, the LCPS organized a special
meeting, assembling a concerned group of five civic-minded urban planners
and architects (see list of names, annex # 8) who are involved in
work with municipalities. The urban planning meeting, as termed by
the team, provided a different standpoint and opinion on the municipal
institutions and their work. The meeting highlighted the problems
between the urban planners and the municipalities, as well as characterized
the relationship between the municipalities and civic society and
higher authorities, and within the municipalities themselves. The
meeting also brought to the forefront the various difficulties and
obstacles faced by both the municipalities and urban planners during
all the stages of their work, i.e. during the conception, approval
and the implementation of projects.
The focus group meetings as well as the urban planning meeting were
all transcribed and summary reports organizing and synthesizing all
the information generated were prepared. Also, various in-house meetings
were held in order to discuss the main features, the reports as well
as the proceedings of the focus groups. In conclusion, the results
of the interviews as well as the meetings were analyzed and compiled
in a comprehensive report (see report of interviews and focus group
meetings, annex # 9).
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Workshop on Municipal Development in Lebanon
To present the survey, focus group and interview findings and in order
to fine - tune proposed functions and programs of a municipal development
program, the LCPS in coordination with NDI organized a workshop on
the " The Development of Municipal Work in Lebanon". The workshop
was held on April 27th, 2001 at the American University Alumni Association
in Beirut.
The workshop assembled 44 participants of which 15 were Municipal
officials from all the regions in Lebanon, and the rest were divided
among researchers and experts in municipal development as well as
academics and NGO representatives who work with municipalities. (See
participant list, annex # 10). The workshop was inaugurated by the
Dr. Salim Nasr, LCPS General Director, and Mrs. Heba El-Shazli, deputy
regional director of NDI who presented an overview and purpose of
the project. The workshop was divided into two sessions (see workshop
agenda, annex # 11) in which LCPS researchers; Mr. Fares Abi Saab
and Ms. Dima Sader presented the findings and research results of
the national survey, the focus groups and the interviews. Following
the presentations the floor was open for general discussion and questions
regarding the research findings. The second session was devoted to
a discussion regarding practical programs that could enhance the work
and the development of municipalities. Participants were given the
opportunity to provide suggestions for useful programs that would
assist municipalities and enhance their capacities. Participants were
also given the opportunity to voice their opinion and give their suggestions
based on the research findings by filling out a form of suggested
practical steps and proposed programs which would assist municipalities
in their endeavors.
The workshop was an opportunity to bring together MPs and MCMs to
come together from different parts of the country and to share their
views about common issues of interest and concern to them. The discussions
generated from the workshop were rich in substance and they provided
the LCPS team with useful feedback on the results they had introduced
to the participants. Upon conclusion of the workshop, the workshop
proceedings were tapped and transcribed thoroughly. Conclusive team
meetings were held in order to prepare the outline for the final report
and discuss the draft narration. In-house sessions were also useful
to debate and agree upon the various ideas for the design, functions
and programs that would be undertake by a potential Municipal Development
Program whose main purpose would be to empower municipalities and
build their capacities to better serve their community.
