Since the introduction of the Comprehensive National Development Planning Framework
(CNDPF) in 2007, a number of changes in the planning system have occurred. The CNDPF
itself presented a shift in the development planning mechanism from a needs-based to a proactive
vision-based planning. Other changes include development of the Uganda Vision 2040, and the
National Development Plan; the emergence of Local Economic Development (LED) as one of
the pillars of decentralization; the emerging emphasis of Public Private Partnerships in planning
and the need to provide for adequate participation of non state actors in the planning and budgeting
These changes have resulted in the need to adapt the Local Government Development Plans to
the new planning paradigm; strike a balance between bottom-up and top-down influences expected
out of the Vision 2040 and the National Development Plan (NDP) framework; re-orient
Local Governments from being mere service delivery units to wealth creating entities that will
facilitate socio-economic transformation; ensure effective participation of Civil Society Organisations
(CSOs) and the private sector in the Local Government planning process; and ensure harmonization
of physical planning with socio-economic planning. These changes, among others,
necessitated the review of the existing planning guidelines to provide guidance and support to
Local Governments in the planning process.
In consultation with representatives of Local Governments, Non-Government Organizations
(NGOs), Ministries, Departments and Agencies (MDAs), Development Partners, National Planning
Authority (NPA) has developed Local Government Development Planning Guidelines to
facilitate LGs to prepare and align their development plans to the National Development Plan
and the national aspirations as expressed in the National Vision. These Guidelines replace all the
other existing guidelines and I urge all players to follow them closely to achieve our Vision aspirations.
At the heart of these guidelines is a recognition that effective consultation and consensus
building is critical for the development of successful Local Government Development Plans.
On behalf of NPA, Government and on my own behalf, I wish to thank the various stakeholders
who have made valuable contributions through well-considered submissions that have been
carefully taken into account in finalizing these Guidelines. Specifically, I wish to extend my recognition
and gratitude to the Board, Management and technical team of NPA, and the Technical
Working Group for providing quality assurance of the guidelines. I would like in a special way
to thank UNDP for the continued financial and technical support to NPA, and specifically for
funding the development of these guidelines.

It is my wish, desire and belief that the coming Local Government Development Plans will be
greatly improved thus impacting quality of service delivery in the Local Governments. I once
again, wish to appreciate all stakeholders who have contributed to the development of these
guidelines and I call upon the Local Governments and all stakeholders to utilise them in the development
and implementation of their development plans.
For God and My Country

Hon. Matia Kasaija
Minister of State for Finance, Planning and Economic Development (Planning)


ATC: Assistant Town Clerk
AWP: Annual Work Plan
CAO: Chief Administrative Officer
CBOs: Community Based Organizations
CEO: Chief Executive Officer
CNDPF: Comprehensive National Development Planning Framework
CSOs: Civil Society Organisations
DEC: District Executive Committee
DPA: District Planning Authority
DPs: Development Partners
DPUs: District Planning Units
DTPC: District Technical Planning Committee
EMIS: Education Management Information System
FBOs: Faith-based Organisations
GoU: Government of Uganda
HLG: Higher Local Government
HMIS: Health Management Information System
JARD: Joint Annual Review of Decentralization
LG TPC Local Government Technical Planning Committee
LGA: Local Government Act
LGDP: Local Government Development Plan
LGDPG: Local Government Development Planning Guide
LGMSD: Local Government Management and Service delivery program
LGs: Local Governments
LLG: Lower Local Government
M&E: Monitoring and Evaluation
MC: Municipal Council
MC PU: Municipal Council Planning Unit
MC TPC: Municipal Council Technical Planning Committee
MDAs: Ministries, Departments and Agencies
MIS: Management Information System
MoFPED: Ministry of Finance, Planning and Economic Development
MPS: Ministry of Public Service
NAADS: National Agricultural Advisory Services
NDP: National Development Plan
NGO: Non Governmental Organisation
NPA: National Planning Authority
NPP: National Population Policy
NUSAF: Northern Uganda Social Action Fund
OBT: Output Budget Tool
PDC: Parish Development Committee
PEAP: Poverty Eradication Action Plan
POCC: Potentials Opportunities, Constraints and Challenges
POPDEV: Population and Development
PSOs: Private Sector Organisations
SDPs: Sectoral Development Plans
STPC: Sub County Technical Planning Committee
VEC: Village Executive Committee


Challenges: These are external factors or obstacles (outside the LG’s control) that may hamper
smooth development effort.
Constraints: These are disadvantages coming from internal factors such as failures in institutional,
human and physical resources, etc, that might hinder the LG from achieving the selected
development targets. Examples of constraints are an uneducated and unskilled labour force, environmental
hazards, rapid population growth, ethnic conflicts, etc.
Cross-cutting issues: These are issues that can contribute to accelerating or derailing the progress
of development. It is therefore prudent that they are prioritized. They are i) Gender, ii) Environment,
iii) Human rights, iv) Disability, v) Nutrition, vi) Governance, vii) Population and
Development, viii) Science and Innovation, ix) Child health, x) Social Protection, xi) Climate
Change xii) HIV/AIDS and xiii) Culture and Mind set. Disaster preparedness is another issue
being added though this may be district specific.
Decentralised Planning: Planning where local governments make their own development plans
guided by the national strategic direction.
Demographic Characteristics: These are the aspects of the population that helps us to understand
the existing diversity, such as age, sex, employment status.
Development Planning: This is the process of identifying problems, needs, priorities, resources
as well as designing action plans with a view of improving the welfare of the people. The development
planning process includes plan formulation, implementation, monitoring and evaluation.
Development Policy: A general course of action or proposed overall direction that a government
or other institution is, or would be, pursuing and which guides on-going decision making regarding
development planning and execution.
Development Potentials: These are internal factors, advantages and resources which when used
can enable the LG to enhance its chances of achieving the selected development targets and aims.
Environmental Mainstreaming: A continuous process of identifying environment and natural
resource issues/ opportunities that contribute to the development goals of an activity identifying
potential impacts and mitigation measures, budgeting for the intervention, monitoring the
implementation of Environment and Natural Resources (ENR) intervention and mitigation in
order to reduce the negative impacts of development programmes” (NEMA) or “Integrating
environmental activities in policies, plans, programmes and projects” NEMA or “Bringing environmental
issues from the ‘background’ into the ‘lime light” Ministry of Local Government.
Financing Framework: Arrangements to raise and use the resources necessary to implement a
development plan.
Gender Mainstreaming: Is the process of assessing the implications for women and men of any
planned action, including legislation, policies or programmes, in any area and at all levels. It is a
strategy for making the concerns and experiences of women as well as of men an integral part of
the design, implementation, monitoring and evaluation of policies and programmes in all political,
economic and societal spheres, so that women and men benefit equally, and inequality is not
perpetuated. The ultimate goal of mainstreaming is to achieve gender equality.” (United Nations
Economic and Social Council).
Indicator: This is data or statistics that describe a person, place or an event and the changes in it.
Indicators are used to describe various aspects of a given situation.
Integration: This is taking into account or incorporating one or more elements into another element
or system. In this case, integration of population issues means making population factors
fundamental to the development planning process.
Interventions: Practical activities undertaken to implement development.
Livelihood Analysis: This is a deep look at what activities people do to go through life, meeting
their basic needs and solving the problems that they face.
Local Government development Stakeholders: Includes all people, organisations and institutions
that are interested and concerned about the development of the local government.
Local Government Planning Cycle: This is the regular period covered by the planning activities
of a local government every 5 years.
Local Revenue: These are financial resources obtained from a particular locality as opposed to
money that comes to a local government from sources outside the local government.
Short Term: A planning period between 1 and 5 years.
Medium Term Planning: The type of planning that usually takes a period of 5-10 years.
Long Term Planning: The is the inspiration type of planning and usually for a period of more
than 10 years.
Monitoring and Evaluation Matrix: This is a simple table in which the results of checking on
the progress of development activities are fitted and documented.
Monitoring and Evaluation: Refers to a process of minitoring a program and evaluating the
impact it has on the target population in order to assess the success and gaps in program implementation.
It is usaully done to ensure whether what is being done is right and is being done in
the right way.
Opportunities: These are the external factors (beyond the LG’s control) that positively influence
development in the LG.
Outputs: These are products or immediate results of development interventions in a given period
in order to achieve stated development objectives. In proactive planning, desired outputs establish
the basis for selecting activities that should be carried out.
Physical Planning: Planning that focuses on the allocation and use of physical space. In Uganda
Physical planning has been an established practice in urban local governments, but is increasingly
becoming a major development issue even for non-urban local governments.
Planning Call Circular: This is the official written communication specifying the procedures,
processes, timeframes and roles and responsibilities involved in a planning cycle by national and
local government units. In Uganda, Planning call circulars are issued by the National Planning
Authority at the start of each planning cycle.
POPDEV planning approach: A planning approach which aims to improve development planning
to make development plans and investment programs more effective, efficient and equitable
by explicitly considering population, gender and sustainable development interrelationships in
each step of the planning process.
Population Profile: This is a summarized description of the demographic characteristics of the
country/ local government. The population profile focuses on the key aspects of the population
that are important to consider in a planning process (population sizes, distributions, settlements,
Progress Reporting: This is a short write up periodically produced to show what is happening to
the development interventions being implemented.