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Introduction and Analytical Framework
CONTEXT Devolution in Kenya is an integral part of a major constitutional reform, the aims of which are to redistribute political power, establish a more inclusive political system, and share resources more equitably. The centerpiece of this devolution reform was the new Constitution of Kenya of 2010, adopted after a national referendum. It is widely accepted that in the wake of the 2007–08 postelection violence, improving Kenya’s political settlement was the primary driver that led to the reintroduction of devolution after many previous attempts (World Bank 2012). Although improving service delivery may have been implicit in this process, it was not the primary driver or point of discussion. The institutional reforms enshrined in the new constitution were intended to address a range of long-standing grievances—stretching over decades—related to the highly centralized distribution of political power and persistent regional imbalances in development (Boone 2012; D’Arcy and Nistotskaya 2019; Kanyinga 2016; Mueller 2008). Devolution was a key element of the constitutional response to these grievances and, along with other measures, was intended to share the power and authority of central government and an “imperial” presidency—by establishing self-governing county governments—and to reduce regional disparities in development. A decade has now passed since the new constitution was enacted and kickstarted a dramatic transformation of the Kenyan state. Implementing devolution as part of the new constitutional reforms has been immensely challenging. Moving away from a centralized and unitary state to a highly devolved and quasi-federal state has been a multidimensional paradigm shift, requiring major institutional reforms, huge changes in the management of public finances and human resources, and transformations in mindsets and behavior. Guided by the provisions of the 2010 constitution, major political and institutional achievements and reforms have underpinned a radical restructuring of the Kenyan state, devolving significant powers and responsibilities from the national level to the counties.1 County governments in all 47 counties are now well established and have become an entrenched feature of Kenya’s 1
