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RELATIONSHIP BETWEEN MONITORING, EVALUATION,
ACCOUNTABILITY AND SERVICE QUALITY IN WATER PROJECTS
1
Dr. Patrick Joseph Owuori, PhD, *
2
Dr. Judith Bwonya, PhD,
3
Saronge Ngala
Bonnyventure,
4
Prof. Evans Aosa, PhD,
1*
Dr. Eng. Patrick Joseph Owuori, PhD, MBA, BSc (Eng. Civil), PE, MIEK, MCIArb
2
Dr. Judith Bwonya, MB ChB, MPH, PhD, MBS
3
Saronge Ngala Bonnyventure
4
Prof. Evans Aosa, PhD, Professor, Strategic Management, Department of Business
Administration, School of Business, University of Nairobi, Kenya
Publication Date: April 2022
ABSTRACT
The success of projects plays a key role in achieving organization growth and development. For
the project success to be realized, it requires project monitoring and evaluation exercise. This
adds value to the overall efficiency of project planning, management and implementation by
offering corrective action to the variances from the expected standard. Monitoring and
evaluation systems can aid in promoting greater transparency and accountability within
organizations and governments. Monitoring and evaluation can be done at the project, program,
or policy levels. This paper aimed at establishing the contribution of M&E in promoting
effective service delivery, focusing on three variables for measuring the contribution of M&E
on service delivery. The study considered factors like management decisions, accountability,
efficiency, effectiveness and transparency as important measures of service quality. There is a
growing recognition that takes a stance on service delivery stating that, in order to improve
public service delivery, it is not enough to concentrate merely on the monitoring and evaluation
mechanisms. When privatizing water systems, a project evaluation might involve the
assessment of the improvement in water fee collection rates for instance. Generating and using
information on the performance of service providers by both government and non-governmental
actors can lead to substantial enhancement of public transparency and accountability, which in
turn fosters adherence to higher quality standards in service delivery. The discussion from the
paper will enable organizations adopt best practices in improving the service delivery. The paper
elucidates that in order to improve service delivery, there is need to ensure improved
infrastructure and equipment, better technical capacity and internal reforms, which all are
complementary to building capacity for greater accountability. The paper recommends on the
need for examining the roles or influences of monitoring practices that have not been covered
in the study on sharing and transferring project management skills, cognitive skills, technical
skills, human skills within or outside organizations projects.
Key words: Impact Evaluation, Performance, Public Services, Service Delivery, Organisations.
PROJECT
MANAGEMENT
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1.1 Introduction
Monitoring and evaluation is an integral part of the project’s design, implementation and
completion (Chaplowe, 2008). Monitoring and evaluation entails tracking the performance of
programmes, policies, and projects with ongoing assessments of costs, deliverables, and
timelines to ensure that implementation is accomplished as planned (Haque & Khan 2014).
Monitoring and evaluation as a management tool for efficient governance has become an
important source of learning to improve planning, service delivery, and ideal appointment of
resources (Abrahams, 2015). With the arrival of globalisation, there are developing
requirements for social entities and associations around the globe to be more receptive to the
requirements of stakeholders for competitive governance, transparency, accountability, more
viable improvement, and conveyance of substantial outcomes (Haque & Khan, 2014). Although
monitoring and evaluation are not of inherent value by themselves, the information they provide
is significant to improving performance (Mackay, 2010), which helps in learning from
what/how we are doing or have done by focusing on efficiency, effectiveness, impact, relevance
and sustainability (Hunter, 2009). Naidoo (2011) argued that a sound M&E should not just
improve compliance, it should also enhance the reflective capacity of organisations, whilst
simultaneously increasing transparency, accountability and supporting a culture of learning.
Monitoring and evaluation systems vary with type, sector and country of application (Pearce,
Robinson & Subramanian, 2002; Fitzgerald, Posner & Workman, 2009). Rural areas in Africa
remain severely disadvantaged without sustainable water supply projects. Only 47% of the
rural population of sub-Saharan Africa has access to an improved water source
(WHO/UNICEF 2015). Regionally, poor performance of projects has been attributed to the
lack of project monitoring and evaluation practices including planning (Ihuah & Kakulu, 2014).
Sustaining a functional rural water supply infrastructure has been a challenge in Sub-Saharan
Africa. In Tanzania, nearly half of rural water points are not functional and about 20% of newly
constructed water points become non- functional within one year due to lack of monitoring and
evaluation practices and specifically planning. Rural citizens soon return to traditional,
unimproved water sources and endanger their health and well-being (Gine & Perez-Foguet,
2008). The performance and sustainability of water supply projects has been prophesied as a
promising direction for a variety of communities in Kenya (Dube, 2012) Formal monitoring
and evaluation systems as practiced in Kenya have not fully been incorporated in the
government projects control systems (Abdulkadir, 2014). Kenya’s Vision 2030 has an
ambitious target of ensuring universal access to water and improved sanitation services by the
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year 2030. This aspiration is also reflected in the Kenya Environmental Sanitation and Hygiene
Policy (KESHP) 2016 - 2030 that aims at ensuring 100% access to improved sanitation services
by 2030 (Republic of Kenya, 2016).
1.2 Monitoring and Evaluation
Monitoring and evaluation (M&E) has become an increasingly important tool within global
efforts toward achieving environmental, economic and social sustainability through acting as
a check and balance machinery in the process of projects and programs implementation
(OECD, 2015b). Monitoring and Evaluation is a combination of two processes which are
different yet complementary (Gorgens & Kusek, 2009). It is a process of systematically
collecting and analyzing information of ongoing project and comparison of the project
outcome/impact against the project intentions (Hunter, 2009).
Monitoring and evaluation include the proper management of budgets and personnel and legal
and regulatory compliance with processes and procedures, where deviation from any of the
standards invites censure (Phiri, 2015). However, Tuckerman (2008) contradicts the statement
by insisting that the propensity for M&E to be utilised in decision making is higher when
administrators and policymakers hold M&E in high regard, creating a conducive atmosphere
for good governance. Monitoring and evaluation is a major success factor for a project (Ika et
al, 2012).
Ramothamo (2013) argues that each M&E entity that functions at different levels and each
function should be tied to specific time. Time, cost and quality are, however, the predominant
performance evaluation dimensions. Another interesting way of evaluating project
performance is through common sets of indicators (Pheng & Chuan, 2006). Hwang and Lim
(2013) argue that monitoring and evaluating practices, fund management and activity
scheduling could result in the success of the project at hand. Additionally, Kyriakopoulos
(2011) elucidates that it is very important to carry out frequent monitoring and perform focused
reviews involving all the stakeholders in keeping the project on track. Finally, during project
closeout, monitoring and evaluation just like other management activities is less intensified
compared to the execution stage. Most of the monitoring activities during this stage involve
reporting on the project outcome and preparing for future projects (Kyriakopoulos, 2011; May,
2011; Müller & Turner, 2007; Khang & Moe, 2008). Failure to implement projects successfully
can result in unintended outcomes and impacts. This success requires an all-inclusive
stakeholder monitoring and evaluation framework approach. Yet this is often lacking,
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ultimately leaving most of the already started projects to tarry from implementation (Kyalo &
Muturi, 2015).
1.3 Accountability
Accountability encompasses the acknowledgement and assumption of responsibility for
actions, decisions and policies (Mulgan, 2000). Goetz (2005) argues that to define
accountability principles means to define who has the power to call for an account and who is
obligated to give an explanation for their actions. Accountability is also the appropriate
accounting policies that strengthen account-giving relationships among individuals, especially
in a governing system. Accountability could be broadly classified into seven types: moral,
administrative, political, managerial, legal/judicial, constituency relations and professional
(Busuioc & Lodge 2016). Accountability in M&E is associated with auditing, compliance and
performance management by oversighting (Cook, 2006). Mackay (2009) suggests that
monitoring and evaluation is necessary to achieve evidence-based policy-making, management
and accountability.
Accountability has been seen as a means to achieve particular conceptions of government or
public service (Lodge & Stirton 2010; Hood, 2010). According to Milward and Provan (2006)
accountability in this sense is seen as two-sided, implying both a willingness to take
responsibility for one’s action and an expectation that these actions will be recognized.
Accountability can also be defined differently based upon social, political, cultural and
institutional conditions (Dubnick & Frederickson, 2011a). To explain and to justify their
conduct, public organizations release information about their actions to the public. Thus,
accountability is often seen as ‘’transparencyof information. In addition to definitions of the
concept, a variety of frameworks for understanding accountability and its relationships has
developed (Brandsma & Schillemans, 2013). The majority talk about a conflicting nature of
accountability to which managers have to respond (Schillemans & Bovens, 2011).
1.4 Service Quality
Service quality dimensions have been seen as critical for the success of organizations because
of their close link with customer satisfaction (Tan, Oriande & Fallo, 2014) and more so in the
service industry. Several empirical studies (Nimako, Gyamfi, Mumuni & Wandaogou 2013;
Uddin & Bilkis; 2012) indicate that perceived service quality is the antecedent of customer
satisfaction, gives direct and indirect effects on behavioral intentions and positively influences
customer satisfaction. Jiang and Wang (2006) define service quality as the consumer’s
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evaluation of the service performance received and how it compared with their expectation.
Despite the variety of definitions of service quality, most of the authors agree that service
quality is a multidimensional construct due to its elusive nature.
Service quality has been defined as a form of consumers’ attitudes toward a specific service
and their overall evaluation of the service provided (Iqbal, Ahmad & Nasim, 2016). Service
firms should therefore, deliver flawless service in order to satisfy potential customers. The
widely used definition of service quality is the difference between consumers’ perceptions of
the services provided by a service firm and their expectations toward that service. This
definition was the most cited definition by the other researchers for defining service quality
(Mestrovic, 2017; Ismail and Yunan, 2016; Iqbal et al., 2016; Kaushal, 2016). This definition
implies that, when consumers’ perception exceed their expectations, they are satisfied and the
service firm delivers superior service, while when consumers’ perception is less than their
expectations, this indicates that consumers are dissatisfied with the service and the firm
provides an inferior service.
Service quality can differentiate service firms from one another by providing a long-lasting
competitive advantage (Boshoff & Gray, 2004). In order to succeed in a competitive
environment, service firms must focus on the standard of service they provide (Chen & Li,
2017). Service quality is a perceived judgement resulting from the assessment of the expected
service compared with the perceived service (Chawla & Sharma, 2017), thus it is determined
by subjective evaluation of the perceived service rather than objective assessment (Chen, Li,
& Liu, 2017).
Recognizing dimensions of service quality and the importance of each of these dimensions for
customer as well as expectations and perception analysis in relation to each of these dimensions
is the first step in providing service with quality to customers (Kimasi, Karimi & Rastian
Ardestani, 2014). Service quality is one of the significant structures that explain and justify
behavioral objectives related to future and desired effects on the financial results and
consequences of a company. Considering the importance of service quality, it is no wonder that
many researchers have dedicated themselves to understanding its dimensions (Nejadjavad &
Gilaninia, 2016).
Service quality is a multi-dimensional construct (Kouthouris & Alexandris, 2005, thereby,
Kang and James (2004) suggest that consumers use similar criteria in order to evaluate the
quality of service regardless of its type. They argue that these criteria fall into 10 categories
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called service quality determinants: Reliability, Responsiveness, Competence, Access,
Courtesy, Communication, Security, Credibility, Understanding and Tangibles. Due to the
overlapping between some of these dimensions, the 10 categories were condensed into five
dimensions (Reliability, Tangibility, Responsiveness, Assurance and Empathy) that make up
SERVQUAL, which is the instrument they proposed to measure service quality. It is important
to note that SERVQUAL only measure functional quality that is perceived by consumers in
order to evaluate the service (Kaushal, 2016).
1.5 Objectives
The paper sought to establish the relationship between monitoring, evaluation, accountability
and service quality.
2.1 Theoretical Underpinning
2.2 Theory of Change
Theory of Change (ToC) traces its origin from the 1950s with Kirkpatrick’s famous model.
Theory of change is part of the program theory that emerged in the 1990s as an improvement
to the evaluation theory (Stein &Valters, 2012). The focus of this theory is on how to bring
about change, and who is responsible for the change. Program theory provides tools to control
influential areas in monitoring and evaluation (Müller & Turner, 2007). The theory of change
gives tools to determine areas of impact in evaluation (Müller & Turner, 2007).
Theory of Change (ToC) makes organizations think about planning in a different way from the
traditional planning practices such as the logic models (Taplin, Clark, Collins & Colby, 2013).
Theory of Change is used as a project management technique (Bisits-Bullen, 2014). In other
cases, it is brought to life by other tools such as the Logical Framework Approach (Bakewell
& Garbutt, 2005). Theory of Change is used by a wide range of actors in the development
community, both donor and implementing agencies (Vogel, 2012).
Using the theory of change, M&E practices can be regarded as inputs whose outcome will be
visible in more effective M&E systems. The theory of change can indicate which aspects of
implementation need to be checked for quality, to help distinguish between implementation
failure and theory failure. It also provides a basis for identifying where along the impact
pathway (or causal chain), an intervention may stop working. The theory is applied in the input
output model to monitor performance, communicate findings and improve project
performance.
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2.3 Monitoring, Evaluation, Accountability and Service Quality
Mardini, Pramuka and Putri (2020) examined the relationship between accountability,
transparency, service quality and loyalty and established that accountability, transparency, and
service quality have a significant and positive effect towards loyalty of zakat payers.
Quantitative approach was used to collect primary data. The data was collected using
questionnaires. Convenience sampling method was used. Data was analyzed using multiple
regression analysis.
Sofyani, Riyadh and Fahlevi (2020) studied way of improving service quality, accountability
and transparency of local government. Data was gathered through questionnaires distributed
directly to the respondents. The respondents are LGOs employees who are involved with e-
government implementation. The number of distributed questionnaires was 200, but there were
only 141 returned and analyzed. The partial Least Square-Structural Equation Modeling (PLS-
SEM) was utilized to analyze the data. The results of this study demonstrate that the culture of
compliance in information technology (IT) associates with service quality, accountability, and
transparency indirectly through effective IT governance (ITG). Sofyani and Dwirama (2018)
have investigated the level of information disclosure on local government websites in
Indonesia. They found that local government websites have not fully provided important and
sufficient information for the public.
Olatokun and Ojo (2014) did a study on the influence of service quality on consumers’
satisfaction with mobile telecommunication services in Nigeria. Using survey design, the study
assessed customer satisfaction with mobile telecommunication services in Ibadan, a Nigerian
municipality. A structured questionnaire, consisting of SERVQUAL dimensions of reliability,
responsiveness, assurance, empathy and tangibility, was used to collect data. Convenience
sampling technique was used to select 431 mobile telecommunication users to measure their
satisfaction level. Findings revealed responsiveness, assurance and empathy to be significant
in explaining customer satisfaction. Aliata, Ojera and Mise (2016) study revealed that service
quality significantly contributed to customer satisfaction. The study examined the relationship
between service quality and customer satisfaction of commercial bank customers, Nairobi
Kenya. A sample of 384 was drawn using proportionate stratified random sampling technique.
Rezania, Baker and Nixon (2019) explored project managers’ accountability. The study was
guided by critical realism as a philosophy of science. Desk information on the existing project
management accountability literature was used. The study results revealed that practice of
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socializing accountability through face-to-face negotiation and symmetries of power due to
interdependencies happen to some extent in management of projects. It was evidence that there
was ambidexterity in accountability in project-based organizations.
Wilson, Bernard and Wario (2020) studied the effects of monitoring and evaluation framework
on performance of public sector. The study was a case study design adopting a quantitative and
qualitative approach. Target population of 73 where by a sample of 62 respondents was used.
Questionnaire and interview were used to collect data for the study. Descriptive statistics and
Pearson's correlation coefficient were used. The findings revealed a high influence of M&E on
performance of Ministry of Mining and a strong positive relationship between M&E
Framework and Performance of Ministry of Mining.
Ojok and Basheka (2016) study on effectiveness of the role of public sector monitoring and
evaluation in promoting good governance revealed that M&E accountability, M&E
management decision and M&E organisation learning had significant roles in promoting good
governance in the Ministry of Local Government. The study employed a case study design in
collecting quantitative and qualitative data, used descriptive and inferential statistics to analyse
data. Naidoo (2011) examined the role of M&E in promoting good governance in a department
of Gender in South Africa and established that whilst information has been generated through
different forms of M&E, without effective follow-through by decision-makers, it generated
transparency not accountability.
Al-Azzam (2015) studied the impact of service quality on customer satisfaction: a field study
of Arab Bank in Irbid City, Jordan. The study used the model of service quality with five
dimensions to evaluate its effect on the customer satisfaction. The results indicated that the
higher the service quality, the more the customer’s satisfaction. Rahhal (2015) evaluated the
effects of service quality on customer satisfaction: an empirical investigation in Syrian Mobile
Telecommunication Services. Convenience sampling was used to select 600 mobile phone
service users and was distributed among the Damascus and Aleppo. Confirmatory factor
analysis was used in the analysis. The findings of the study showed the direct significant impact
of service quality on customer satisfaction.
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2.4 Conceptual Model
Independent Variable Dependent Variable
Extraneous Variable
3.1 Methodology
The paper utilised a qualitative method which is grounded on conceptual analysis, theory
building and literature reviews. The study considered the role of impact of monitoring and
evaluation on service delivery in the water service projects as moderated by accountability.
The paper will be significant to institutions in determining the importance of adopting the best
practices that will create the enabling environment for improved service delivery and
accountability.
4.1 Discussion and Conclusion
The discussion on service quality in public projects has been long overdue. Executives of
service organizations are aware that superior quality would be led to better performance and
have benefits like customer loyalty, responding to their needs, market share growth and
productivity for enterprises. They use the quality of service as a lever to create competitive
advantage. The highest aim of assessment of services quality is focused on physical conditions
(facilities), interpersonal (among employee and customer and customer- customer) and basic
services.
Finally, the Theory of Change provides a profound information on how the planned activities
for specified target persons represents the expected social benefits. The theory will assist
organizations establish funds utilizations plans thereby improving service delivery systems.
The M & E practices are the basic inputs, which when utilised well, equates to the processing
Monitoring and Evaluation
Service Quality
Accountability
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of the inputs and eventually give measurable output. Theory of Change explains the effects of
influencing the input and processes to achieve better output, and yield good results.
The desire to offer services with quality plays a crucial role in service industries such as the
water projects because service quality is vital for the survival and profitability of organizations.
Another point to note is that, while accountability is not a silver bullet, it is a powerful driver
of change and improved performance. To really improve service delivery, it needs to be
accompanied by other elements (such as increased resources, improved infrastructure and
equipment, better technical capacity and internal reforms), which all are complementary to
building capacity for greater accountability.
In conclusion, there is a universal consensus that public service organizations should provide
efficient services to the public. However, how do these organizations determine what works
and what does not work in order to provide satisfactory services? This paper has attempted to
illustrate the role of monitoring and evaluation in ensuring accountability in the service
delivery. The discussion from the paper will enable organizations adopt best practices in
improving the services delivery. From the paper, it is thus evident that the role of monitoring
and evaluation through intervention of accountability is rapidly emerging as the prevailing
international standard to evaluate policies and programs in public service organizations in order
to enhance efficient delivery of services. This paper harmonizes with other empirical evidences
that illustrate the significance and the role of accountability on monitoring and evaluation as a
management tool for improving service delivery within organizations, particularly in the public
sector.
The paper recommends the need for examining the roles or influences of monitoring practices
that have not been covered in the study on sharing and transferring project management skills,
cognitive skills, technical skills, human skills within or outside organizations projects.
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