One of the consequences of the civil strife that began in 1988 was the alienation of many local governments from the effective authority of Mogadishu. Whereas the domestic situation as of May 1992 remained unstable, the trend appeared to be toward a decentralized system of local government similar to that existing prior to the 1969 coup. The constitution of 1961 had provided for the decentralization of administrative functions wherever feasible, and throughout the country elected councils had been responsible for municipal and district government. However, direct supervision of local government affairs by central authorities also was part of Somalia's recent history, and a return to a centralized system could not be ruled out. Indeed, the local government structures that existed in 1992 were the same ones that had been established during Siad Barre's dictatorship.

One of Siad Barre's first decrees following the 1969 military coup dissolved all the elected municipal and district councils. This edict was followed by acts that eventually reorganized local government into sixteen regions, each containing three to six districts, with the exception of the capital region (Banaadir), which was segmented into fifteen districts. Of the total eightyfour districts, some were totally urban, while others included both urban and rural communities. Local government authority was vested in regional and district councils, the members of which were appointed by the central government. A 1979 law authorized district council elections, but reserved to the government the right to approve candidates before their names were submitted to voters. Permanent settlements in rural areas had elected village councils, although all candidates had to be approved by government officials at the district level.

The Ministry of Local Government and Rural Development exercised authority over the structure of local government. Throughout Siad Barre's twenty-one-year rule, a high-ranking military officer usually headed this ministry. Military officers also were appointed as chairmen of the regional councils. Most members of the regional and district councils were drawn from the army, the police, and security personnel. Such practices ensured that those in charge of carrying out administrative functions at the local level were directly responsible to Mogadishu.

All levels of local government were staffed by personnel of the national civil service who had been assigned to their posts by the central authorities. Local councils were permitted to plan local projects, impose local taxes, and borrow funds (with prior ministerial approval), for demonstrably productive development projects.