Download Globalisering og governance

Globalisering og
styresett i sør
Kristian Stokke
[email protected]
Multi-scale and Diffuse Governance
Market
Local
Community
Privatisation
State
Decentralisation
Civil society
Internationalisation
Global
National
Hierarchy
The Washington Consensus
 Early state-led development models
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Market failure  interventionist states
Public enterprises, protective regulation
 Market liberalisation (”structural adjustment”
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Problems of bureaucratisation, state monopoly, state
intervention creating inefficiencies and undermining
markets
State failure  economic liberalisation
”Rolling back the state” through privatisation
 Denationalisation of publix enterprises, subcontracting, self-management, deregulation
 Political conditionalities by donors/IFIs in regard to
loans and aid
State/Market-Relations in Development
 Debates about NICs: Market-led or state-led development
 Wrong question: Not state or market-led development, but what
kind of state (Peter Evans and others)
 Parasitic states: controlled by and used for self-interest og state
elites (corruption and clientelism).
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Inefficient bureaucracy with limited administrative capacity.
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Weak states with limited capacity and accountability.
 Developmental states: weak states that have become strong
through governance arrangements
 Such states are characterised by ”Embedded autonomy” (Evans)
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Autonomy: strong bureaucracy with substantive autonomy in
regard to specific interests
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Embedded: governance through networks with market actors
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Division of labor between market and enabling state institutions
Post-Washington Consensus
 From ”Less Government” to ”Good
Governance”
 Role of state
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Division of labor between state, market and
civil society
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State enabling market-led development
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Accountable and efficient state institutions
 Not how much but what kind of state
New State Roles
 Provision of public goods (for example enforcement
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of contracts, defence)
Provision of some merit goods (for example
education and health)
Development of transportation, communication and
power systems
Dissemination of economic information
Institution of a ’transparent’ and flexible regulatory
framework
Promotion of scientific and technological research
Provision of a safety net for low-income groups
Turner & Hulme p. 185
Elements of Good Governance
 Legal framework for development providing a basis of
stable rules, enforcement and dispute resolution
 Efficiency in public sector management through
appropriate budgeting, accounting and reporting
systems
 Transparency in public sector management through
access to information about handling of resources
 Accountability of both political and official side of
government, mechanisms for holding individuals and
institutions to account
Decentralisation
 Privatisation
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Transfer of functions from state to market
 Deconcentration (administrative decentralisation)
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Transfer of functions from national to local
institutions for public administration
 Devolution (democratic decentralisation)
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Transfer of functions and authority (decisionmaking) to local government
Periods of Decentralisation in Africa
 Golden Age of Local Government (1945 - early 60s)
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Indirect rule (Mamdani: decentralised despotism)
 Decolonisation & state building (early 60s - late 70s)
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State, party and nation-building. Centralised development
planning
 Liberalisation & decentralisation (late 70s - late 80s)
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Privatisation and administrative decentralisation in
context of structural adjustment
 Democratisation & good governance (1990s - present)
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Discourse and attempts at democratic decentralisation
(participation in ’good governance’)
Local Elite Capture (Local Bossism)
 Decentralisation may lead to local substantive democracy, but also
decentralised despotism: local bosses capturing local political power
and control over public resources
 John Sidel on ”local bossism”
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Local strongmen are created as much by the nature of the state as by
that of society (i.e. not simply a local ’tradition’)
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Bossism reflects the subordination of the state apparatus to elected
officials in the context of primitive accumulation
Primitive accumulation; loss of control over means of production/
subsistence, prevalence of economic insecurity (scarcity of wage
work), considerable economic resources within the ”public domain”
This makes voters susceptible to clientelism in a situation where state
offices are crucial for capital accumulation
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 Key factors: nature of public affairs, nature of decentralisation,
nature of local civil society
Democratic Decentralisation
 Experiments in institutionalized local popular
democracy: decentralized planning in Kerala (India)
and participatory budgeting in Porto Alegre (Brazil)
 Common characteristics
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Extensive popular participation, enabled through
devolution of policy-making and institutionalization of
new arenas for democratic participation.
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Policy-making within these new local arenas is based
on deliberative processes.
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A strong ‘practical orientation’ with an emphasis on
concrete socio-economic development needs.
Politics of Democratic Decentralisation
 How do such institutional arrangements for local deliberative
democracy come about?
 Existing literature tends to focus on institutional design and ignore the
political interests, strategies and relative strengths of state, elite and
popular forces involved in the making of local popular democracy
 Participatory budgeting has functioned as a successful political strategy
for PT in Porto Alegre (Rebecca Abers):
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(i) by responding to demands from neighborhood leaders who
would otherwise rely on clientelistic networks within the
opposition party
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(ii) by politically mobilizing and integrating activists from popular
movements
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(iii) by delivering accountable and efficient local government
that especially appeals to the middle classes
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(iv) by strengthening local state capacity and coordination in the
interest of the bureaucracy
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(v) by addressing the prioritized needs of poor people.
The Role of Civil Society
 Civil society as an intermediate sphere of
associational life between the family and the state
 Civil society increasingly seen as a key arena for
development
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Economic development fostered by local
participation and resource mobilisation
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Good governance
(accountability/transparency) fostered
through civic engagement
 Civil society operationalised as non-governmental
organisations or alternatively as social capital
Diversity of the ’Third Sector’
Some critical issues
State/society-relations
(service delivery or political advocacy)
NGO/community-relations
(participation, transparency, accountability)
NGO/CBO-relations
(mutuality or dependence)
General Points
 New form of public administration in developing
countries, generally referred to as (good) governance
 Presented and promoted – not the least by international
financial institutions such as the World Bank and the
IMF – as a universal solution for development
 But development administration are not simply
technical solutions: ”There are no universal principles of
management and no universal management tool kits”
(Turner & Hulme, p. 3)
 Development administration takes place in political
contexts and reflect political forces and dynamics
 Institutions are not simply acted upon (designed) but
also influence their environment (structure politics)