Globalisering og styresett i sør

1. Globalisering og styresett i sør Kristian Stokke kristian.stokke@sgeo.uio.no

2. Multi-scale and Diffuse Governance Internationalisation Privatisation Civil society Decentralisation

3. The Washington Consensus • Early state-led development models • Market failure  interventionist states • Public enterprises, protective regulation • Market liberalisation (”structural adjustment” • 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, sub-contracting, self-management, deregulation • Political conditionalities by donors/IFIs in regard to loans and aid

4. 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). • Inefficient bureaucracy with limited administrative capacity. • 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) • Autonomy: strong bureaucracy with substantive autonomy in regard to specific interests • Embedded: governance through networks with market actors • Division of labor between market and enabling state institutions

5. Post-Washington Consensus • From ”Less Government” to ”Good Governance” • Role of state • Division of labor between state, market and civil society • State enabling market-led development • Accountable and efficient state institutions • Not how much but what kind of state

6. New State Roles • Provision of public goods (for example enforcement 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

7. Elements of Good Governance • Legal framework for development providing a basis of stable rules, enforcement and dispute resolution • Efficiency in public sector managementthrough 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

8. Decentralisation • Privatisation • Transfer of functions from state to market • Deconcentration (administrative decentralisation) • Transfer of functions from national to local institutions for public administration • Devolution (democratic decentralisation) • Transfer of functions and authority (decision-making) to local government

9. Periods of Decentralisation in Africa • Golden Age of Local Government (1945 - early 60s) • Indirect rule (Mamdani: decentralised despotism) • Decolonisation & state building (early 60s - late 70s) • State, party and nation-building. Centralised development planning • Liberalisation & decentralisation (late 70s - late 80s) • Privatisation and administrative decentralisation in context of structural adjustment • Democratisation & good governance (1990s - present) • Discourse and attempts at democratic decentralisation (participation in ’good governance’)

10. 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” • Local strongmen are created as much by the nature of the state as by that of society (i.e. not simply a local ’tradition’) • 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 • Key factors: nature of public affairs, nature of decentralisation, nature of local civil society

11. Democratic Decentralisation • Experiments in institutionalized local popular democracy: decentralized planning in Kerala (India) and participatory budgeting in Porto Alegre (Brazil) • Common characteristics • Extensive popular participation, enabled through devolution of policy-making and institutionalization of new arenas for democratic participation. • Policy-making within these new local arenas is based on deliberative processes. • A strong ‘practical orientation’ with an emphasis on concrete socio-economic development needs.

12. 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): • (i) by responding to demands from neighborhood leaders who would otherwise rely on clientelistic networks within the opposition party • (ii) by politically mobilizing and integrating activists from popular movements • (iii) by delivering accountable and efficient local government that especially appeals to the middle classes • (iv) by strengthening local state capacity and coordination in the interest of the bureaucracy • (v) by addressing the prioritized needs of poor people.

13. 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 • Economic development fostered by local participation and resource mobilisation • Good governance (accountability/transparency) fostered through civic engagement • Civil society operationalised as non-governmental organisations or alternatively as social capital

14. 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)

15. 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)