In response to feedback he received on a recent post on the myths of governance in development, David Booth of ODI offers some ways to reorient governance work for more effective change.
My Five myths blog questioned several assumptions about governance and development that continue to influence the international agenda despite having little basis in research or historical experience. The animated debate that followed has confirmed that it is a good time to be raising these issues. It also challenged me to spell out some of the practical recommendations flowing from this necessary ground-clearing.
I believe five steps would take us a long way towards a governance-for-development practice with solid grounding in evidence and experience.
In some areas of development policy, deep-rooted assumptions are extremely hard to dislodge. Like science-fiction androids or the many-headed Hydra, these are monsters that can sustain any number of mortal blows and still regenerate. Capable researchers armed with overwhelming evidence are no threat to them.
The importance of good governance for development is one such assumption. Take last month’s enquiry report on Parliamentary Strengthening by the International Development Committee of the UK parliament. It references the UN High Level Panel’s opinion that ‘good governance and effective institutions’ should be among the goals for ending global poverty by 2030. It would have done better to reference the evidence in 2012’s rigorously researched UN publication Is Good Governance Good for Development?
Here are five governance myths about which the strong scientific consensus might – eventually – slay some monsters.
"You learn in government what the obstacles are. But that’s not so you can go take a nap. It’s so you can figure out how to scale them or work around them. Does one get a better sense about context and about impediments and about trade-offs in government? Absolutely. But those are not alibis – those are problems to be solved."
-Samantha Power, the current United States Ambassador to the United Nations. Formerly, she served as Special Assistant to President Obama and as Senior Director for Multilateral Affairs and Human Rights on the National Security Council. She has also written or co-edited four books, including the Pulitzer Prize-winning A Problem from Hell: America and the Age of Genocide, a study of U.S. foreign policy responses to genocide.
Even though it’s relatively short (223 pages), Working With the Grain (WWTG) took me two months to finish, but I’m glad I did. It adds to a growing and significant body of literature on ‘doing development differently’/’thinking and working politically’ – Matt Andrews, Adrian Leftwich, David Booth, Diana Cammack, Sue Unsworth etc. (Like Matt and Adrian, WWTG author Brian Levy is a white South African – what attracts that particular group to rethinking governance would make an interesting study in itself.)
Brian summarizes the common elements of this emerging school of thought as:
"An insistence that the appropriate point of departure for engagement is with the way things actually are on the ground — not some normative vision of how they should be;
A focus on working to solve very specific development problems – moving away from a pre-occupation with longer-term reforms of broader systems and processes, where results are long in coming and hard to discern [...]
Recognition that no blueprint can adequately capture the complex reality of a specific setting, and thus that implementation must inevitably involve a process of iterative adaptation." (pg. 207)
What makes this book special is Brian’s CV – two decades at the World Bank, which experience he raids to provide great case studies throughout. It feels like he’s now gone back into academia (he teaches at Johns Hopkins and the University of Cape Town) partly to make sense of what he’s learned from 20 years of success and (more often) failure (he characterizes the orthodox governance approach as ‘a breathtaking combination of naivete and amnesia’). Unlike most such tomes, I found it clearer on the ‘so whats’, than the general diagnostic, which tends to get bogged down in endless 3 point lists and typologies (hence the two months).
Our Top Ten blog posts by readership in 2014.
This post was originally posted on January 29, 2014
Around the end December of every year, the pundits start coming out with their forecasts for 2014. This past December, the World Bank pundits predicted everything from girls outperforming boys in developing countries (girl power!) to the staggering idea that for Europe, 2014 will be a better year.
This year though, the World Bank’s Future Development Forecasts blog, included a prediction that caught these two political scientists by surprise— “as more and more economists point to the primary [sic] of politics in development, political scientists will wake up and wonder why they have been left out of the discussion.”
Joel Hellman, the World Bank’s Director of the Center on Conflict, Security and Development in Nairobi (OPSFN), predicted there will be a new movement of “political contextualists.” Meaning: we as development practitioners have to take a look at the broader institutional framework influencing the performance of the economy, and on development in particular. This is particularly relevant with regard to governance reform and strengthening institutions and service delivery in countries.
Politics in development, hear, hear! The World Bank’s People, Spaces and Deliberation blog has been making this case for years. Nevertheless, neither economists nor political scientists have really introduced a convincing framework for how this political contextualization would play out in development: how it influences development and how it helps us understand strategies that promote development effectiveness and the efficiency of development interventions.
Public procurement is not among the most popular topics in development circles. However, consider just these three ways in which procurement is probably one of the most indispensable elements that make up a truly capable state:
First, without effective procurement, hospitals wait for drugs, teachers for textbooks, and cities for roads. Whenever a news item surfaces about drugs shortages in hospitals, schools without textbooks or failing road networks, the reader may be looking at a procurement problem. Without efficient procurement, money gets wasted on a very large scale. Many developing countries channel significant proportions of their budgets through the procurement system – even marginal savings can add up very fast. Third, public procurement is a part of the government that citizens see every day. Lack of transparency and corruption in procurement directly affects citizens, and the losses to corruption are estimated in the billions of dollars every year. Corruption in procurement is a big problem that affects rich countries as well.
Every now and again, somewhere in the world, a politician comes along who is a supernova: a special astronomical event. Reacting to him or her, citizens feel a tingle in the spine, they become emotionally flooded, and they fill up with galloping hopes and effervescent dreams. In my adult life, I have yielded to the power of supernovas twice. Between the Special One and the followers, and amongst the followers themselves, you have a case of interpenetrating intensities.
Each of these cases is an instance of what Max Weber calls charismatic authority. According to the Shorter Oxford Dictionary, charisma is: “a capacity to inspire devotion and enthusiasm.” And according to the Oxford Companion to Philosophy: “Charismatic authority exists where exceptional abilities cause a person to be followed or obeyed, and the ability is perceived as conferring the right to lead” [page 70]. Add formal power to charismatic authority and you have power and influence of a tremendous variety.
How do these situations arise? Nobody knows for sure. Clearly, it is a potent mix of a gifted person, some inner magnetism, and the specificities of the particular cultural and political context. What is clear is that for the leaders so blessed being a supernova is great for winning elections. It produces enormously enthusiastic, self-sacrificing efforts by millions of followers. It tends to produce big wins and powerful mandates. What fascinates me about the phenomenon though is what happens to governing when the leader is a supernova.
Politically smart, locally led development seeks to identify the secret sauce behind 7 large and successful aid programmes: a rural livelihoods programme in India; land titling and tax reform in the Philippines; disarmament, demobilization and reintegration in the Eastern Congo; the EU’s global plan of action to reduce illegal logging; civil society advocacy on rice, education and HIV in Burma and inclusive governance in Nepal.
The paper identifies a number of common elements: