Governance, Adlllinistration and Developznenr Also by Mark Turner and David Hulme SOCIOLOGY AND DEVELOPMENT: Theory, Policy and Practice (D. Hulme and M.M. Turner) PAPUA NEW GUINEA:The Challenge of Independence (M. Turner) PROFILES OF GOVERNMENT ADMINISTRAnON IN ASIA (M. Turner and]. Halligan) MINDANAO: Land of Unfulfilled Promise (M. Turner with R.]. May and L.R. Turner) REGIME CHANGE IN THE PHILIPPINES (M. Turner) MAKING A DIFFERENCE: NGOs and Development (D. Hulme and M. Edwards) NGO PERFORMANCE AND ACCOUNTABILITY: Beyond the Magic Bullet (D. Hulme and M. Edwards) NGOs, STATES AND DONORS: Too Close for Comfort? (D. Hulme and M. Edwards) FINANCE AGAINST POVERTY: Volumes I and 2 (D. Hulme and P. Mosley) Governance, Adm.inistration and Developm.ent Making the State Work Mark Turner Uniuersity ofCanberra and David Hubne Unioersity ofManchester palgrave * iC MarkTurnerandDavidHulme1997 Allrightsreserved.Noreproduction,copyortransmissionof thispublicationmaybemadewithoutwrittenpermission. Noparagraphofthispublicationmaybereproduced,copiedor transmittedsavewithwrittenpermissionorinaccordancewith theprovisionsoftheCopyright,DesignsandPatentsAct1988, orunderthetermsofanylicencepermittinglimitedcopying issuedbytheCopyrightlicensingAgency,90TottenhamCourt Road,LondonW1T4LP. Anypersonwhodoesanyunauthorisedactinrelationtothis publicationmaybeliabletocriminalprosecutionandcivil claimsfordamages. Theauthorshaveassertedtheirrightstobeidentifiedastheauthors ofthisworkinaccordancewiththeCopyright,Designs andPatentsAct1988. Publishedby PALGRAVE Houndmills,Baslngstoke,HampshireRGZ1 6XSand 175FifthAvenue,NewYork,N.Y.10010 Companiesandrepresentativesthroughouttheworld PALGRAVEisthenewglobalacademicImprintof St.Martin'sPressLLCScholarlyandReferenceDivisionand PalgravePublishersLtd(formerlyMacmillanPressLtd). ISBN978-0-333-56753-1 ISBN978-1-349-25675-4(eBook) DOI10.1007/978-1-349-25675-4 Thisbookisprintedonpapersuitableforrecyclingand madefromfullymanagedandsustainedforestsources. Acataloguerecordforthisbookisavailable fromtheBritishLibrary. Contents List ofBoxes and Tables IX Preface Xll Acknowledgements XIV 1 Developll1ent and its AdD1inistration I Development 4 Development administration 12 2 Organizational Environll1ents: COll1parisons, Contrasts and Significance 22 Making sense ofthe environment 23 Elements ofthe environment 25 Economicfactors 25 Culturalfactors 34 Demographicfactors 39 Politicalfactors 44 The public sector and its environment 52 Distinctiveness 52 Diversity 53 Turbulence 53 Opportuniesandconstraints 54 Competing perceptions 54 Causeandeffect 55 Foreign models and Third Worldrealities 55 3 The Policy Process: Politics and Technics 57 What is policy? 58 The contribution ofpolicy 59 Explanations ofthe Third World policy process 64 Society-centredmodels 64 State-centredmodels 67 v VI Contents Participation in the policy-making process 70 Policy, politics and implementation 75 Conclusion 79 4 Bureaucracy: Obstructing or Facilitating Developtnent? 82 What is bureaucracy? 83 The origin of Third World bureaucracies 85 Bureacracy and development 86 Size 86 Capacity 88 Culture 91 Power,politics andauthority 93 Bureaucraticbias 96 Genderand bureaucracy 97 Corruption 100 Conclusion 104 5 Adtninistrative ReforJn: The Continuing Search for PerforU1ance IU1proveU1ent 105 Defining administrative reform 106 Administrative reform strategies 107 Restructuring 107 Participation 113 Humanresourceissues 116 Accountability 122 Public-privatemixes 126 Conclusion 129 6 Planning for Developtnent: The Solution or the Probletn? 132 Planning in developing countries: a short history 133 National development planning 134 Promiseandperformance 135 Theendofdevelopmentplanning? 137 Project planning 139 Alternative approaches to project planning 144 Adaptive administration 145 Participatory rural appraisal 146 Conclusion: planning in the real world 149 Contents VB 7 Decentralization within the State: Good Theory but Poor Practice? 151 The meaning ofdecentralization 152 Why decentralize? 156 Devolution and deconcentration 159 Devolution 159 Deconcentration 160 Decentralization in practice 162 Afrua 162 Asia 165 Latin America 166 The South Pacific 167 The performance ofdecentralization policies 167 Prospects and prescriptions 172 Conclusion 174 8 Public Enterprise Refozrm Private Sector Solutions 175 The origins ofpublic enterprises 177 Public enterprise performance 179 Rethinking the state 183 Strategies for public enterprise reform 185 The policyframework 186 Management reforms 188 Privatization 190 Politics and feasibility 194- Conclusion 198 9 BeyondtheMarket,Beyond the State: TheRiseof Non-GovernIDental Organizations 200 Types ofNGO 201 The rise and rise ofNGOs 202 The comparative advantage of NGOs: competing concepts 207 NGOs and the state 210 NGOs, empowerment and politics 215 Strategic choices for NGOs 217 Conclusion 218 Vlll Contents 10 The International EnviroDDlent: External Influences and Governance 220 The colonial era and its legacy 221 The cold war era 222 The contemporary international environment: context 226 The contemporary international environment: key con- cepts 229 Problems and prospectsofthe new public management 235 Conclusion 237 11 Conclusion: What Future for the Public Sector? 238 Bibliography 242 Index 260 List of Boxes and Tables Boxes 1.1 Competing Meanings of Development 5 1.2 Defining Development Today 11 1.3 A BriefChronology of Management Thought 14 1.4 Some Contemporary Themes in Development Administration 20 2.1 Environmental Factors for Public Sector Managers 26 3.1 How Do People Use the Term 'Policy'? 59 3.2 How Much Does a Miracle Cost? 61 3.3 The World Bank's Functional Policy Approach to Growth 62 3.4 The Notorious Nine Implementation Problems 76 3.5 The Linear Model of Policy Reform 78 3.6 The Interactive Model of Policy Implementation 80 4.1 The Challenge of Big Bureaucracy 88 4.2 Project Implementation and Capacity 89 4.3 Cultural Values and Administration 93 4.4 Regime-Bureaucracy Interactions 95 4.5 Rural Poverty Unobserved: The Six Biases 97 4.6 Barriers and Opportunities for Women's Advancement in the Public Service 99 4.7 Evading the Rules in Pakistan 101 5.1 The Training and Visit System 110 5.2 Suggestions for Desirable Training Outcomes 119 5.3 The World Bank's 'Rationalist' Reform Program 123 5.4 Latin America's Social Funds: Innovative Public- Private Cooperation 128 6.1 India's Five-Year Plans 136 6.2 Sri Lanka's Rolling Public Investment Programme 139 6.3 The Conventional Project Cycle 141 IX