DEMOCRACY and GOOD GOVERNANCE Nuray E. Keskin, PhD Associate Professor Ondokuz Mayis University Department of Political Science & Public Administration Samsun Turkey https://omu.academia.edu/nurayerturkkeskin nekeskin@omu.edu.tr Abstract: Globalization process has changed the nature and character of the state, state-society relations and public administration worldwide. The concept of governance is broader than traditional concepts of government and governing. This paper addresses democracy and good governance in the age of globalization. After reviewing and analyzing the contemporary literature on the importance and various forms of governance, good governance and sound governance, it discusses the implications, challenges and opportunities for democracy and good governance. Keywords: Globalization, good governance, democracy, sound governance, public administration. One of the most important issues of the contemporary world is the rapidly changing nature and role of government in the age of accelerated globalization. This changing nature of government has also altered the public administration processes worldwide. Government reinvents itself to meet the challenges of the new global era. The central force behind these multiple changes and transformation is globalization of capital. A process that transcends nation-states, economies, markets, institutions and cultures. The world economy/global economy needs the state and the state is not independent from capital. A number of factors have been instrumental to the expansion of globalization of capital through a rapid growth of the absolute rate of surplus value or profit worldwide. These include global marketing, global production, global commodification, and global financialization. The relative domestic economic decline, rising human expectations, technological innovations and supranational agencies are the other factors responsible for rapid growth of globalization of capital (Farazmand, 2004b: 35-40). The last 30 years has been a long era of trying new forms and types of experiments led by corporate-market driven designers in regard to public service and administration. The character and role of the state changed. The role of governments as 1
partners with and promoters of private sector has grown instead of being the major providers of public goods and services. The changes in the nature and role of public administration have been characterized by such terms as managerialism, political management, new public management or the corporate state. Many roads have been taken, targets have been met, and lessons have been learned in managing public governance (Farazmand, 2013). In this process experiments have been conducted, some with success, while others with failure. For example Turkey has been implementing governance reforms since 1996, and after two decades we have an opportunity to evaluate the outcomes and consequences of the governance process. Today, the dilemma remains as ever: What should be done in the face of many challenges? Where are we going with these constant changes, reforms, reshaping and so on? Some of the most commonly known and used concepts of governance or government during the last twenty five years are as the following: good governance, entrepreneurial government, competitive government, market-like governance, enabling governance, participatory governance, regulatory governance, interventionist governance, steering government versus rowing government. These models present new ways of thinking, governing and administration; new philosophies and new approaches that broaden citizen involvements and their feedbacks, and bring into the playing field the civil society and non-governmental organizations (Farazmand, 2012: 226). A key characteristic of all these concepts is the claim in rejecting the traditional forms of authoritarian, bureaucratic government with unilateral decision making and implementation. This paper addresses democracy and good governance in the age of globalization. After reviewing and analyzing the contemporary literature on the importance and various forms of governance, good governance and sound governance, it discusses the implications, challenges and opportunities for democracy and good governance. Why Democracy? Advancing sustainable human development requires democracy. It is only in a democracy that people can be empowered to demand and shape better policies, express grievances, seek justice and hold leaders and the private sector to account. Societies 2
with strong, democratic institutions empower people to influence their government to prioritize national development that is equitable and sustainable. In a true democracy, people can demand better policies, express grievances, hold leaders to account and seek justice from abuse (peoplesgoals.org). Local people should have control of what happens to their communities. Especially people in developing or less developed nations should exercise their human and civil rights to determine their own policy references. Today more than half of the world s population live under autocratic or partly free governments, denied full civil liberties and unable to freely participate in political life (USAID, 2013). A country cannot be truly democratic until its citizens have the opportunity to choose their representatives through elections that are free and fair. Critical development efforts cannot succeed without a legitimate and democratically elected government that is responsive and accountable to its citizens. Elections provide an important opportunity to advance democratization and encourage political liberalization. For an election to be free and fair, certain civil liberties, such as the freedoms of speech, association and assembly, are required. 3
What is Governance? Like management and administration, governance is applied both public and private sectors and in a wide range of institutional settings. According to UNDP definition, the exercise of economic, political, and administrative authority to manage a country s affairs at all levels. It comprises mechanisms, processes, and institutions through which citizens and groups articulate their interests, exercise their legal rights, meet their obligations, and mediate their differences (UNDP, 1997). Governance transcends the state to include civil society organizations [that were left out in the past governing systems] and the private sector [which is supposedly not involved in the governing process or dynamics], because all are involved in most activities promoting sustainable human development (Farazmand, 2012: 228). The term governance present a broader and much more comprehensive notion of government and administration than the terms government and governing have implied. Governance means a participatory process of governing the social, economic and political affairs of a country, state or local community through structures and values that mirror the society. It includes the state as an enabling institution, the constitutional framework, the civil society, the private sector, and the international/global institutional structure within limits. It is inclusive and promotes participation and interaction in an increasingly complex, diverse and dynamic national and international environment. Governance focus on market approaches with emphasis on market-like competition among public organizations, results-oriented outcomes and outputs, performance measurements, bonus for performance, empowering managers to fire and hire temporary employees, privatization, efficiency, public-private partnership, getting rid of bureaucratic rules and regulations, and more. The Concept of Good Governance Espoused and promoted by global organizations such as the United Nations, WB, IMF, OECD, UNDP, UNDESD and Western governments and corporations, good governance became one of the most pressing requirements on developing countries in Asia, Africa and Latin America as a condition for international assistance. As part of the structural adjustment programs of the global agencies and under the instructions and 4
pressures of donor institutions of the North (for example USAID) developing countries adopt the notion of «good governance» by implementing a number of structural and policy reforms in their governments and society as a condition for international aid. In various places, good governance has been associated with democracy and good civil rights, principles of justice, fairness, equity, transparency, the rule of law and efficient public services. Mechanisms for Assuring Good Governance Internal rules and restraints (for example, internal accounting and auditing systems, independence of the judiciary and the central bank, civil service and budgeting rules); Voice and partnership (for example, public-private deliberation councils, and service delivery surveys to solicit client feedback); Competition (for example, competitive social service delivery, private participation in infrastructure, alternative dispute resolution mechanisms, and outright privatization of certain market-driven activities) (World Bank, 1997). The UNDP notes that good governance is, among other things, participatory, transparent and accountable. It is also effective and equitable. And it promotes the rule of law. Good governance ensures that political, social and economic priorities are based on broad consensus in society and that the voices of the poorest and the most vulnerable are heard in decision-making over the allocation of development resources. Dimensions of Good Governance According to the World Bank s public sector strategy in 2002; the dimensions of good governance are as follows (World Bank, 2002): public sector management, competitive private sector, structure of government, civil society participation and voice, and political accountability. The most problematic for this work are those of civil society voice, participation and political accountability. However, the consensus of the World Bank team is that neither better public sector management nor a competitive private sector can be reliably and sustainably achieved without voice and accountability, especially in Middle East and North Africa countries which typically score low on measures of these indices. More comprehensively these are all important in a democracy: prospering 5
economy, free elections, free speech, freedom of religion, political stability, equal rights for women, small gap between rich and poor, uncensored media, uncensored access to internet. Criticisms of Good Governance The concept of good governance evoked serious criticisms as well as praise worldwide, and key questions raised by social scientists and some politicians. The former President of Tanzania Julius K. Nyrere, in delivering the keynote address at the UN Conference on Governance in Africa in 1998, criticized the notion of good governance as an imperialistic and colonizing concept (Nyrere, 1998-Farazmand, 2004c: 80). According to him, governance in Africa must be improved for the continent's countries and people to build real freedom and real development. However, his definition of good governance is different from the one used by the rich countries in meeting out aid to poor nations. He stated that what is good for some global powers may be bad or ugly for developing nations. According to some social scientists, as most of the global organizations carry the preferences and dictates of the globally dominant states such as the US and other leading European governments that represent the interests of the global corporations reshape the state and governments in developing and less-developed nations in favor of 6
Western globalization of the world.. And this is an interference in the internal affairs of developing nations (Bayramoğlu, 2005; Guler, 2005). According to Prof. Ali Farazmand; as a deficient and a misleading concept, good governance favors business and powerful political elites, and promote corporate elites interests nationally and globally (Farazmand, 2004a). He claims that the rise and expansion of globalizing capital by transworld corporations and supra-state organizations pose a serious threat to democratic ideas around the globe, and human beings are reduced to consumers of global markets (Farazmand, 2004b: 44). Some authors point out equating democracy with market is inaccurate, as market and democracy is not synonymous, and in fact they are in serious conflict with each other (Lindblom, 1977; Farazmand, 2004b; Bayramoğlu, 2005; Guler, 2005). Prof. Farazmand uses the concept of sound governance as an alternative to the term good governance. Sound Governance Sound governance includes the normative as well as technical and rational features of good governance. However, it presents a balanced view of governance that takes into consideration the genuine features of indigenous governance systems that maybe odd or conflict with the globally dominant power structures (Farazmand, 2012: 230). The concept soundness is used to characterize governance with superior qualities in functions, structures, processes, values, dimensions, and elements that are necessary in governing and administration. Sound governance is democratic in character, responsiveness, and competence, its cultural values are embedded in societal values and structures and it is in accord with the constitutional values and responsive to international norms, rules and regimes. It is sound technically, professionally, organizationally, managerially, politically, democratically and economically. The concept of sound governance denotes a system of government that is not only domestically sound, but is also sound internationally/globally in its interaction with other nation-states and their governments in an independent and self-determining fashion. Dimensions of sound governance are as follows (Farazmand, 2004a): process (how governance works), structure (defines and gives directions to the process), 7
cognition and values (a healthy and transparent governance system), a working constitution, well-organized and well-performing institutions, sound management and performance, involves, encourages and promotes citizen participation in making policies, self-determination is an inalienable right of indigenous peoples, ethics, accountability and transparency, continuous innovations in policy and administration processes. Public organizations play a key role in society and in governance around the world; therefore mostly essential requirement of sound governance is an efficient and effective as well as responsive and accountable administration (Farazmand, 2004b: 50). However, building partnership and engaging citizens is mostly essential innovative strategies that must be applied if governance means a serious enterprise. These strategies give governance a true chance to learn about its own people and their problems. Citizen engagement and participation is essential because it provides legitimacy to governance process, enhances performance in problem solving, decision making and service delivery. Engaging Citizens and Building Partnership for Good Governance The concept of good or sound governance is broader than traditional concepts of government and governing. In such a system, the role of citizens was limited, women and ethnic groups alienated, and the civil society was ignored by governments and governing elites. The traditional models of governments and governing have failed to address many problems of the economy and the society. Good governance is encompassing, highly participatory, dynamic and engaging process. Good governance seeks solutions to problems through dialogue and communicative action, engagement through the interactions of citizens, NGO s, private sector and governmental institutions. One way to engage citizens is to build a strong community relationship, involving community members in towns and countries. Periodic meetings can be organized where citizens of different ranks and professions are invited, their views are heard and suggestions taken seriously (Farazmand, 2012: 235). In large cities and metropolitian areas media networks, systematic surveys and digital governance can be used to reach citizens. These data must be analyzed and used effectively. To arrange advisory boards 8
representing citizens with diverse backgrounds economically, socially, ethnically- can be another way to engage citizens. Deliberations must be taken seriously by governing authorities and public administration. Legislative acts should respond not only to the needs of capital but to social needs as well (Bayramoglu-Keskin, 2013: 11). Governments must provide digital infrastructures and build capacity in educational systems to enable citizens for digital governance (Milakovich, 2012). Solving a multitude of global problems such as; migration and refugee crises, mega-changes in environment, environmental degradation, increasing urbanization, natural disasters, sweeping privatization, poverty, malnutrition, rising inequality, food safety, health crises, educational problems, child labor, gender inequality, debt crises, corruption, and others requires a wide range of partnerships at all levels including levels of institutional, local, national, regional, and global (Farazmand, 2004c: 77). Partnerships in the global level are important to tackle many global problems and to enhance national and international community interests. It is also helpful toward building a global community and citizenship. However, global institutions and national governments are both in need of democratic reform in their structures and processes. In the national level partnerships can take the forms of market-state, state-citizens, state-civil society, government-ngo s, government-university, public-private enterprises, state-regional organizations. Local governance is the central arena for public participation and the democratic exercise of citizen rights. All actions take place at this level it demands active citizen participation, partnership building and enhancement. Local democracy is a sphere that needs to be developed in many countries (Bayramoglu-Keskin, 2013). There is need for the democratization of the system of local representation and development of mechanisms to ensure people s participation to government. Partnerships promote creativity, innovation, synergy, a stronger ability to tackle problems. For example with the governments running budget deficits, a strong private sector can step in as a co-financier in capital projects with long and short term returns (Farazmand, 2004c: 82-84). To be effective, collaboration and partnership require certain preconditions (institutional, organizational, structural, cognitive), arrangements 9
and rules of conduct. Although options are limitless, citizen involvement remains an unresolved issue. Open Government According to World Bank; open government increased transparency, citizen participation and collaboration between government and citizens is a key driver of development in the 21st century (World Bank, 2015). Citizen-centric governance, with openness as a central pillar, improves the use of public resources, facilitates inclusive decision-making processes and increases trust between governments and citizens. Governments that are more open are governments better positioned to act effectively and efficiently, to foster private sector growth and to respond to the true needs of all citizens. The global momentum behind open government has increased significantly in recent years, and with it, so has the World Bank Group s (WBG) commitment to helping clients become more open and, by doing so, achieving inclusive and sustainable development. The creation of the Governance Global Practice (GGP), provides a unique opportunity to foster collaboration and maximize the development impact of open government (World Bank, 2015). New Development Agenda: Democracy and Good Governance The Campaign for People s Goals for Sustainable Development is comprised of a network of grassroots organizations, labor unions, social movements, non-governmental organizations and other institutions committed to forging new pathways to the future. The People s Goals makes the following recommendations under the title of Democracy and Good Governance to guide a new development agenda to (peoplesgoals.org, 2015): Strengthen rights and opportunities of people especially traditionally underrepresented groups to take greater part in governance and affairs of the community, nationally and internationally. Actively engage people s participation in development and implementation of policies at local and national level, and paying particular attention to include traditionally underrepresented groups such as women, basic sectors (workers and farmers), youth, disabled persons, ethnic minorities and indigenous peoples; 10
Fully guarantee freedom of speech, a free press, the right to assembly and association, and the right to vote and be elected in public office; Limit influence of money in politics by imposing spending limits, contribution limits, and bans on certain types of donations to political parties and offices; Recognize and value cultural diversity of different communities and support and promote traditional knowledge and customary practices in governance; Uphold the right of indigenous peoples communities to free prior and informed consent in all actions, policies and developments affecting their communities; and Consciously expand education and awareness raising on people s rights to participate in public affairs. Institute measures for accountability, transparency, democracy and justice in governance. Recognize, legislate, enact and operationalize the right to information. This includes publishing and disseminating budget information in easy and accessible formats through all possible means; Perform social audits in partnership with civil society; Hold public justice and law enforcement agencies police force and courts to highest standards of integrity and human rights adherence. Ensure access to remedies for victims of human rights violations by strengthening ombudspersons, elections commissions and human rights commissions; and Introduce accountability mechanisms which people can access and participate in regardless of their background and which they can use to ensure that their human rights are being met; and ensure that these processes are decided in a transparent and equitable process. Strengthen corporate accountability and human rights adherence. Ensure compliance of business and industry with national laws and international human rights and environmental standards; and Strive to create international rules and monitoring mechanisms to guide the conduct of transnational corporations, addressing issues such as transfer pricing, price fixing, tax evasion, corporate lobbying and interference in national politics. 11
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