The Sector Governance Approach with Jean Bossuyt
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Transcript of The Sector Governance Approach with Jean Bossuyt
EuropeAid
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Assessing corruption : Using political economy approaches (in sectors)
EuropeAid Anti-corruption seminar
24-26 June, Brussels
Jean Bossuyt (ECDPM)
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What is political economy analysis?
• Political economy analysis is concerned with the interaction of political and economic processes in a society: the distribution of power and wealth between different groups and individuals and the processes that create, sustain and transform these relationships over time (OECD/DAC)
• Can promote development effectiveness by contributing to an increased understanding of contextual factors into account
• Is an essential tool for capturing informal realities “behind the façade” in governance matters (such as corruption)
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What do we mean by Governance?
• State’s ability to serve its people
• Public functions carried out
Refers to:
• rules, processes, behaviour:
• interests are articulated
• resources managed
• power exercised
(Communication on Governance and Development 615/2003)(Communication on Governance in the European Consenus on
Development 421/2006)
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The different dimensions of governance
• Governance clusters:
democratisation, human rights,
decentralisation, rule of law,…
• Governance principles:
transparency, accountability,
participation, inclusion
• Core governance concerns:
rules, interests, power,
resources
Core governance
concerns
Governance clusters
Governance principles
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WHY ADDRESSSING GOVERNANCE AT SECTOR LEVEL?
USING POLITICAL ECONOMY ANALYSIS
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The challenge of weak governance in sectors:
state
o Leakage of fundso Sub-optimal spendingo Accountabilityo Lack of demando Political toolo Powero Institutional capacities
citizens
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Governance for better procurement procedures....
Doctor’s surgeryin Central Africa
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Avoid the denial strategyAvoid the denial strategy
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Core governance
concerns
Governance clusters
Governance principles
OPENING THE “BLACK BOX”
TOOLSFOR
ANALYZING SECTOR
GOVERNANCE
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The methodology – analyzing sector governance
1. Some guiding principles
2. The analysis framework
3. Four practical steps to move forward
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1. Guiding principles
• The purpose of the governance analysis must drive the choices, hence must be defined – cfr GOVNET
o Donor decisions and concernso General partner-donor cooperationo Support partner country governance reforms
• Build on what is available – and try not to burden the existing consultative mechanisms at sector level• Make public more than you think• It’s a continuous process • Combine governance and sector expertise
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2. The governance analysis framework
Political system/government
Rule making and executive actors at
different levels
Non-state actorsCitizens, voters, consumers, user groups economic
agents, elites, media…
Checks and balances
organisationsSupervise sector organisations or
handle complaints (auditors, judiciary,
ombudsmen,…)
Frontline service providers
Public and private providers delivering
services
Core public agencies
Sector ministries, agencies with regulatory or
supporting roles, …
Context
Donors, international organisations
Influence on sector governance and accountability
relations
GovernanceAccountability
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3. Four steps to analyse sector governance: the methodology
• Step 1:Assessing the Context of Sector Governance
• Step 2:Mapping the Actors – Their Interests, Power and Incentives
• Step 3: Assessing Governance and Accountability Relations
• Step 4: • Summing up: analysing governance reform readiness
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STEP 1
CONTEXT
Context
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STEP 1 – typical questions include:
• What is the degree of political attention a particular sector receives? • Are there ongoing public sector reforms?• Is there a strong judiciary at national level? • What are the features of public service performance and
management? • Are studies available on the political economy of
corruption?• How is decentralisation pursued at national level? • Are there international obstacles that affect sector
governance negatively?
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STEP 2
ACTORS Political system/government
Rule making and executive actors at
different levels
Non-state actorsCitizens, voters, consumers, user groups economic
agents, elites, media…
Checks and balances
organisationsSupervise sector organisations or
handle complaints (auditors, judiciary,
ombudsmen,…)
Frontline service providers
Public and private providers delivering
services
Core public agencies
Sector ministries, agencies with regulatory or
supporting roles, …
Context
Donors, international organisations
Influence on sector governance and accountability
relations
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STEP 2: points of attention
• Six clusters of actors: o Non-state actorso Checks and balances organisations (e.g. Anti-corruption
bureau’s)o Political system/governmento Core public agencieso Frontline service providerso Donors, regional and international organisations
• How to go about it?o Avoid the summing up –long list and little insighto Focus on interests, power and incentiveso Key linkages
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STEP 3
GOVERNANCE AND ACCOUNTABILITY RELATIONS
Political system/government
Rule making and executive actors at
different levels
Non-state actorsCitizens, voters, consumers, user groups economic
agents, elites, media…
Checks and balances
organisationsSupervise sector organisations or
handle complaints (auditors, judiciary,
ombudsmen,…)
Frontline service providers
Public and private providers delivering
services
Core public agencies
Sector ministries, agencies with regulatory or
supporting roles, …
Context
Donors, international organisations
Influence on sector governance and accountability
relations GovernanceAccountability
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Step 3: Analyzing governance and accountability relations between actors
Mix of governance mechanisms: Hierarchy Patrimonialism Market Networks
Four other aspects: Information about and clarity of governance? Responsiveness of governance? Accountability set-up and responsibility? Capacity for governance and accountability?
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Governance mechanisms - patrimonialism
PatrimonialHierarchies Markets Networks
Basis of relationships
LoyaltyEmployment relationship
Contracts and property rights
Resource exchange
Degree of dependence
Dependence Dependent Independent Interdependent
Type of Accountabilit
y
Informal between patron
and client
Formal financial and
administrative accountability
Horizontal through market
mechanism
Complex and blurred
accountability
Medium of exchange
Patronage Authority Prices Trust
Means of conflict
resolution & coordination
Submission or Exit
Rules & commands
Haggling, courts Diplomacy
Culture Custom Subordination Competition Reciprocity
Limitations of
governance
Bound only by other persons; arbitrariness
Bound by institutions,
predictability
Bound by efficiency
Bound by degree of consensus
achieved
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Example: Transport sector in “Assima”
• Sector objective: reduce cost of transport
• Main obstacle: monopoly of transport sector• Quantity of CSP in transport
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New openings in context
* Using windows of opportunity given by new players: HoD, Ministers, new management
* Coordination amongst actors (consensus on way forward)
*Audit
*Investment funds frozen
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Mapping the actors
Non-state actors state actors:
ACTOR Power / Interest Driver of change
National Transport
Federation
Powerful; Keep
monopoly; collusion
with police; political
links
Resistance to change
Other transport
organisations
Liberalise market; no
weight; tension with
Administration
Driver of change
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GOVERNANCE AND ACCOUNTABILITY RELATIONS
Political system/government
Rule making and executive actors at
different levels
Non-state actorsCitizens, voters, consumers, user groups economic
agents, elites, media…
Checks and balances organisations
Supervise sector organisations or
handle complaints (auditors, judiciary,
ombudsmen,…)
Frontline service providers
Public and private providers delivering
services
Core public gnciesSector ministries,
agencies with regulatory or
supporting roles, …
Context
Donors, international organisations
Influence on sector governance and accountability
relations GovernanceAccountability