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Introduction
Canada Corps supports Canada and Canadians in promoting good
governance in developing countries and countries undergoing transition. This
document will explain key governance concepts, and will illustrate what
governance looks like ‘on the ground’. The objective is to prepare Canada
Corps participants to write a case study about their overseas
assignments/projects and include insights on how their work relates to the
broader promotion of governance in development.
What is governance?
Governance is about the way that decisions are made in towns, cities,
provinces, and countries. For those in government, it is the exercise of
authority to manage the affairs of a constituency. While the government
normally has the final say when it comes to public policies, programs, laws,
and regulations, it is not the only player. Citizens, civil society organizations,
and the private sector also have a role to play. Governance is about how
government, civil society, and the private sector work together. It tells us:
• HOW the government functions
• WHO is involved in the policy process, and
• WHERE the effects, both positive and negative, of political activity, are
distributed in a society
Below is a list of terms often used when talking about governance. Each is an
element that can act as a lens through which one can look at governance.
The relative presence or absence, strength or weakness of an element, can
help us assess whether governance is “good” (i.e. strong) or weak, and how
to channel aid through governance programming to reach the goals of
Government
The terms "government" and "governance" are sometimes confused.
Governance is about government, but it has a broader meaning. It is
normally the role of government to have the final word on how best to serve
the broad interests of the community — sometimes referred to as the public
interest. The government provides goods and services (such as public health,
law and order, social assistance, public highways, and garbage collection, to
name a few) that will never be fully provided by the private sector. It also
creates and enforces laws and regulations, collects taxes and spends public
money, operates public programs, and educates the public about important
issues.
Civil society
Civil society can be described as the realm of citizen activities independent of
the state and the beyond the household1. It is made up of organized groups
or associations formed voluntarily by members of society to protect or extend
their interests, values and/or identities. Civil society organizations (CSOs)
can be diverse, ranging from parent-teacher organizations, to neighbourhood
associations, to well-known non-governmental organizations (NGOs) such as
Amnesty International, or Greenpeace. According to UNDP, CSOs can play a
critical role in developing the social and political capacities of the poor,
increasing their effectiveness in influencing governance institutions and
making the latter more responsive to their needs. Supporting civil society can
include measures that promote access to information, freedom of expression,
developing pro-poor associations, as well as examining barriers against
political inclusion of the poor2.
Participation
A key aspect of good governance is enabling ordinary citizens to participate
in and influence decision-making processes, especially at local level. In the
1990s, discourse on participation originally focused on community or social
participation of “beneficiaries” in development projects. In 1995, the World
Bank Learning Group on Participation defined participation as a “process
through which stakeholders influence and share control over development
initiatives and the decisions and resources which affect them.”3 Since then,
1
For a more detailed discussion, see Gordon White, “Civil Society, Democratization and Development (I):
Clearing the Analytical Ground”, Democratization (Autumn, 1994) pp. 375-390.
2
For more information see http://www.undp.org/governance/civilsociety.htm
3
World Bank (1995), World Bank Participation Sourcebook, Environment Department Papers Participation
Series Washington D.C. World Bank.
Rule of law
The rule of law refers to the effective functioning of institutions such as a
formally independent and impartial judiciary, legislatures, police,
prosecutors, and other formal institutions with some direct connection to law.
It is a system in which laws are public, where no laws apply only to particular
individuals, classes, or groupings, and includes provisions for judicial review
of government action. The rule of law is also something that resides in the
consciousness of the citizens of a society – how they understand, use, and
value the law. In the context of good governance, rule of law must enable
freedom of association and speech as well as citizen capacities to participate
constructively in their society. Rule of law should ensure predictability,
meaning fair and consistent application of laws and government policies5.
Accountability
When the exercise of government decision-making is accountable, it adds
strength and legitimacy to state-society interactions. A classic form of
accountability is the vote, allowing citizens to periodically hold governments
to account for their rule. Fiscal accountability is ensured through effective
functioning of offices and roles of the controller and auditor-general. Other
modes of political accountability include the legislature, an effective
opposition, sufficient staff resources and oversight committees. Between
elections, accountability mechanisms include the operation of a free and
independent media, and civil society initiatives.
Transparency
Decision-making processes, however well-intentioned, must be open to
public scrutiny or transparent. This is an essential ingredient in preventing
corruption. The lack of transparency in official governmental transactions is
considered one of the biggest barriers to development today. Transparency
requires that the system for designing rules and regulations be open, that
the regulations be simple and clear, and that financial, supervisory and
enforcement institutions have strong disclosure requirements. Transparency
measures include codes of conduct, conflicts of interests regulations,
effective accounting standards, procurement rules, civil society participation,
government facilitating access to information, and an independent media.
4
For more information visit, http://community.eldis.org/pnet/
5
For more on this see, Carothers, T. 2003, 'Promoting the Rule of Law Abroad: The Problem of Knowledge',
Rule of Law Series no. 34, Carnegie Endowment for International Peace, Washington.
Equity
The equity dimension of governance seeks to ensure that development is
inclusive, that all people benefit from well-functioning political and economic
institutions and political, economic and social processes. Equity is often used
in the context of giving traditionally disadvantaged groups such as women,
disabled persons, ethnic minorities, and indigenous peoples, equal access
and control over resources and opportunities. Measures are often used to
compensate for historical and social disadvantages towards creating a level
playing field. Equity leads to equality.
Responsiveness
Governance also implies that institutions and processes have to demonstrate
their responsiveness to the hopes and aspirations of the people at large, not
just certain social groups or elites. Responsiveness includes the extent to
which public service agencies demonstrate receptivity to the views,
complaints and suggestions of citizens and service users, by changing their
own structure, culture and service delivery patterns. Allowing citizens to
obtain redress for their grievances and advocate for change in policies and
processes increases participation and promotes transparency.
B) Why is governance a
development issue?
Good Governance and Sustainable
Development at the United Nations Development are Indivisible
means, “the process of enlarging
peoples’ choices to live long and healthy
lives, to have access to knowledge, and
to have access to income and assets: to “That is the lesson of all our effort and
enjoy a decent standard of living”6. experiences, from Africa to Asia to Latin
Reflecting on the elements of America. Without good governance -
without the rule of law, predictable
governance in a country can tell us a
administration, legitimate power and
great deal about the people’s options, responsive regulation - no amount of
their access to knowledge and funding, no amount of charity will set us
opportunities. Each of the elements, on the path to prosperity . . .
and good governance itself, can be
Good governance will give every citizen,
understood to be both a means and a young or old, man or woman, a real and
goal of development. Assessing lasting stake in the future of his or her
governance and its elements will lend societies – politically, economically and
insight into how development efforts socially. With that stake in their mind
and hearts, there are no limits to what
are succeeding (or not succeeding) in
peoples of your countries can achieve.”
securing choices for the people the
government represents. - Kofi Annan, Secretary General of the
United Nations, Inaugural Address,
As shown in the following diagram, the Report of the International
Conference on Governance for
elements can be linked to each other, Sustainable Growth and Equity, UN,
New York, 28-30 July, 1997, pp. 124-5.
6
Originally defined in the Global UNDP Human Development Report, 1990,
R u le o f L a w E q u ity
G o ve rn a n ce
T ra n sp a re n cy A c c o u n t a b ilit y
R e s p o n s iv e n e s s
• Rule of law focusing on stronger judiciary, bar and legal aid systems;
• Public sector institution and capacity building with an emphasis on
reducing corruption, increasing
accountability, responsiveness and Improving governance is one of the
managerial capacities; and essential cornerstones of development
progress, and thus of good
• Conflict prevention, peacebuilding development cooperation… basic
and security-sector reform focusing education and health are not only
on integration of conflict indicators and crucial goals in their own right, but
early warning systems, demobilization they are also vital pre-conditions for
effective participation in governance,
of former combatants and small arms
and the economy, especially by the
collection, truth and reconciliation disadvantaged.
commissions; and transparency in
policing and security agencies. - A Role of Pride and Influence in
the World: Development, Canada’s
International Policy Statement,
D) Governance and Canada Corps 2005
7
Final report of the Ukraine Election Observer Mission is available at:
http://www.canadacorps.gc.ca/INET/IMAGES.NSF/vLUImages/Ukraine/$file/Ukraine.pdf
• John Graham, Bruce Amos, Tim Plumptre Principles for Good Governance
in the 21st Century, Policy Brief No. 15, Institute for Governance, August
2003.