Measuring Empowerment in Democratic Developmental States

1. Fanie Cloete & Christelle Auriacombe Dept of Public Governance, University of Johannesburg P O Box 524, Auckland Park, 2006 Tel +27-11-559-2720, Fax : +27-86-540-5114 e-mail : fcloete@uj.ac.za, christellea@uj.ac.za http://www.sopmp.sun.ac.za/faniecloete/ Measuring Empowerment in Democratic Developmental States APPAM, 28 June, Moscow

2. Presentation structure Empowerment and the developmental state Need for more rigorous policy analysis methodologies The democratic developmental state Measurement of the developmental state Empowerment and development Measurement of empowerment Conclusions

3. Empowerment and the state Development a primary goal of all states The consolidated state distinguished from the developmental state Empowerment as the essence of development (Sen) Empowerment frequently just a cliche Need to unpack empowerment in more detail Need for evidence-based empowerment in developmental states

4. Evidence-based policy assessment 1 Evidence-based analysis largely theory before info revolution Info society enabled effective evidence-based assessments = approach that helps people make well informed decisions about policies, programmes and projects by putting the best available evidence at the heart of policy development and implementation (Segone 2008: 27) = not opinion-based policy practice, which relies heavily on either the selective use of evidence (e.g. on single studies irrespective of quality) or on the untested views of individuals or groups, often inspired by ideological standpoints, prejudices, or speculative conjecture (Segone 2008:27). (c) F Cloete: GWM&ES as CAS, IPSA, Santiago, July 2009

5. Evidence-based policy assessment 2 Shift noticeable from opinion-based to evidence-influenced approaches, because of: unclear objectives; poor design; methodological weaknesses; Inadequate statistical reporting and analysis; selective use of data; and, conclusions which are not supported by the data provided (c) F Cloete: GWM&ES as CAS, IPSA, Santiago, July 2009

6. Origins of the developmental state Tigers since 1925 + fast spillover to Tiger Cubs Characteristics: A deliberate centralised socio-economic developmental plan; Direct interventions by the government in society in order to achieve the goals of that plan; An autonomous autocratic govt (soft authoritarian state) Guided by a strong, competent central bureaucracy with in-house capacity Cooperation by govt, business elites & civil society (alliance capitalism, crony capitalism, governed interdependence, or state embeddednes) A submissive civil society

7. The democratic developmental state Authoritarian nature of developmental state increasingly politically incorrect Strongly centralised states forced by globalisation pressures to democratise Result the democratic developmental state that adopts selective democratic attributes to be more politically correct Slightly more tolerance of criticism Partial liberalisation of selected individual and press freedoms subject to strict state controls Other attributes of developmental state remains (especially central planning & crony capitalism)

8. Indicators for measuring democratic developmental states (1) Determined developmental elite: Clear, attainable developmental priorities (egeducation, health services, land reform, developmental infrastructure). Developmental budget & clear developmental projects rather than status quo maintenance Degree of govtdedication in the implementation of developmental priorities (eg follow-up to ensure successful developmental outcomes) Weak and subordinated civil society: Level of centralization of govt decision-making (eg over-riding provincial and local party structures’ priorities, weakening autonomy of provincial and local government), Level of responsiveness of govt to civil society. Trends in government funding for NGOs

9. Indicators for measuring democratic developmental states (2) Relative autonomy of the developmental state: Enforcement of central governmental policies on party structures Individual governmental elites that get away with policy or legal contraventions without penalties. Powerful, competent & insulated economic bureaucracy: Levels of success with government actions against corruption and nepotism in the management of tenders by the public service

10. Indicators for measuring democratic developmental states (3) Capacity for effective management of private economic interests: Levels of success with government actions against corruption and nepotism in the private sector Evidence of ‘crony capitalism’ and favouritism in the allocation of government contracts. Uneasy mix of repression, poor human rights, democratic legitimacy and performance: Levels of press freedom and other dimensions of good governance, political dimensions (state building, democracy & rule of law), economic dimensions (economic growth & redistribution of wealth), social dimensions (nation building, social equality & social capital), Including international indices (World Bank, Freedom House, African Governance Index, the Global Governance Barometer, etc.)

11. Need for Empowerment in the democratic developmental state Powerlessness: A direct consequence of suboptimal institutional relations among social segments that prevent individuals from exercising choices to promote goals that matter to them (Sen 1999) Vulnerability: women, children, peasant farmers, poor classes, lower castes, religious, cultural & language minority groups & communities in society dominated by majority from different background

12. Measuring Empowerment Indicators: whether a person has the opportunity to make a choice (agency), whether a person actually uses the opportunity to choose (opportunity structure), and once the choice is made, whether it brings the desired outcome (empowerment) - Alsop & Heinsohn (2005), Alsop, Bertelsen & Holland 2006, Ibrahim & Alkire (2007)

13. Empowerment Agency indicators 1 Human assets • Literacy levels • Numeracy levels • Health status Material assets • Land ownership • Tool ownership • Ownership of durable goods • Type of housing Financial assets • Employment history • Level of indebtedness • Sources of credit • Household expenses • Food expenditure • Occupation

14. Empowerment Agency indicators 2 Psychological assets • Self-perceived dignity, respect, status and rights at all levels Exclusion from community activities • Level of interaction/sociability with people from different social groups • Capacity to envisage change, to aspire Informational assets • Journey time to nearest working post office • Journey time to nearest working telephone • Frequency of radio listening • Frequency of television watching • Frequency of newspaper reading • Passable road access to house (by periods of time) • Perceived changes in access to information • Completed education level Organizational assets • Membership of organizations • Effectiveness of group leadership • Influence in selection of group leaders • Level of diversity of group membership

15. Community Empowerment Opportunity Structure indicators Knowledge and awareness of rights and procedures: courts, procedures, services Participation in local development services Confidence and comfort level in accessing services and exercising rights: police, school, courts, set price on labour & products, association Social & economic networks: Access to a job for self or others, ward level, service agencies, goods, credit, info, facilities, etc Effect of complaints or efforts to influence government services

16. Women’s Empowerment Opportunity Structure indicators Degree of exposure to domestic violence and intra-household conflict Degree of control over fertility Degree of personal & family safety & security Degree of control over household decision making Degree of control over self-earned income Degree of control over mobility and ability to travel independently

17. Conclusions (1): Evidence-based policy decisions Need to move beyond identification of policy ‘challenges’ & description of outputs Shift needed from opinion-influenced to evidence-based policy planning & outcomes Various useful indicators for this available Necessitates effective M & E systems especially in developing countries

18. Conclusions (2): Empowerment in the democratic developmental state Nature of the democratic developmental state should be more accurately determined Useful indicators for this available Empowerment is a crucial goal of development, especially in developing states Empowerment conceptualised as ability to exercise effective choices to pursue preferred interests Agency & opportunity structure Indicators proposed for empowerment of powerless at different levels & sectors

19. …and this is all there is, folks… Thank you for your attention !