The London School of Economics and Political Science Hegemony, Transformism and Anti-Politics ...

359 Pages·2013·1.71 MB·English

The London School of Economics and Political Science
Hegemony, Transformism and Anti-Politics: Community-Driven
Development Programmes at the World Bank
Emmanuelle Poncin
A thesis submitted to the Department of Government of the London
School of Economics for the degree of Doctor of Philosophy.
London, June 2012.
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Declaration
I certify that the thesis I have presented for examination for the MPhil/PhD degree of the
London School of Economics and Political Science is solely my own work other than where I
have clearly indicated that it is the work of others (in which case the extent of any work
carried out jointly by me and any other person is clearly identified in it).
The copyright of this thesis rests with the author. Quotation from it is permitted, provided
that full acknowledgement is made. This thesis may not be reproduced without my prior
written consent.
I warrant that this authorisation does not, to the best of my belief, infringe the rights of any
third party.
I declare that my thesis consists of 99,559words.
Statement of use of third party for editorial help
I can confirm that my thesis was copy edited for conventions of language, spelling and
grammar by Patrick Murphy and Madeleine Poncin.
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Abstract
This thesis scrutinises the emergence, expansion, operations and effects of community-driven
development (CDD) programmes, referring to the most popular and ambitious form of local,
participatory development promoted by the World Bank. On the one hand, this thesis draws
on the writings of Antonio Gramsci to explore new ways of contextualising and
understanding CDD programmes along the lines of hegemony and transformism, as
promoting social stability and demobilising counter-hegemonic challenges under conditions
of democratisation and decentralisation, in support of economic liberalisation. On the other
hand, it scrutinises the performative operations of CDD discourse in producing, legitimising
and reproducing interventions, along the lines of "anti-politics," inspired by the Foucauldian
approaches of James Ferguson and Tania Li. It also examines the performances elicited by
CDD discourse, which "hails" politicians as "progressive" leaders, and "interpellates" the
population as an "empowered" and "civil" society.
Focusing on "Kalahi," the "flagship" CDD programme of the World Bank in the Philippines,
in the "showcase" Province of Bohol, this research also reveals that CDD interventions,
ostensibly designed to promote popular participation in local governance, have in practice
worked to shore up the position of entrenched local machine politicians, and to undermine
local peasant and fishermen's organisations mobilised to demand implementation of agrarian
reform and legislation restricting large-scale fishing. Kalahi, the thesis further shows, was
from the outset also intertwined with the expansion of agro-business and tourism ventures in
the province, and with counterinsurgency operations. In parallel, Kalahi discourse has
promoted new discursive styles of leadership, which have enabled local politicians to
enhance their political clout and to reinforce their popular support base, whilst practices and
institutions have remained essentially unchanged. Overall, this thesis thus shows that CDD
programmes have worked to shore up hegemony in rural localities throughout the
Philippines, and elsewhere across the developing world.
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Contents
List of Figures and Tables.......................................................................................................7
Acknowledgements..................................................................................................................8
List of Acronyms......................................................................................................................9
Chapter 1 –Introduction......................................................................................................11
A New Paradigm in Local Development.............................................................................11
CDD as Instrument of “Good Governance”: The Liberal Communitarian View................14
Empirical Record.................................................................................................................17
“Social Capital” and “Empowerment,” Revisited................................................................21
Anti-Politics Machine..........................................................................................................27
Hegemony and Transformism..............................................................................................33
AMaterial-Discursive Analytical Framework of CDD Programmes..................................39
Methodology and Data Sources...........................................................................................45
Research Design and Methodology.................................................................................45
Scope andLimitations......................................................................................................49
Sources.............................................................................................................................52
Thesis Overview...................................................................................................................54
Chapter 2 –The Emergence and Rise of CDD Programmes Worldwide.........................56
Free Market and Oligarchical Democracies in the 1980s....................................................59
Bringing the State back in: “Good Governance” in the early 1990s....................................65
The Emergence of CDD Programmes: The Cases of Brazil and Mexico............................72
Mexico..............................................................................................................................72
Brazil................................................................................................................................78
Bringing Society Back in: “Civil Society” and “Empowerment” at the Bank ....................84
The Evolution and Expansion of CDD Programmes: Indonesia’s KDP and Beyond.........92
Conclusion..........................................................................................................................103
Chapter 3 –Kalahi in Philippine Oligarchical Democracy.............................................108
Oligarchical Democracy.....................................................................................................117
Crises and Transformist Responses...................................................................................120
People Power II..................................................................................................................127
The Emergence of Kalahi and the 2004 Elections.............................................................131
The Kalahi Vision..............................................................................................................136
Expansion...........................................................................................................................141
Conclusion..........................................................................................................................143
Chapter 4 –Bohol as Arena for Kalahi Intervention.......................................................148
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Spanish Colonial Rule (1521-1898)...................................................................................153
American Colonial Era (1898-1946)..................................................................................156
Post-Independence Commercialisation of the Economy...................................................161
Going Global......................................................................................................................166
Tourism..........................................................................................................................168
Agriculture.....................................................................................................................171
Local Growth Coalition......................................................................................................174
Contestation, Containment and Counterinsurgency...........................................................178
Conclusion..........................................................................................................................184
Chapter 5 –The “Enabled” Environment.........................................................................188
Kalahi Operations in Bohol: An Overview........................................................................194
The Rise of “Progressive” Leaders in the 1990s................................................................203
The Aumentado Provincial Administration, 2001-2010....................................................206
Electoral Domination and Development............................................................................213
Performing Kalahi in Bohol’s Municipalities....................................................................216
Counterinsurgency-led Development.................................................................................224
Conclusion..........................................................................................................................230
Chapter 6 –Institutional Interests, Priorities and Pressures at the World Bank and the
Philippine Department of Social Welfare and Development...........................................235
The Lending Race..............................................................................................................239
“Organizational Need for Ignorance” at the Social Development Department.................242
The Knowledge Bank.........................................................................................................250
The Philippine Department of Social Welfare and Development......................................256
Conclusion..........................................................................................................................265
Chapter 7 – Performing CDD at the World Bank: CDD Practitioners’ (Self-)
Representations of CDD Programmes...............................................................................269
The Two Spheres of CDD Programmes.............................................................................271
Paradoxical Positions.........................................................................................................279
Performed Representations................................................................................................283
Tailoring and Improving....................................................................................................287
A Fragile Edifice?..............................................................................................................291
Conclusion..........................................................................................................................295
Chapter 8 –Conclusion.......................................................................................................298
CDD Programmes as Instruments of Hegemony, Transformism and Anti-Politics..........298
Revisiting the Argument....................................................................................................302
Hegemony and Development.............................................................................................315
Contributions to Literature.................................................................................................317
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Annex 1 –Coded List of Interviewees................................................................................323
References.............................................................................................................................326
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List of Figures and Tables
Table 1 –Top 12 CDD Programmes Financed by the World Bank Worldwide......................99
Figure 1 –Provinces that Experienced Kalahi in 2003-2009.................................................109
Figure 2 – Illustration of the Kalahi “Story of Radical Change” Entitled “Peace Means
Walking the Same Road,” Province of Lanao del Norte, Northern Mindanao......................140
Figure 3 – Illustration of the Kalahi “Story of Radical Change” Entitled “Our Town Folk
Pull off an Electrifying Victory,” Province of Siquijor, Central Visayas..............................140
Figure 4 –Municipalities that Experienced Kalahi in Bohol between 2003 and 2009..........189
Table 2 –Poverty Incidence amongst Population (%) in Kalahi Municipalities, Bohol,
2003-2005...............................................................................................................................193
Figure 5 – “CDD Modalities in Local Institutional Environments”......................................289
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Acknowledgements
To John Sidel, my supervisor, who has been incredibly patient and supportive throughout the
past four years, and who has enabled me to turn my often unruly ideas into a PhD thesis
through his many comments and suggestions, I am truly indebted and very grateful. Thanks
also to Mathias Koenig-Archibugi, my advisor, for patiently reading my chapters, discussing
them with me, and encouragingme to question and consolidate my arguments.
I am very grateful to all the people who have shared their experiences of development in
Bohol with me, and to my Boholano friends, who made me feel at home during my stay
there. Thanks also to the many people I met in Manila and in Cebu, in development
organisations, government departments, universities, NGOs, and research institutes, for their
insights on community-driven development in the Philippines, which have encouraged and
inspired me during this research.
I am grateful to the people from World Bank offices in Manila and in Washington, D.C., for
taking the time to answer my many questions on CDD programmes; their insights into the
world of community-driven development in the Philippines and beyond have been crucial for
this thesis.
Although in the past two years, I spent most of my time working from my kitchen table, I
have not felt lonely, thanks to the many phone converstations with my grandmothers,
Huguette and Jeanne, my aunts, Brigitte and Pascale, and my parents, which have helped me
to keep abreast of all the latest family gossips. Patricia, my mother-in-law, and Neil, my
brother-in-law, have also always been nearby to share a cup of coffee or redbush during a
break.
I owe some of my best breaks to my brother, Nicolas, whose great movie advice has helped
me to completely switch off, and remember that there is a world outside of my PhD.
Throughout these four years, my father, Philippe, has been particularly good at letting me
complain about my work, whilst my mother, Madeleine, has been my main reader and
supporter.
Finally, to Nick, for sharing all the highs and lows of this PhD, for putting up with my
dragonish moods, for coming almost half-way across the globe to share six months in the
Philippines with me, and for making everything so much better: merci bb! And to Stella, for
changing everything.
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List of Acronyms
ADB Asian Development Bank
AFP Armed Forces of the Philippines
APCR Apoio às Pequenas Comunidades Rurais (Support to Small Rural
Communities)
BAMDECOR Bohol Agro-Marine Development Corporation
BAYAN Bagong Alyansang Makabayan (New Patriotic Alliance)
CBD Community-based Development
CDD Community-driven Development
CIDA Canadian International Development Agency
COMELEC Commission on Elections
CPP Communist Party of the Philippines
DENR Department of Environment and Natural Resources
DFID Department for International Development
DRD Decentralization and Regional Development
DSWD Department of Social Welfare and Development
EDSA Epifanio de los SantosAvenue
FARDEC Farmers Development Center
FCB First Consolidated Bank
FDN Frente Democrático Nacional (National Democratic Front)
GATT General Agreement on Tariffs and Trade
GDP Gross Domestic Product
GNP Gross National Product
GOLD Governance and Local Democracy
HUMABOL Hugpong sa mga Mag-uumang Bolanon (Bohol Farmers’ Association)
IBDR International Bank for Reconstruction and Development
IDA International Development Association
IFAD International Fund for Agricultural Development
IMF International Monetary Fund
IPAG Investment Promotion Advisory Group
JBIC Japan Bank for International Cooperation
JICA Japan International Cooperation Agency
KALAHI-CIDSS Kapit Bisig Laban sa Kahirapan (Linking Hands in the Fight against
Poverty)-Comprehensive and Integrated Delivery of Social Services
Kalahi OBAMA KALAHIOperation for Barangay and Municipality Assistance
KCAF KALAHI-CIDSS Additional Financing
KDP Kecamatan Development Project
KMP Kilusang Magbubukid ng Pilipinas (Peasant Movement of the
Philippines)
KOICA Korea International Cooperation Agency
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Lakas-Kampi-CMD Lakas (Strength)-Kabalikat ng Malayang Pilipino (Partner of the Free
Filipino)-Christian Muslim Democrats
Lakas-NUCD Lakas-National Union of Christian Democrats
LDP Laban ng Demokratikong Pilipino (Fight of Democratic Filipinos)
MAKAMASA Bohol Makusganong Kapunungan sa mga Gagmayung Mananagat sa Bohol
(Federation of Small Fishermen in Bohol)
MCC Millennium Challenge Corporation
MILF Moro Islamic Liberation Front
MPDC Municipal Planning and Development Coordinator
NEDA National Economic Development Authority
NGO Non-governmental Organisation
NPA New People’s Army
NSCB National Statistical Coordination Board
ODA Official Development Assistance
OED Operations Evaluation Department
OPLANBantay Laya Operational Plan Bantay Laya (Freedom Watch)
PALM Philippine Agricultural Land Development and Mill
PDI-P Partai Demokrasi Indonesia Perjuangan (Indonesian Democratic Party
of Struggle)
PDMS Poverty Database and Monitoring System
PFL Partido da Frente Liberal (Liberal Front Party)
PMDB Partido do Movimento Democrático Brasileiro (Brazilian Democratic
Movement Party)
PO People’s Organisation
PRI Partido Revolucionario Institucional (Institutional Revolutionary
Party)
PRONASOL Programa Nacional de Solidaridad (National Solidarity Program)
PT Partido dos Trabalhadores (Workers’ Party)
R-NRDP Reformulated Northeast Rural Development Program
SEARICE Southeast Asia Regional Initiatives for Community Empowerment
UNICEF UN Children’s Fund
USAFFE United States Armed Forces Far East
USAID United States Agency for International Development
WTO World Trade Organisation
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