Votes and Budgets: Comparative Studies in Accountable Governance in the South PDF
Preview Votes and Budgets: Comparative Studies in Accountable Governance in the South
INTERNATIONAL POLITICAL ECONOMY SERIES General Editor: Timothy M. Shaw, Professor of Political Science and Inter national Development Studies, and Director of the Centre for Foreign Policy Studies, Dalhousie University, Nova Scotia, Canada Recent titles include: Pradeep Agrawal, Subir V. Gokarn, Veena Mishra, Kirit S. Parikh and Kunal Sen ECONOMIC RESTRUCTURING IN EAST ASIA AND INDIA: Perspectives on Policy Reform Solon L. Barraclough and Krishna B. Ghimire FORESTS AND LIVELIHOODS: The Social Dynamics of Deforestation in Developing Countries Jerker Carlsson, Gunnar Kohlin and Anders Ekbom THE POLffiCAL ECONOMY OF EVALUATION: International Aid Agencies and the Effectiveness of Aid Edward A. Comor (editor) THE GLOBAL POLITICAL ECONOMY OF COMMUNICATION Paul Cook and Frederick Nixson (editors) THE MOVE TO THE MARKET? Trade and Industry Policy Reform in Transitional Economies 0. P. Dwivedi DEVELOPMENT ADMINISTRATION: From Underdevelopment to Sustainable Development Noeleen Heyzer, James V. Riker and Antonio B. Quizon (editors) GOVERNMENT- NGO RELATIONS IN ASIA: Prospects and Challenges for People-Centred Development George Kent CHILDREN IN THE INTERNATIONAL POLITICAL ECONOMY David Kowalewski GLOBAL ESTABLISHMENT: The Political Economy of North/Asian Networks Laura Macdonald SUPPORTING CIVIL SOCIETY: The Political Role of Non-Governmental Organizations in Central America Gary McMahon (editor) LESSONS IN ECONOMIC POLICY FOR EASTERN EUROPE FROM LATIN AMERICA David B. Moore and Gerald J. Schmitz (editors) DEBATING DEVELOPMENT DISCOURSE: Institutional and Popular Perspectives Juan Antonio Morales and Gary McMahon (editors) ECONOMIC POLICY AND THE TRANSITION TO DEMOCRACY: The Latin American Experience Paul J. Nelson THE WORLD BANK AND NON-GOVERNMENTAL ORGANIZATIONS: The Limits of Apolitical Development Archibald R. M. Ritter and John M. Kirk (editors) CUBA IN THE INTERNATIONAL SYSTEM: Nonnalization and Integration Ann Seidman and Robert B. Seidman STATE AND LAW IN THE DEVELOPMENT PROCESS: Problem-Solving and Institutional Change in the Third World TorSkilnes THE POLITICS OF ECONOMIC REFORM IN ZIMBABWE: Continuity and Change in Development John Sorenson (editor) DISASTER AND DEVELOPMENT IN THE HORN OF AFRICA Howard Stein (editor) ASIAN INDUSTRIALIZATION AND AFRICA: Studies in Policy Alternatives to Structural Adjustment Deborah Stienstra WOMEN'S MOVEMENTS AND INTERNATIONAL ORGANIZATIONS Larry A. Swatuk and Timothy M. Shaw (editors) THE SOUTH AT THE END OF THE TWENTIETH CENTURY: Rethinking the Political Economy of Foreign Policy in Africa, Asia, the Caribbean and Latin America Sandra Whitworth FEMINISM AND INTERNATIONAL RELATIONS David Wurfel and Bruce Burton (editors) SOUTHEAST ASIA IN THE NEW WORLD ORDER: The Political Economy of a Dynamic Region Votes and Budgets Comparative Studies in Accountable Governance in the South Edited by John Healey Research Fellow Overseas Development Institute, London and William Tordoff Professor Emeritus ofG overnment University of Manchester * © Overseas Development Institute 1995 Softcover reprint of the hardcover 1st edition 1995 978-0-333-63887-3 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Totten ham Court Road, London W1T 4LP. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. Published by PALGRAVE MACMILLAN Houndmills, Basingstoke, Hampshire RG21 6X5 and 175 Fifth Avenue, New York, N.Y. 10010 Companies and representatives throughout the world PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin's Press, LLC and of Palgrave Macmillan Ltd. Macmillan® is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. Outside North America ISBN 978-1-349-24288-7 ISBN 978-1-349-24286-3 (eBook) DOI 10.1007/978-1-349-24286-3 Inside North America ISBN 978-0-312-12709-1 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. A catalogue record for this book is available from the British Library. Library of Congress Catalog Card Number: 95-5718 Contents List of Tables and Figures x Notes on the Contributors xi Acknowledgements xiii List of Acronyms and Abbreviations xiv Economic and Social Indicators of Main Countries Examined xvii Location of Main Countries Examined xviii PART I INTRODUCTION AND APPROACH 1 Accountable Governance and Free, Competitive Politics 3 John Healey Introduction: new perceptions and expectations 3 What is accountability? 4 Criteria: accountability of the political and administrative system 5 Accountability: the balance of political responsiveness and public responsibility 7 The role of external .financial institutions 8 Method 8 References 8 PART II COUNTRY CASE STUDIES 2 Botswana: a Study in Politkal Accountability 13 John Healey I General 13 Economic system 13 Political culture, electoral system and elections 14 Political parties: a political accountability perspective 17 Interest groups: pluralism 21 Political executive 24 II Public expenditure management-the accountability of the process 27 Public expenditure strategy 27 Annual budgeting 34 v vi Contents III The watchdog and financial mismanagement 42 The national assembly and committees 42 The evolution and role of the independent media 44 Financial mismanagement and corruption 46 IV Patterns of public expenditure: Intentions and Outcomes: A review of political responsiveness 49 Public expenditure priorities and outcomes 49 Self-monitoring and review of government's performance 51 Outcomes compared with intentions 51 Responsiveness to the electorate 54 v Summary - an accountability audit of Botswana 59 References 61 3 Jamaica: Mature Democracy but Questionable Accountabllity 63 Jane Harrigan I Economic, social and political structure: accountability aspects 63 Economic peiformance 63 Society and the state 64 The political system and the executive 65 The legislature 68 Elections and political parties 69 Interest groups 72 The media 73 Public administration 75 n Public expenditure management 76 Trends in the accountability and control ofp ublic expenditures 76 The formulation ofp ublic expenditure strategy 81 The state budgetary process: participatory and accountability features 84 Checks and controls 89 The influence of external agencies 94 Public expenditure intentions and outcomes 97 m Concluding summary: an accountability audit 99 References 106 4 Sri Lanka: Democracy and Accountability in DecUne (1948-93) 109 David Hulme and Nimal Sanderatne I Introduction 109 Civil society 109 Contents vii The political system 111 The economy, economic regimes and budgetary trends 117 II Public expenditure strategy and budgetary processes: formulation and consultation 119 Public expenditure strategy 119 State budgetary process 122 m Intentions and outcomes 126 Public expenditure strategy: promises and actions 126 Budgets: estimates and outtums 133 IV The watchdogs 135 The official watchdogs 135 Independent watchdogs: the media and others 138 v The influence of the external financial agencies 140 VI Summary: an accountability audit 145 References 150 5 Zambia: a Wind of Change in Expenditure Management? 153 Elizabeth Cromwell I The political and civic culture 153 Introduction and background 153 Civil society 155 Parties: the second and third republics 158 Elections 159 Interest groups 163 Legislature 165 Political executive 168 Public administration 171 II Public expenditure management 174 Public expenditure strategy 174 Links between plans and budgets 177 Budget timetable and procedure 178 Consultation procedures and practices 179 Capacity and consistency of the budget system 180 Budget negotiation 183 Budgetary implementation and control 184 Checks and balances 186 Donors 192 m Intentions and Outcomes 196 Intentions and monitoring government performance 196 Social expenditures 198 The influence of elections 200 Overall assessment 200 viii Contents IV Concluding summary: an accountability audit 202 Accountability of the budgetary process 202 Accountability of the political system 203 Links between political and administrative accountability over time 203 Chimwela? 205 References 206 PART ID COUNTRY COMPARISONS AND CONCLUSIONS 6 The Single Party State in Mrica and Asia: Comparative Accountability 211 WiUiam Tordoff I Introduction 211 The extent ofa ccountability: the one-party state 211 II The African experience 212 Tanzania 212 Ghana 217 Zambia 221 The one-party state and the bureaucracy in Africa 226 III The Asian experience 226 Taiwan 227 Other Asian cases 231 IV Conclusions 234 References 235 7 Multi-party Electoral Politics: Comparative Experience and Conclusions 237 John Healey I Comparative political systems 237 Popular participation 237 Political parties and elections 237 Interest groups 238 Political executive 240 II Comparative accountability of public expenditure management 241 Public expenditure strategy 241 The control ofp ublic expenditure 243 Patronage/populism and the budget 244 Food Subsidies: Sri Lanka and Zambia compared 245 Intentions and outcomes 246 Watchdogs: the role of the elected assembly 247 The media as watchdog 249 Contents ix III Accountable bureaucracy and electoral politics 250 IV Accountable budgeting: the influence of the external financial agencies 252 V Accountable processes: relationship to economic performance and economic reform 254 Economic performance 254 Accountability and economic reform 254 VI Final reflections 255 References 256 Index 259
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