PUBLIC ADMINISTRATION AND DEMOCRATIC GOVERNANCE ...

1 ST/ESA/ 7th Global Forum on Reinventing Government Building Trust in Government 26-29 June 2007, Vienna, Austria PUBLIC ADMINISTRATION . AND DEMOCRATIC GOVERNANCE : Governments Serving Citizens January 2007. The views expressed in this paper are those of the author(s). and do not necessarily represent those of the United Nations or its Member States. DESA MISSION STATEMENT. The Department of Economic and Social Affairs of the United Nations Secretariat is a vital interface between global policies in the economic, social and environment spheres and national action. The Department works in three main interlinked areas: (i) it compiles, generates and analyses a wide range of economic, social and environmental data and information on which Member States of the United Nations draw to review common problems and to take stock of policy options; (ii) it facilitates the negotiations of Member States in many intergovernmental bodies on joint courses of action to address ongoing or emerging global challenges; and (iii).

2 It advises interested governments on the ways and means of translating policy frameworks developed in United Nations conferences and summits into programmes at the country level and, through technical assistance, helps build national capacities. NOTE. The designations employed and the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or area, or of its authorities, or concerning the delimitation of its frontiers or boundaries. The designations developed and developing economies are intended for statistical convenience and do not necessarily imply a judgment about the stage reached by a particular country or area in the development process. The term country as used in the text of this publication also refers, as appropriate, to territories or areas. The term dollar normally refers to the United States dollar ($). The views expressed are those of the individual authors and do not imply any expression of opinion on the part of the United Nations.

3 A United Nations Publication Publication No.: ST/ESA/ Printed in the United States of America 2006. Copyright United Nations, 2006. All rights reserved ii 7th Global Forum on Reinventing Government FOREWORD. Making PUBLIC ADMINISTRATION and GOVERNANCE more responsive to the needs of citizens is one of the most important aims of the United Nations' Reinventing Government programme. This volume brings together concepts and ideas from around the world about the need for and ways of achieving more responsive and accountable PUBLIC ADMINISTRATION within the framework of DEMOCRATIC GOVERNANCE . The chapters are edited versions of papers that were originally prepared for the Sixth Global Forum on Reinventing Government held in Seoul, Republic of Korea, on 24-27 May 2005. The Global Forum, in accordance with UN General Assembly resolution A/RES/57/277/ of 2002, is held every two years. The Forum is a bridge on which GOVERNANCE principles and practices meet, and on which global initiatives interact with regional and local priorities.

4 The Forum offers tremendous opportunities for diverse stakeholders notably, high-ranking government officials, eminent PUBLIC ADMINISTRATION scholars, corporate leaders, representatives of international organizations, donor agencies, and non-governmental organizations to exchange ideas on approaches that are critical to PUBLIC policy and management challenges facing the world as a whole and its constituent regions. As part of the United Nations' efforts to promote excellence in GOVERNANCE and PUBLIC ADMINISTRATION , the Division for PUBLIC ADMINISTRATION and Development Management (DPADM) provides support to the Global Forum on Reinventing Government as an international gathering of policy makers and experts so that it can serve as a worldwide laboratory for new ideas and policy development. DPADM extends these discussions not only through the biennial Global Forum but also through a series of regional forums on reinventing government that focuses on specific challenges and innovations in particular geographical regions of the world.

5 The Global Forums on Reinventing Government have explored a wide range of topics for improving GOVERNANCE and PUBLIC ADMINISTRATION including the challenges facing governments in the 21st century arising from globalization, means of fostering democracy and development through e-government, partnerships among citizens, businesses and governments for development and democracy, innovation and quality in government, and participatory and transparent GOVERNANCE . The Seventh Global Forum, to be held in June 2007, will explore ways of building trust in government. All of these themes are reflected in the chapters in this volume and focus on ways of strengthening trust, accountability and participation in government so that it can serve citizens more effectively, efficiently and responsively. This publication is one of the analytical products emerging from the Global Forum on Reinventing Government designed to make the ideas and approaches developed during iii 7th Global Forum on Reinventing Government discussion more widely available to policy makers and practitioners, scholars and researchers and the PUBLIC at large.

6 Its aim is to provide interested governments with conceptual and policy tools to understand the complex challenges facing 21st century PUBLIC officials and administrators and to select and adapt those ideas that are most appropriate for enhancing their ability to serve citizens effectively. I hope that this publication will stimulate thinking, policy discussions and implementation of innovative ideas to strengthen DEMOCRATIC GOVERNANCE and PUBLIC ADMINISTRATION in ways that will enhance citizens' trust in government and participation in PUBLIC affairs. Guido Bertucci, Director Division for PUBLIC ADMINISTRATION and Development Management Department of Economic and Social Affairs United Nations iv 7th Global Forum on Reinventing Government Editor: Dennis A. Rondinelli, Senior Research Scholar at the Duke Center for International Development at the Terry Sanford Institute of PUBLIC Policy at Duke University, and Director of the Pacific Basin Research Center, Soka University of America, Aliso Viejo, California.

7 Contributing Authors: Sabino Cassese and Mario Savino, University of Rome G. Shabbir Cheema, Principal Advisor on GOVERNANCE , Division for PUBLIC ADMINISTRATION and Development Management (DPADM), United Nations James Katorobo, Makerere Institute of Social Research Aisha Ghaus-Pasha, Centre for Social Policy Samuel Paul, PUBLIC Affairs Center Jeremy Pope, The GOVERNANCE Access Learning Network Gowher Rizvi, The Ash Institute for DEMOCRATIC GOVERNANCE and Innovation, Harvard University Dennis A. Rondinelli, Duke Center for International Development, Duke University David Satterthwaite, International Institute for Environment and Development (with Somsook Boonyabancha, Celine d'Cruz, Yves Cabannes, Diana Mitlin, Sheela Patel, and Alfredo Stein). Jerzy Szeremeta and Richard Kerby, United Nations Department of Economic and Social Affairs Massimo Tommasoli, International Institute for Democracy and Electoral Assistance The Government Reinvention Series Editor: G. Shabbir Cheema, Principal Advisor on GOVERNANCE , Division for PUBLIC ADMINISTRATION and Development Management (DPADM), Department of Economic and Social Affairs (UNDESA), United Nations.

8 V 7th Global Forum on Reinventing Government Contents Foreword ..ii Acknowledgments .v Contents ..vi 1. Governments Serving People: The Changing Roles of PUBLIC ADMINISTRATION in DEMOCRATIC GOVERNANCE ..1. Dennis A. Rondinelli 2. Linking Governments and Citizens through DEMOCRATIC GOVERNANCE .29. G. Shabbir Cheema 3. Representative Democracy and Capacity Development for Responsible Politics ..52. Massimo Tommasoli 4. Reinventing Government: Putting Democracy and Social Justice Back into the Discourse ..78. Gowher Rizvi 5. Dimensions of Transparency in GOVERNANCE ..115. Jeremy Pope 6. E-Government: Providing Value to Citizens ..165. Jerzy Szeremeta and Richard Kerby 7. Accountable GOVERNANCE and Administrative Reform in Europe ..173. Sabino Cassese and Mario Savino 8. Roles of Civil Society Organizations in GOVERNANCE 202. Aisha Ghaus Pasha 9. Auditing for Social Change: Learning from Civil Society Initiatives .. 225. Samuel Paul 10. Decentralization and Local Autonomy for Participatory Democracy.

9 237. James Katorobo 11. Participatory GOVERNANCE in Cities ..267. David Satterthwaite, with Somsook Boonyabancha, Celine d'Cruz, Yves Cabannes, Diana Mitlin, Sheela Patel and Alfredo Stein vi 7th Global Forum on Reinventing Government Chapter 1. GOVERNMENTS SERVING PEOPLE: THE CHANGING ROLES OF PUBLIC . ADMINISTRATION IN DEMOCRATIC GOVERNANCE . Dennis A. Rondinelli The role of PUBLIC ADMINISTRATION in GOVERNANCE is a continuing topic of discussion and debate. The current worldwide reassessment of the functions of the State and of PUBLIC officials and civil servants arises from two major sources: one is globalization and its impacts on what governments must do to adapt and respond to rapidly changing international economic, social, political and technological trends; the other is increasing dissatisfaction among citizens in many countries with the functions of government and the services that PUBLIC administrations provide. Globalization the movement toward greater interaction, integration, and interdependence among people and organizations across national borders is increasing transactions among countries in trade and investment and in the international flows of capital, people, technology, and It is evident in the growing levels of international political interaction and widespread social and cultural interchange that have occurred over the past quarter of a Globalization has brought both benefits and challenges to countries around the Globalization offers new economic opportunities but also imposes new political, social, technological, and institutional complexities, especially on poorer countries, that governments must address in order to stimulate more equitable economic and social development.

10 In order to benefit from more open and widespread economic interaction, governments must support an economic system that promotes and facilitates the ability of business enterprises to compete effectively in international markets and of people at all economic levels to earn a decent livelihood. Over the past two decades, in the wake of pressures of globalization and technological innovation and more widespread access to communications, citizens in many countries began demanding more of their governments. These rising expectations, too often, have led to growing dissatisfaction with or lack of trust in government. In its review of government reinvention experiences in nine countries, the Organization for Economic Cooperation and Development (OECD) noted that a growing disenchantment with government performance increased pressures for 1 United Nations, World PUBLIC Sector Report: Globalization and the State. United Nations, New York: Department of Economic and Social Affairs (2001). 2 Stanley Hoffman, Clash of Globalizations, Foreign Affairs, Vol.