Events & Issues

28 April 2014, New Delhi

Govt, Governance Mantra

MODI WILL NEED TO SHARE POWER

By Dr S Saraswathi

(Former Director, ICSSR, New Delhi)

Modi’s taunts at the ‘first family’ notwithstanding, his election platforms and BJP’s poll advertisements resonate with the mantra “Minimum Government, Maximum Governance”. To the common people now used to looking upon the Government for anything and everything from household articles to national defence, how palatable is this mantra seems a valid question. Hence, we need to examine and distinguish between government and governance – terms that are intertwined in aam admi’s understanding and even used inter-changeably.

“That government is best which governs least” – this oft-quoted quote seems totally out of date. Whoever has first said this – Jefferson or Thoreau – its meaning and significance are changing from time to time and place to place.

Government is the tool that formulates, transmits and carries out the will of the State. It is a mechanism of administration. It is represented by a concrete organization. In a narrow sense, it refers to the executive power of a State, and in wider sense includes law-making, administration and judiciary.

Governance is far bigger than government.  It is not a monopoly of the government, for it is not exclusively in its domain. The success of a government measured in terms of economic growth and development depends much on the quality of governance of the government. And this, in turn, depends on policy making and policy implementation.

The quality of governance lies in the way State-society relations are structured and managed.  It is a combination of organizational system and operational practices. In its broader sense, governance covers a large field including monitoring the bureaucracy/administration, governance of the market, that is, corporate governance,   planning for the present and future, judicial administration and so on.  

Different kinds of stakeholders have a role in governance including the Union government, State governments, local bodies, non-profit and voluntary organizations now known as civil society organizations, etc. There are multiple players in governance and unless all of them engage themselves in good governance, a government cannot provide that.

Governance is related to the process of decision-making and implementation. It is exercise of political power to manage a nation’s affairs. It is value-free function. Governance involves action and therefore becomes subject to the manner of governing.   This is an art. It is extended to control, direct or strongly influence the action and conduct of others. It involves the method applied, the processes formulated, and the manner of functioning.

The government, of course, has a vital and major role in ensuring good governance in the country. It is responsible for decision-making and implementation. Government can help or mar the role of other actors in governance. It has to act and also discharge the role of facilitator in the true spirit to enable other actors to perform their roles. Its responsibility as facilitator is as big if not bigger than its direct functionary role. By promising minimum government and maximum governance, Narendra Modi must be ready to share power with the people.

The concept of good governance first appeared in 1989 in a report on Africa by the World Bank. It was then defined to include many features such as an efficient public service, an independent judicial system and legal framework, an accountable administration of public funds, independent public auditor responsible to a representative legislature, respect for law and human rights at all levels of government, a pluralistic institutional structure, and a free press.

We have in our country today a constitutional and administrative system and institutions comprising all the features mentioned in the World Bank report. But alas! Cannot boast of good governance!

The World Governance Survey made a few years ago in 16 countries has mentioned five important indicators of good governance to ensure sustainable development. These comprise the extent of personal security, social welfare, defence of national interests, civilian control of the military, and maintenance of peace. India has a mixed record on these and has scope for improving its index.

Good governance implies certain values in governance. However, it is not a goal by itself or the end product of a government. The end is people’s prosperity and nation’s development. Good governance, in the words of former UN Secretary General Kofi Annan, “is perhaps the most important factor in eradicating poverty and promoting development”. It improves the standard of living; builds capacities; promotes opportunities for all; and facilitates wider and wider participation of the people.    

Efficiency, effectiveness, economy, transparency, accountability are all hallmarks of good governance. Along with knowledge, information and skills, good governance requires honesty and integrity in application, equalitarian approach, and humane temperament. Its goals are peace, prosperity, and progress.

In concrete practical terms, good governance can be seen in universal access to basic services, equal and equitable opportunities for better future, a responsible and responsive government, and availability of avenues for participation in decision-making, etc. Good governance does not end with formal institutions and paper laws and prescriptions, but provides scope for empowerment and genuine participation. 

Correspondingly, there is no room for abuse of authority, extra-legal/constitutional centres of power, misuse of official agencies, and other corrupt practices that have sneaked into our institutions.

Modi’s preoccupation with development coupled with good governance is a natural outcome of the close nexus between the two. Good governance is equivalent to purposive and development-oriented government.  Its object is to improve the quality of life for all. There can be no development without good governance though there can be growth without good governance. Less developed societies face problems of governance also.

Good governance that is currently projected as a poll issue is not restricted to governance of the government. Perforce, it extends to all sectors – public, private, and voluntary. The task before the protagonists of good governance in this election is indeed stupendous.

If Modi’s mantra is voted to power, it should usher in an era of political and administrative reforms.  Value-based politics, citizen-friendly administration, corruption-free public life must follow if the mantra is to stay effective and not vanish after the elections. 

Public support is indispensable for good governance. Nothing good can remain good if imposed by internal or external forces. The instruments and processes of people’s participation should facilitate de facto participation.

Is the will of the ruling party and government alone sufficient to bring about good governance?  Cynics may wonder. It may not be sufficient and will need “political will” – a much wider factor. Political parties are engaged in dubious games changing their thoughts and actions to suit their position in the government and in governance.   However, a well-meaning government can definitely start the process. ---INFA

(Copyright, India News & Feature Alliance)