Cornwall and Eade Deconstructing Development Discourse

Deconstructing Development Discourse
Buzzwords and Fuzzwords
Praise for this book

This book has emerged from a process that challenged its authors to think out of
the box of accepted development concepts; to question their continued validity, to
speak truth to power. A sparkling addition to the students tool-kit, and a sobering
call for renewed thinking to long-time development thinkers and practitioners.
Gita Sen, Professor, Centre for Public Policy, Indian Institute of Management
An important initiative from two seasoned, reflective development practitioner
scholars. The chapters in this book will prove a real help in teaching Masters students, as well as stimulating me personally towards new research themes. Are you
tired of looking in Google Scholar for academic journal articles that present serious
issues in a way that engages students? Then this text provides what you are looking for.
Helen Hintjens, Senior Lecturer in Development and Social Justice,
International Institute of Social Studies, The Hague
Timely and emancipatory and long overdue, this is a dissection of how vocabularies
trap us ... These terminologies are the underbelly of the modernisation project which
has shackled and burned holes into the aspirations and potential of countries of the
South. A must-read for those who are working for justice in the public domain.
Devaki Jain, Member South commission, founder member DAWN
With a lightness of touch that belies a deadly seriousness of intent, this book is
both a useful guide and a powerful antidote to the dangerous oversimplifications
of twenty-first century development policy. It is essential reading for researchers,
students and development professionals
David Lewis, Professor of Social Policy and Development,
London School of Economics & Political Science
An exciting, fun and deeply challenging book for all engaged in development.
This timely and highly readable edited volume pushes us to peel back the language of development and grapple with issues that really do matter for global
social justice. Congratulations to the editors for taking up where Wolfgang Sachs
Development Dictionary left off!
Wendy Harcourt, Editor of Development,
Society for International Development
As development practice advances on the ground, development discourse becomes
more complex. This collection fills the important gap by demystifying the jargon
and concepts for practitioners and students of development.
Rajesh Tandon, President, PRIA, India
Since its invention post-Second World War, the development industry has cultivated a vast ideological vocabulary to confuse, conceal and mystify the reconstruction by imperial governments of the former colonies to allow super-exploitation by
the international oligopolies. Development intellectuals have readily colluded and
contributed to this obscurantism. This book goes a long way towards demonstrating
the emptiness of development jargon, unveiling the naked emperor.
Firoze Manji, Editor in Chief, Pambazuka News
This critical dictionary of development discourse will be enormously useful

for those of us who believe that effective communication is essential for positive social change.
Ricardo Wilson-Grau, independent evaluator, Brazil
Deconstructing Development Discourse

Buzzwords and Fuzzwords
Edited by
Andrea Cornwall and Deborah Eade
Published by Practical Action Publishing in association with Oxfam GB

Practical Action Publishing Ltd
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Contents
Preface
Deborah Eade
1.
Introductory overview buzzwords and fuzzwords: deconstructing

development discourse
Andrea Cornwall
vii
2.
Development as a buzzword
Gilbert Rist
19
3.
Words count: taking a count of the changing language of British aid

Naomi Alfini and Robert Chambers
29
4.
Poverty reduction
John Toye
45
5.
Social protection
Guy Standing
53
6.
Globalisation
Shalmali Guttal
69
7.
The F-word and the S-word too much of one and not enough
of the other
Cassandra Balchin
8.
Participation: the ascendancy of a buzzword in the neo-liberal era

Pablo Alejandro Leal
9.
Citizenship: a perverse confluence

Evelina Dagnino
81
89
101
10. Taking the power out of empowerment an experiential account

Srilatha Batliwala
111
11. Social capital

Ben Fine
123
12. Reflections on relationships: the nature of partnership according

to five NGOs in southern Mexico
Miguel Pickard
135
13. Talking of gender: words and meanings in development

organisations
Ines Smyth
143
vi
DECONSTRUCTING DEVELOPMENT DISCOURSE
14. Sustainability
Ian Scoones
15. From the right to development to the rights-based approach:
how human rights entered development
Peter Uvin
16. Civil society
Neera Chandhoke
17. Public advocacy and people-centred advocacy: mobilising for
social change
John Samuel
153
163
175
185
18. NGOs: between buzzwords and social movements

Islah Jad
193
19. Capacity building: who builds whose capacity?

Deborah Eade
203
20. Harmonisation: how is the orchestra conducted?

Rosalind Eyben
215
21. Country ownership: a term whose time has gone

Willem H. Buiter
223
22. Best of practices?

Warren Feek
231
23. Peacebuilding does not build peace

Tobias Denskus
235
24. The uncertain relationship between transparency and

accountability
Jonathan Fox
245
25. Corruption
Elizabeth Harrison
257
26. Good governance: the itinerary of an idea

Thandika Mkandawire
265
27. The discordant voices of security

Robin Luckham
269
28. Fragile states

Eghosa E. Osaghae
281
29. Knowledge management: a case study of the World Banks

Research Department
Robin Broad
293
Coda
Deborah Eade
305
Index
307
Preface
Deborah Eade
When I use a word, Humpty Dumpty said, in a rather scornful tone, it
means just what I choose it to mean, neither more nor less.
The question is, said Alice, whether you can make words mean so
many different things.
The question is, said Humpty Dumpty, which is to be master thats all.
(Lewis Carroll, Through the Looking Glass and What Alice Found There,
1871)
Winnie-the-Pooh sat down at the foot of the tree, put his head between
his paws, and began to think. First of all he said to himself: That buzzing
noise means something. You dont get a buzzing noise like that, just
buzzing and buzzing, without its meaning something.
(A. A. Milne, Winnie-the-Pooh, 1926)
The genesis of the special issue of Development in Practice on which this book is
based was the 2004 UNRISD conference Social Knowledge and International
Policy Making, which addressed the role of ideas in shaping policy (Utting
2006). In writing up the official conference report (UNRISD 2004), I was powerfully reminded how deeply the concepts and language of international development are defined by the cultural mindsets of donor agencies, be they
bilateral or multilateral (and hence nominally pluri-cultural). The intellectual contribution and cultures of aid-receiving countries, even those where
English is the medium of higher education, are, as Adebayo Olukoshi points
out, consigned at best to the textboxes of influential reports published by
the World Bank and other UN specialised agencies; on average only two per
cent of the citations in such reports even include any reference to African
research. In this way, scholars in the South are enlisted to provide case studies
to suit the theoretical frameworks and analysis [for the formulation of policy
proposals by] institutions in the North (UNRISD 2004:11). Where English is
not the prime language of scholarship, let alone the language in which most
people communicate, the exclusion is greater still. For instance, Mike Powell
reports finding bilingual, regionally oriented development practitioners in
West Africa struggling to interpret and reconcile the very different development discourses coming out of Anglo-Nordic and Francophone intellectual
traditions (Powell 2006:523).1
viii DECONSTRUCTING DEVELOPMENT DISCOURSE
If Southern researchers and development practitioners break into the international market, it is increasingly as consultants, whose conceptual frameworks and the language they are expected to use are by definition determined
by the commissioning body. The whole process neatly illustrates Gramscis
notion of cultural hegemony, whereby the values of the ruling culture in
this case, the captains of the Development Industry capture the ideology,
self-understanding, and organisations of the working class in this case, those
whose lives are most significantly affected by international development policies and by the ministrations of development assistance.
It was in the context of these conference discussions that Andrea Cornwall
presented a paper co-authored with Karen Brock, Taking on Board New
Concepts and Buzzwords, in which she dissected the benign-sounding terms
that pepper mainstream development policy and whose use is de rigueur for
anyone working in this field.2 It is acceptable, sometimes expected, to show
a certain critical and even disdainful distance from established shibboleths
such as community or empowerment. But there is no pretending they dont
exist; the rhetorical trick is to demonstrate ones awareness that the meaning
of such words is woolly and imprecise, and then go ahead and employ them,
safely quarantined within inverted commas. Sometimes such terms have been
captured or co-opted by powerful agencies and in the process have lost any
radical or critical edge that they might once have had rather as a bees life is
doomed once it has lost its sting. The aim then is to decide whether the term
has anything left worth saving, or to leave it to its fate. More often, a buzzword
will have a multitude of meanings and nuances, depending on who is using it
and in what context what might be called the Humpty Dumpty Syndrome.3
Or these words appear to convey one thing, but are in practice used to mean
something quite different, or indeed have no real meaning at all. The use of
tough-sounding language does not provide any immunity to the effects of
a deeper ideology. The process by which non-negotiable policies lose their
mandatory power is described by Sarah Hlupekile Longwe in her pithy analysis of the evaporation of gender policies somewhere between SNOWDIDA,
the international co-operation agency of Snowdia, a very isolated nation in
the North, and their application in SNOWDIDAs programme in the Peoples
Republic of Sundia, one of the least-developed countries of Southern Africa
(Hlupekile Longwe 1997: 149).
Remarkably, it has taken only 60 years or so for Developmentspeak, a
peculiar dialect of English, to become the lingua franca of the International
Development Industry. Its pundits inhabit all the major institutions of global
governance, the World Bank as befits its role as the worlds Knowledge Bank
(see the chapter by Robin Broad; also Cohen and Laporte 2004) taking the
lead in shaping the lexicon: burying outmoded jargon, authorising new terminology and permissible slippage, and indeed generating a constant supply of
must-use terms and catchphrases. Its speakers are found in all corners of the
world, giving local inflections to the core concepts, thus making the adoption
of Developmentspeak an essential qualification for entry into the Industry.
PREFACE
ix
The extraordinary thing about Developmentspeak is that it is simultaneously

descriptive and normative, concrete and yet aspirational, intuitive and clunkily pedestrian, capable of expressing the most deeply held convictions or of
being simply full of sound and fury, signifying nothing. This very elasticity
makes it almost the ideal post-modern medium, even as it embodies a modernising agenda.
This is certainly not to say that anything goes. Indeed, this collection deliberately brings together a range of scholars, activists, and aid workers many
of whom have at some time played all three roles, and most of them reasonably fluent in Developmentspeak who nevertheless care about language.
Language can confer the power to name, to set out the boundaries of what is
thinkable; it can also be used to expose and therefore challenge such power.
This is not, therefore, an attempt to establish some kind of Royal Academy of
Developmentspeak in order to pronounce on how words may or may not be
used; nor to embark on a heroic attempt to restore important terms to their
pre-lapsarian state of linguistic innocence. Rather, it reflects a shared concern
about the way in which buzzwords serve to numb the critical faculties of those
who end up using them, wrapping up all manner of barbed policies and practices in linguistic cotton wool. If this volume convinces readers not to take
any item of Developmentspeak at face value, gives them the confidence to
identify cant, and emboldens them to be vigilant about (and to expose) its
pernicious role in restricting the boundaries of thought, and in shaping policy
and practice, then our purpose will have been achieved.
Notes
1. Mike Powells introductory overview to his guest issue of Development in
Practice in November 2006 (Volume 16, Number 6) spells out the myriad
ways in which the increasing domination of the development sector by the
English language both excludes those who are not fully fluent in English,
and just as importantly [disempowers] itself by ensuring its ignorance
of vitally (and in the case of China increasingly) important intellectual
traditions. By failing to engage systematically with local languages, the
sector limits its understanding of and its ability to communicate with
most of its intended beneficiaries. Addressing the issue of language fully
would have large financial and organisational implications, but failure to
do so carries the high costs of ignorance and inefficient communication.
If development is to be about life, it has to be able to connect with the
languages in which its beneficiaries live (Powell 2006:523).
2. This paper forms the basis of Cornwall and Brock (2006).
3. The opening quotations clearly betray my middle-class English upbringing
of the early 1960s; I make no apology for this, for it would be sad indeed
if our childhood left us without cultural roots and reference points. Of
course, the fictional works of Lewis Carroll, an Oxford don who was also an
Anglican priest, a logician, and a photographer, and A. A. Milne, an obscure
playwright, assistant editor of the satirical magazine Punch, and author of
childrens books and poems, cannot conceivably be regarded as universal

or even great authors. But while not universal, they nevertheless form
part of the globalised culture of Walt Disney, Inc., albeit in saccharine
animated cartoon versions that bear little relation to the original texts and
wonderful illustrations.
References
Cohen, Don and Bruno Laporte (2004) The evolution of the Knowledge
Bank, available at http://siteresources.worldbank.org/KFDLP/Resources/
461197-114859 4717965/EvolutionoftheKnowledgeBank.pdf (retrieved 20
March 2007).
Cornwall, Andrea and Karen Brock (2006) The new buzzwords, in Peter
Utting (ed.), pp. 4372.
Hlupekile Longwe, Sarah (1997) The evaporation of gender policies in the
patriarchal cooking pot, Development in Practice 7(2): 14856.
Powell, Mike (2006) Which knowledge? Whose reality? An overview of
knowledge used in the development sector, Development in Practice 16(6):
51832.
UNRISD (2004) Social Knowledge and International Policy Making: Exploring
the Linkages, Report of the UNRISD Conference, Geneva, 2122 April.
Utting, Peter (ed.) (2006) Reclaiming Development Agendas: Knowledge, Power and
International Policy Making, Basingstoke: Palgrave Macmillan and UNRISD.
CHAPTER 1
Introductory overview buzzwords and

fuzzwords: deconstructing development
discourse
Andrea Cornwall
All things are subject to interpretation; whichever interpretation prevails at a given time is a function of power and not truth.
(Friedrich Nietzche)
Words make worlds. The language of development defines worlds-in-themaking, animating and justifying intervention in currently existing worlds
with fulsome promises of the possible. Wolfgang Sachs contends, development is much more than just a socio-economic endeavour; it is a perception
which models reality, a myth which comforts societies, and a fantasy which
unleashes passions (1992:1). These models, myths, and passions are sustained
by developments buzzwords. Writing from diverse locations, contributors to
this volume critically examine a selection of the words that constitute todays
development lexicon. Whereas those who contributed to Sachs 1992 landmark publication The Development Dictionary shared a project of dismantling
the edifice of development, this collection is deliberately eclectic in its range
of voices, positions, and perspectives. Some tell tales of the trajectories that
these words have travelled, as they have moved from one domain of discourse
to another; others describe scenes in which the ironies absurdities, at times
of their usage beg closer critical attention; others still peel off the multiple
guises that their words have assumed, and analyse the dissonant agendas that
they embrace. Our intention in bringing them together is to leave you, the
reader, feeling less than equivocal about taking for granted the words that
frame the world-making projects of the development enterprise.
The lexicon of development

For those involved in development practice, reflection on words and their
meanings may seem irrelevant to the real business of getting things done.
Why, after all, should language matter to those who are doing development?
As long as those involved in development practice are familiar with the catchwords that need to be sprinkled liberally in funding proposals and emblazoned
on websites and promotional material, then surely there are more important
things to be done than sit around mulling over questions of semantics?
But language does matter for development. Developments buzzwords are
not only passwords to funding and influence; and they are more than the mere
specialist jargon that is characteristic of any profession. The word development
itself, Gilbert Rist observes, has become a modern shibboleth, an unavoidable
password, which comes to be used to convey the idea that tomorrow things
will be better, or that more is necessarily better. But, as he goes on to note, the
very taken-for-granted quality of development and the same might be said
of many of the words that are used in development discourse leaves much of
what is actually done in its name unquestioned.
Many of the words that have gained the status of buzzwords in development are (or once were) what the philosopher W.B. Gallie (1956) termed
essentially contested concepts: terms that combine general agreement on
the abstract notion that they represent with endless disagreement about what
they might mean in practice. Yet the very contestability of many of the words
in the lexicon of development has been flattened, as Neera Chandhoke suggests for civil society; terms about which there was once vibrant disagreement
have become consensual hurrah-words (Chapter 16). They gain their purchase and power through their vague and euphemistic qualities, their capacity
to embrace a multitude of possible meanings, and their normative resonance.
The work that these words do for development is to place the sanctity of its
goals beyond reproach.
Poverty is, of all the buzzwords analysed in this collection, perhaps the
most compelling in its normative appeal; as John Toye notes, the idea of
poverty reduction itself has a luminous obviousness to it, defying mere mortals
to challenge its status as a moral imperative. The moral unassailability of the
development enterprise is secured by copious references to that nebulous, but
emotive, category the poor and marginalised (Cornwall and Brock 2005).
Similarly, Elizabeth Harrison draws attention to the righteous virtue of anticorruption talk, which she argues makes it virtually immoral to question what
is being labelled corrupt, and by whom. Many of the words that describe the
worlds-in-the-making that development would create have all the warmly
persuasive qualities that Raymond Williams described for community in his
memorable 1976 book Keywords. Among them can be found words that admit
no negatives, words that evoke Good Things that no-one could possibly disagree with. Some evoke futures possible, like rights-based and poverty eradication
(Uvin, Toye). Others carry with them traces of worlds past: participation and
good governance (Leal, Mkwandawire), with their echoes of colonial reformers
like Lord Lugard, the architect of indirect rule; poverty, whose power to stir
the do-gooding Western middle-classes is at least in part due to its distinctly
nineteenth-century feel; and development itself, for all that it has become a
word that Gilbert Rist suggests might be as readily abandoned as recast to do
the work that it was never able to do to make a better world.
BUZZWORDS AND FUZZWORDS
Alongside words that encode seemingly universal values, the lexicon of

development also contains a number of code-words that are barely intelligible
to those beyond its borders. They are part of an exclusive and fast-changing
vocabulary. These words capture one of the qualities of buzzwords: to sound
intellectual and scientific, beyond the understanding of the lay person, best
left to experts (Chapter 5). Some have their origin in the academy, their
meanings transformed as they are put to the service of development. Among
them social capital and gender are two such examples, with applications far distant from the theoretical debates with which they were originally associated
(Chapters 11 and 13). Others circulate between domains as different in kind as
the worlds that they make: business, advertising, religion, management. Take
empowerment, a term that has perhaps the most expansive semantic range of
all those considered here. Advertisements beckoning consumers to empower
themselves by buying the latest designer spectacles mimic the individualism
of the use of this term by development banks, just as the brand of spiritual
empowerment offered on the websites of the new Christianities lends radically different meaning to its uses by feminist activists to talk about collective
action in pursuit of social justice (Chapter 10).
Buzzwords get their buzz from being in-words, words that define what is
in vogue. In the lexicon of development, there are buzzwords that dip in and
out of fashion, some continuing to ride the wave for decades, others appearing briefly only to become submerged for years until they are salvaged and
put to new uses. What we see, in some cases, is less the rise and rise of a term
than its periodic resurfacing evident, for example, in Alfini and Chambers
account of changes and continuities in the language of British aid policies.
Tracing the reinvention of ideas, as well as words, over time brings into view
some of the paradoxes of development. Community and citizenship featured,
for example, in the vocabularies of the 1950s colonists in Kenya who sought
to rehabilitate errant anti-colonial activists through community development programmes that would teach them to become responsible citizens
(Presley 1988). Community participation came into vogue in the 1970s, taking on an altogether different connotation in the 1980s as do it for yourself
became do it by yourself as neo-liberalism flourished (Chapter 8; Cornwall
2000). Toyes Angels are timeless, but their ministrations have their own historicity. Anti-poverty policies have genealogies that can be traced back over
centuries: to take one example, Elizabethan provision of outdoor relief to
those judged to be the deserving poor, along with setting the poor on work,
is not far distant from some of todays social protection policies described here
by Guy Standing.
Among words with familiar referents, there are others in this collection
that have an entirely contemporary feel, keywords of the times we live in.
Globalisation still captures the Zeitgeist, however much the term has come to
be qualified in recent years (Guttal). Security (Luckham) has become emblematic of the new realities of development, and the increasingly polarised worlds
that we have come to inhabit. Faith-based (Balchin) is a term whose apparent
novelty disguises continuities between the three Cs of the age of colonialism

(Civilisation, Christianity, and Commerce) and todays mainstream development continuities that are increasingly visible. As part of the new world that
has been constructed with the conjunction of development and security, talk of
faith has come to displace any debate about secularism,as Cassandra Balchin
contends: today in international development policy, religion is simultaneously seen as the biggest developmental obstacle, the only developmental
issue, and the only developmental solution (Chapter 7). And there are words,
like peacebuilding, which Tobias Denskus compares to the non-places such as
airports and supermarkets described by Marc Aug (1995), that arrive in the
ether and linger to enchant the consumers of developments latest must-have
terms.
The Development Dictionary brought together critical genealogies of the key
concepts of the age to write the obituary of development. It is a sign of how
far, and how fast, things have changed that there is so little overlap between
the words that feature there and here. But many of the entries in The Development Dictionary appear in todays development discourse in new guises: state
as fragile states (Osague) and good governance (Mkandawire); environment as
sustainability (Scoones); planning (development institutions preoccupation of
that age) as harmonisation (Eyben) (their preoccupation in this one). Equality is
as much of a concern as ever, but has come to be used in development more
often with gender (Smyth) in front of it. Capacity building (Eade) transforms
helping into a technical fix, generating its own entourage of experts. International NGOs have made much of a shift from needs to rights (Uvin). And
progress continues to be regularly invoked, even as the hopes once associated
with it quietly slip away.
The apparent universality of the buzzwords that have come to frame
global development discourses masks the locality of their origins. Significantly, few of the words used in Anglo-dominated development discourse
admit of translation into other languages: many come to be used in other
languages as loan-words, their meanings ever more closely associated with
the external agencies that make their use in proposals, policies, strategies,
and reports compulsory. Even the word buzzword itself is peculiarly Anglophone. Gilbert Rist notes:
I eventually decided to write this chapter in English, for the simple reason that buzzword is just impossible to translate into French. It comes
under what we call la langue de bois, whose translation into English
does not exactly convey the same meaning.
La langue de bois, the language of evasion, well captures one of the functions of developments buzzwords. But, as Rist rightly observes, buzzwords
do not just cloud meanings: they combine performative qualities with an
absence of real definition and a strong belief in what the notion is supposed
to bring about.2
Buzzwords as fuzzwords
When ideas fail, words come in very handy. (Johann Wolfgang von
Goethe)
The language of development is, as Fiona Wilson suggests, a hybrid, not quite
the language of social science nor of living English; its vocabulary is restricted, banal and depersonalised. Its underlying purpose, she notes, is not
to lay bare or be unequivocal but to mediate in the interests of political consensus while at the same time allowing for the existence of several internal
agendas (1992: 10). Policies depend on a measure of ambiguity to secure the
endorsement of diverse potential actors and audiences. Buzzwords aid this
process, by providing concepts that can float free of concrete referents, to be
filled with meaning by their users. In the struggles for interpretive power that
characterise the negotiation of the language of policy, buzzwords shelter multiple agendas, providing room for manoeuvre and space for contestation.
Scoones tale of the rise and reinvention of the buzzword sustainability
draws attention to the boundary work (Gieryn 1999) performed by this concept in bridging discursive worlds and the actors who animate them. Scoones
notes that to be effective in this boundary work, remaining contested, ambiguous, and vague is often essential. Yet, as Pablo Leal, Evelina Dagnino,
and Srilatha Batliwala make clear in this volume, it is the very ambiguity of
participation, citizenship, and empowerment that have made them vulnerable
to appropriation for political agendas that are far from those that the social
movements that popularised their use had in mind. Their accounts provide
powerful examples of the politics of meaning, as differently positioned users
put very different versions of these concepts to use.
Leal explores the trajectories of participation, showing how amenable the
term was to pursuit of a neo-liberal policy agenda, and how divorced its mainstream appropriations are from its more radical roots. Dagnino highlights the
perverse confluence that marks the flowing together of neo-liberal and radical democratic meanings of citizenship. Batliwala traces the depoliticisation of
empowerment as it has been converted from an approach that sought to fundamentally alter power relations to a status that constitutes developments latest
magic bullet. She asks (p. 112):
Should we be troubled by what many may consider the inevitable subversion of an attractive term that can successfully traverse such diverse
and even ideologically opposed terrain? I believe we should, because
it represents not some innocent linguistic fad, but a more serious and
subterranean process of challenging and subverting the politics that the
term was created to symbolise.
Ines Smyth explores the morass of competing meanings that have come to
surround the use of another word that has traversed different domains and
ended up depoliticised in the process: gender. Noting the resounding silence
around words such as feminism and feminist, her analysis gives a compelling sense of the lack of fit between organisational imperatives and the
original goals with which gender was associated by feminist scholars and activists. She writes (p. 144):
Real women and men, power and conflict all disappear behind bland
talk of gender, while the language of mainstreaming creates the possibility of orderly tools... and systems through which profoundly internalised beliefs and solidly entrenched structures are miraculously supposed
to dissolve and be transformed.
There are parallels here with Scoones account of how sustainability became subject to the default bureaucratic mode of managerialism [...] and its
focus on action plans, indicators, and the rest (Chapter 14). For all the loss
of momentum and fragmentation that was a casualty of its institutionalisation, however, Scoones argues that sustainability has retained a more overarching, symbolic role of aspiration, vision, and normative commitment. It
is that combination of aspiration, vision, and commitment that, for Smyth,
makes abandoning the term gender altogether less attractive than reanimating
it by harnessing it to terms that might restore some of its original focus on
power relations: rights-based and empowerment.
Rights-based gains much of its allure from the legitimacy that it promises,
grounding development in a more powerful set of normative instruments
than Enlightenment ideals. But, as Peter Uvin contends, what exactly development actors mean when they invoke the language of rights needs to be
closely examined. As he shows, rights-talk may amount to a thin veneer over
development business as usual. Until, as Uvin argues, donors begin to apply
some of their high-moral-ground talk about rights to themselves, rights-talk
risks remaining fluffy and meaningless: akin to what Mick Moore, in his analysis of the World Banks new-found enthusiasm for empowerment, calls cheap
talk: something that one can happily say in the knowledge that it will have
no significant consequences (2001:323).
Reforming relationships
Many of the words that have enjoyed a meteoric rise in popularity over the
past decade are those which speak to an agenda for transforming developments relationships. Today, civil society, social capital, and partnership are as
ubiquitous as community, evoking much the same warm mutuality. As Guy
Standing puts it, these kinds of word are intended to invite automatic
approval (Chapter 5); and their rising fortunes have been as much to do with
their feel-good factor as with what they promised to deliver.
Neera Chandhokes account of the rise and rise of civil society shows us what
is lost when buzzwords are domesticated by development agencies. From the
intense differences in perspective that the term once provoked, it has become
like many of the other expressions analysed in this collection emblematic
of something that no-one could reasonably argue against: close, convivial relations of solidarity and self-help, and an essential bulwark against the excesses of the state and the isolation of the individual. The problem, Chandhoke
argues (Chapter 16), is not that these are not part of what can happen in civil
society. It is that projecting normative desires on to actually existing societies
simply serves to obscure the empirical and analytical question of what civil
society actually does and does not do for people. After all, as Chandhoke reminds us, civil society is only as civil as the society that gives rise to it.
Another facet of buzzwords emerges in Ben Fines account of social capital:
their use as substitutes for terms that are far less easily assimilated into a consensual narrative. Of the buzzwords examined in this collection, social capital
is one of the most accommodating: its uses span just about any and every kind
of human relationship, lending it considerable discursive power as a feel-good
catch-all Good Thing. Charting its rise within mainstream development, Fine
shows how it came to be linked to a broader set of personal, institutional,
and professional projects, including that of what he terms economics imperialism. Like civil society, the normative appeal of social capital sits uneasily
with its darker sides; the wrong kind of social capital is, after all, corruption
(Chapter 25).
Miguel Pickards account of partnership captures some of the ambivalence
that accompanies Northern development agencies projection of their own desired self-image onto complex power relations in the South. Pickard also highlights the contradictions of donors demands for an ever-increasing volume of
reporting and planning, with the emphasis on measurable outcomes, and the
realities of working to bring about social change. As Islah Jad contends in her
account of the NGOisation of Palestinian womens movements, the professionalisation and projectisation that have come about in response to these
demands may not only weaken the transformative potential of aid-receiving
organisations, but can also have more far-reaching political consequences. Jad
reminds us that to attribute to NGOs the almost magical democratising properties ascribed to civil society is to overlook the extent to which donor intervention has sapped the energies of once-vibrant movements, as they come to
conform to the strictures of NGOisation (Alvarez 1988).
Riding the wave as the self-proclaimed champions of global civil society,
international non-government agencies have increasingly turned to advocacy
as their new metier. John Samuel shows quite what a mire of meanings now
surrounds the term public advocacy as it has become the latest fad in the NGO
world. Drawing on experiences from India that affirm that advocacy without
mobilisation is likely to be in vain, he argues passionately for a return to a
more people-centred approach (p. 192):
We need to become equal participants in social communication, rather
than playing the role of highly paid experts travelling around with our
ready-made toolkits and frameworks for prescribing the best communication medicine.
Samuel argues that such an approach is grounded in close links with social
movements. Yet, echoing themes emerging in the contributions by Leal, Eade,
Jad, and Batliwala, these links are being lost as advocacy becomes professionalised and the voices of marginalised people are appropriated by urban and
international elites.
Deborah Eades account of capacity building, another buzzword that has
come to be closely associated with international NGOs, poses pithy questions
about exactly what and whose capacities are seen as worth building. Like Leal,
she highlights the left-leaning traditions that originally informed the notion;
and, equally, she notes its usage today in the service of neo-liberalism. By
troubling an idea that seems at first glance so evidently morally commendable, she identifies the paradoxes and hypocrisies that lie at the heart of the
development enterprise. In doing so, she pricks the bubble that surrounds
representations of NGOs in development.
Developments remedies
The disconnects described by Leal, Batliwala, Eade, and Samuel are evident on
a grander scale in the world of official development agencies bilateral and
multilateral donors and development banks. Among the remedies prescribed
by the institutions that populate this world for addressing its manifest failure to achieve its bold and ambitious promises are measures for tackling the
structure of the development industry itself. Some have a direct origin in New
Public Management, such as donors current preoccupation with results.
Others have echoes of projects of governance of earlier times, whether 1960s
budget support or, further back still, the carving up of colonial dominions
between the world powers of the age.
Rosalind Eybens account of harmonisation exposes the quixotic nature of
the aid world. As she points out, there is a certain attractiveness in the logic
of donor co-ordination. Yet in practice, the harmony in harmonisation is an
illusion: instead, she suggests, donors gang up on recipients to drive through
their agendas, becoming cartels with whom it may be imprudent to argue.
Premised on achieving a noiseless consensus on poverty policy that would be
scarcely imaginable in the signatories home countries, the Paris Agenda contributes to neutralising those who might contest it by draining funding from
civil society to channel through direct budget support. Eyben observes some
of the contractions. One is the fate of another prevalent piece of donor rhetoric, country ownership (see Chapter 21); evident in the perverse contradictions
of country-owned but identikit Poverty Reduction Strategies (see Rowden
and Irama 2004). Another is the strange irony that the economists-turnedmanagers who govern Aidland advocate co-operation among themselves on
efficiency grounds, while on exactly the same grounds impose polices based
on principles of competition on their recipients (Severino and Charnoz 2003)
(Chapter 20).
As results-based management has hit mainstream development agencies, a

veritable industry has sprung up to measure results and provide the necessary evidence as ever, sorely difficult to find that development is working. The days when process showed a glimmer of becoming fashionable came
and went very quickly; todays development is all about the quantifiable and
measurable. Best practice with its implicit assumptions that practices can be
found that are best for all is part of this ever more homogenising world
of development prescriptions, indicators, and results. As Warren Feeks contribution makes amply clear, what may make a practice best may come to
depend as much on context as anything inherent in what is being done. He
argues (p. 234):
The best practice highlighted after an exhaustive international search
may work in the poor barrio on the outskirts of Cali, Colombia, but may
be completely inappropriate perhaps even bad practice if replicated
in Blantyre, Malawi; Puna, India; Kuala Trenggannu, Malaysia; and even
the town in which I was raised: New Plymouth, New Zealand. Probably
even Barranquilla, Colombia would not do what they do in Cali, Colombia, because it just would not work in Barranquilla. Things are different
in Barranquilla!
And, he continues, if the point of labelling something the best is not
that others replicate it, then why label it the best? Why indeed?
Things may well be different for the people of Barranquilla. But for the aidagency staff who populate the expatriate enclaves that can be found in the
capital cities of any Southern country, the new architecture of aid keeps them
insulated from anything that might be happening locally. Denskus account
of peacebuilding paints a vivid picture of just how distant aid staff may now
find themselves from the realities of the countries that they move between.
He cites an aid officials account of the impact of hostilities on the supermarket baskets of expatriate peacebuilders; and talks of hyper-real donor-created
bubbles in which aid officials spend their time talking among themselves and
come to gain greater knowledge of each others programmes than what is actually happening out there in the field.
As Guy Standing observes, throughout history, institutions have arisen to
institutionalise specific discourses and divert knowledge from outside critique
(Chapter 5). Robin Broads account of the art of paradigm maintenance within the World Bank reveals the work to which knowledge management has been
put in an era where the Bank needed to reinvent itself to secure its own place
in the global order. Her analysis of the politics of knowledge management in
the institution that would have us regard it as the Knowledge Bank highlights
the sleights of hand and mind that accompany the production of knowledge
for development. The philosopher Nelson Goodman argued that a statement
is true and a description or representation right for a world it fits (1978:132).
Robin Broads account shows how truth is made to fit the world that the Bank
wishes to make; and the tactics that she describes underscore the partiality in
10
the sense of being partial to, as well as consisting of a partial picture of the
representations of the problems of (and, implicitly, the solutions for) development that emerge from this mighty information machine.
The end of ideology?

Many of the buzzwords analysed in this collection gained popularity precisely through what Fox terms their trans-ideological properties. Yet just
as they appear to rise above ideology, they are densely populated with
ideological projects and positions. The family resemblances (Wittgenstein
1953) of many of the terms considered here are so diffuse that their ideological implications become clear only in the context of their use by particular,
positioned, social and political actors. Unpicking these layers of meaning
brings identifiably ideological differences into clearer view.
Good governance appears at first glance to be less ambiguous than many
of the terms considered here. Its chief prescriptions are encoded in a universal toolkit for the construction of liberal democratic institutions that closely
enough resemble those that facilitated the growth of capitalism in the West
that they will do the same wherever they are implanted. Yet, as Thandika
Mkandawires chapter shows, the genesis of good governance in debates with
African intellectuals had quite a different project in mind: the transformation of statesociety relations to create a more inclusive and accountable state.
These meanings continue to circulate within use of the term governance in
development, which has acquired as Sierra Leonean commentator Freida
MCormack (pers. comm.) puts it the status of the mother of all buzzwords.
But, as Mkandawire makes clear, the mantra-like quality that good governance has attained in international policy circles has led to a diminution of
concern with democratic citizenship and the privileging of traditional neoliberal remedies. That these remedies continue to fail the people of Africa then
becomes ascribable to bad governance.
Security acquires its discursive power through the very opposite of the
orderly and predictable world that good governance would seek to create: its
capacity to evoke the fear of things falling apart. Robin Luckham juxtaposes
the framing of security and development discourses (p. 273):
In contrast to development, whose language is firmly rooted in the grand
narrative of the Enlightenment, the discourse of security arises from the
double-edged and ambivalent nature of development, including its roots
in a destructive capitalism which demolishes livelihoods, communities,
and even states indirectly through the structural violence of poverty,
and directly through war and political violence.
Both security and development come together in talk of fragile states, a label
whose origins are widely ascribed to the World Bank. Eghosa Osagues exploration of the rise of the idea of the fragile state and the use of this term in the
African context makes a convincing case for the need to take a less simplistic
11
view of state capacity and fragility. Highlighting the extent to which the term
connotes deviance and aberration from the dominant and supposedly universal (but Western) paradigm of the state, which played a key role in the
development of capitalism, he argues (p. 291):
ultimately, the responsibility for determining when states are no longer
fragile is that of citizens of the countries concerned and not that of benevolent donors and the international development community whose
motivation for supposed state-strengthening interventions is to ensure
that fragile states take their rightful places in the hegemonic global
order.
It is all the more ironic, then, to observe the extent to which another term
that the World Bank launched into circulation country ownership has become
a decorative epithet that promises something quite different from that delivered
by the monoculture of reform. Country ownership would, after all, seem to
posit quite the converse to the institutional recipes of good governance, resonating with the ideals of self-determination that spurred anti-colonial struggles and
shaped post-independence nationalist governments. Such are its evident contradictions, Willem Buiter argues, that it needs to be seen as a term whose time
has gone. As he points out, to conflate the deployment of the term country
ownership by todays development powers with any meaningful opportunity
by developing countries to shape their own development would be a grave mistake. Rather, he comments, country ownership boils down to decisions made
by the few who own the country and, by extension, the compacts that they
make with the international financial institutions.
Among the panaceas that found their way into mainstream development
in the late 1990s, propelled by the good governance agenda, transparency and
accountability are two that achieved instant popularity across the spectrum. In
Foxs analysis of these terms, and the none-too-straightforward relationship
between them, he illuminates another quality of development buzzwords:
their trans-ideological character, which allows them to be appropriated by a
variety of political and policy actors. As such, he observes, these terms become
as amenable to the proponents of New Public Management as to human-rights
activists. Fox draws attention to another property of buzzwords that their apparent universality conceals (p. 245):
One persons transparency is anothers surveillance. One persons accountability is anothers persecution. Where one stands on these issues
depends on where on sits.
Much the same could be said for corruption; quite what and who is judged
to be corrupt is, as Harrison points out, just as much a matter of positionality. Commenting on the growth of a veritable anti-corruption industry geared
at cleaning up the state, she notes the extent to which this has come to deflect attention from the probity of other actors, including development agencies themselves. The ironies of the confluence of anti-corruption efforts with
12
neo-liberal policy prescriptions raises further questions. Harrison asks: does

the focus on anti-corruption, with its attendant increase in privatisation, concessions, and contracting-out, in turn open the door for greater corruption
among multi-national corporations? (p. 261).
The ambivalent nature of development, in Luckhams terms, is more than
evident in the effects of the kind of globalisation that mainstream developments lenders and donors have sought to foster. Shalmali Guttals analysis draws attention to the discursive moves that equate globalisation with
development, democracy, rights, and choice. This, she argues, provides
a convenient cover for the sanction and support for corporate expansion that
forms part of the agenda of neo-liberal states and multilateral institutions.
But, Guttal argues, globalisation has, equally, fostered the flowering of resistance: the same technology that has exacerbated the financial insecurity of
countries has also been used by peoples movements and activists to jam the
gears of globalisation (Chapter 6).
Language matters
If terms that were once calls to mobilisation in pursuit of social justice, or concepts that were good to think and debate with, have been reduced to vague
and euphemistic buzzwords by their incorporation by the development establishment, what is to be done? As Scoones puts it, can an old buzzword be reinvigorated and reinvented for new challenges, or does it need discarding with
something else put its place? Some contributors to this volume would argue
that there are words that are beyond redemption; others would contend that
it is necessary to reclaim some of the associations once conveyed by terms that
are too precious to lose and use them to give mainstreamed buzzwords new
vigour and purpose. Their analyses suggest a variety of strategies and tactics.
Out with the old, in with the new

One way of dealing with a denatured buzzword is to dump it altogether, and
hope that others will follow suit. Replacing tired old buzzwords with captivating new alternatives, or rehabilitating the lost words that spoke for hopes
and dreams that never went away, is to play the development-buzzword game
on its own terms. It is worth considering some of the words that might be
put in the place of todays fuzzwords. Justice, solidarity, and redistribution are
attractive candidates, resonant with the demands of countless movements
in their struggles to make a fairer, better world. They are resounding calls
to action. And they are words that mainstream development agencies might
sooner choke on than assimilate. But there is no guaranteeing that they would
not become smoothed out, stripped of any disruptive meanings, and incorporated. Think, for instance, of how power and political agency, words that might
seem at first sight to be anathema, have come to enter the discourse of the
World Bank in recent years (see, for example, Alsop 2005).3
13
Another approach is to propel into popularity words whose very dissonance with mainstream development lends them their potential as alternative frames for thought and action. A number of the missing words identified
by Alfini and Chambers like love, peace, respect would seem to fit the bill.
But they share the warm, persuasive qualities of other buzzwords; and they
are no less vague in what they might come to mean. Better, perhaps, to seek
out words that are less ambiguous and which might provoke development
actors out of the complacency of othering the poor. What would it take,
for example, to make pleasure the buzzword of today? As a former bilateral
donor commented, the very idea of talking about pleasure in the context of
development makes me very uncomfortable. This is precisely what is needed,
it might be argued: words that provoke discomfort, that shake people up. Talk
of pleasure takes us beyond monochromatic representations of abjection,
reminding us of the humanity of those whose lives development agencies
would wish to improve.
Pleasure-based approaches suggest more prospect of enhancing well-being
and saving lives than current development models (Jolly 2006). But there is
equally no guarantee that as a result of its incorporation, pleasure would not
become tomorrows freedom.
Leveraging incorporated buzzwords

Gita Sen proposes that rather than abandoning terms that are felt to have become corrupted, a more productive approach might be to recognise that the
fact that new terms and frameworks are being taken up by the opposition is
an important sign not of failure, but of success in the first level of the struggle
for change (2004: 13). Citing Sun Tzus Art of War, she argues, if knowledge
is power, then changing the terrain of discourse is the first but very important step. It makes it possible to fight the opposition on the ground of ones
choosing (ibid.). As Hilary Standing (2004) points out, it is naive to expect bureaucrats to be either willing or able to carry out the transformative work that
those who advocate the adoption of radical concepts expect of them. But this
does not mean that the inclusion of these words in development policies is
not useful to others, including those within development bureaucracies who
are able to use them as levers for change.
For all the association of Foucaults work with the totalising power effects
of discourse, his work on governmentality reminds us that even the most
powerful masters of meanings can never completely secure the capture of language for their own projects. It is in the strategic reversibility (1991:5) of discourse, he argues, that the potential for resistance and transgression lies. As we
have seen with the reclaiming by social movements of words used to denigrate
and exclude, such as queer and mad, the words that make the worlds of the
powerful can be used as tools for mobilisation and resistance. It is, after all, in
the very ambiguity of development buzzwords that scope exists for enlarging
their application to encompass more transformative agendas.
14
Incorporated buzzwords may, indeed, serve as bridges from one domain

into another: allowing activists and progressive bureaucrats to enlist each
other in efforts to refashion development policy and practice, and providing
a discursive meeting ground on which actor-networks come together around
a shared story-line (Hajer 1993). While rejection may be a necessary precursor to reinvention, then, ditching terms whose symbolic potency is not yet
spent in favour of novel but unfamiliar terms may leave practitioners at the
periphery of the worlds of discourse-making, bemused and adrift. For all the
emptying of meaning that occurs as words come to be institutionalised by
development agencies, spaces for contestation and resignification of meaning
are never completely closed. Even the most unpromising of buzzwords can
provide entry points for the mobilisation of alternatives: take, for example, the
reworking of meanings for security described by Luckham, in efforts to claim
normative and discursive ground within the ambit of development policy.
Constructive deconstruction
Tackling what Guy Standing (2001) calls developments linguistic crisis, some
might argue, calls for more than tactical resistance and for making the most
of the room for manoeuvre offered by the appropriation of the language of
social movements by the development establishment. What would it take to
rehabilitate words that have been reduced to feel-good fuzzwords, to turn the
uneasy silence of consensus into vigorous debate, and to revive denatured and
depoliticised buzzwords?
Constructive deconstruction the taking apart of the different meanings
that these words have acquired as they have come to be used in development discourse provides an opportunity for reflection, which is a vital first
step towards their rehabilitation. By making evident the variant meanings
that popular development buzzwords carry, this process can bring into view
dissonance between these meanings. If the use of buzzwords as fuzzwords
conceals ideological differences, the process of constructive deconstruction
reveals them: and, with this, opens up the possibility of reviving the debates
that once accompanied the use of bland catch-all terms like civil society and social capital. And if this is accompanied, as in the genealogical accounts in this
and Sachs collections, with tracing their more radical meanings, it can also
help to wrest back more radical usages of even some of the most corrupted of
terms in the current development lexicon, such as empowerment.
What this requires is not only close attention to meaning. It also calls for a
disentanglement of the normative and the empirical, a focus on actual social
practices rather than wishful thinking (Chapter 2). This can clear the ground
for the more politicised and indeed explicitly normative discussion that Leal
proposes in this volume for participation when he asks (p. 97):
What exactly do we wish to participate in? Can we continue to accept a
form of participation that is simply added on to any social project, i.e.
15
neo-liberal modernisation and development, creating an alibi for development by transferring ownership to the poor in the name of empowerment? Or should participation be re-located in the radical politics of
social transformation by reaffirming its counter-hegemonic roots?
Such a process, as Rist argues for development, would enable us to be aware
of its inclusion in a corpus of beliefs that are difficult to shatter, expose its
mischievous uses, and denounce its consequences. Dislocating naturalised
meanings, dislodging embedded associations, and de-familiarising the language that surrounds us becomes, then, a means of defusing the hegemonic
grip in Gramscis (1971) sense of the word hegemony, as unquestioned acceptance that certain ideas have come to exert in development policy and
practice.
Reclaiming meaning through reconfiguration

For all that might be done to seek more specificity in definition, words gain
their meanings in the contexts of their use; and these meanings are relative
to the other words that surround them. Raymond Williams points out that
particular combinations of words establish one set of connections while often suppressing another (1976: 25). The very mobility of meanings of many
of the words that make up the development lexicon makes them difficult to
resignify without the help of other words that can moor them to specific projects. Ernesto Laclaus (1997) notion of chains of equivalence offers further
insights, as well as a strategy for reanimating denatured buzzwords. As terms
are added to others, Laclau argues, chains of equivalence are formed: the
more words in the chain, the more the meaning of any of those words comes
to depend on the other words in the chain.
Used in a chain of equivalence with good governance, accountability, resultsbased management, reform, and security, for example, words like democracy and
empowerment come to mean something altogether different from their use in
conjunction with citizenship, participation, solidarity, rights, and social justice. In
either chain, other words that might be added such as freedom would come
to mean quite different things. Thinking of words in constellations rather than
in the singular opens up further strategies for reclaiming lost words, as well
as salvaging some of the meanings that were never completely submerged.
Embedding words in chains of equivalence that secure meanings that would
otherwise be pared away, and employing a politics of hyphenation that lends
particular meanings to words with multiple potential referents, can serve as
means of resisting decoupling and recombination and give tired buzzwords
a new lease of life.
16
Conclusion
Different words, different contexts, different actors, and different struggles call
for different strategies: some combination of any or all of those outlined here
may be required at some times and for some purposes. As the contributions to
this volume make clear, engagement with developments language is far more
than a matter of playing games with words. These reflections on the language
of development evoke bigger questions about the world-making projects that
they define and describe. Pablo Leal contends: our primary task is, as it should
always have been, not to reform institutional development practice but to
transform society. Whether development has a place in that process of transformation may come to depend on our willingness to resignify it.
Acknowledgements
I would like to thank Deborah Eade, Ian Scoones, Fiona Wilson, and Karen
Brock for their contributions to the arguments developed here, and Robert
Chambers for all the conversations we have had about our shared interest in
development language over the years.
Notes
1.
2.
3.
For further information about England, see www.victorianweb.org antipoverty policies in Elizabethan /history/poorlaw/elizpl.html.
Although Internet searches failed to track down a site dedicated to
developments buzzwords, there are numerous others devoted to the
management-speak that is becoming pervasive in development
institutions. See, for example, the Official Bullshit Generator at www.
erikandanna.com/Humor/bullshit_generator.htm and the Systematic Buzz Phrase Projector at www.acronymfinder.com/buzzgen.
asp?Num=111&DoIt=Again. My personal favourite is the Elizabethan
Buzzword Generator at www.red-bean.com/kfogel/hypespeare.html And
you can send your most reviled buzzword to www.buzzwordhell.com.
La langue du bois, the language of evasion, has its own generator: www.
presidentielle-2007.net/generateur-de-langue-de-bois.php.
To take an example, in a major 2003 report on inequality in Latin America
and the Caribbean, senior bank staff including the Vice-President and
Chief Economist for the region conclude that breaking with the long
history of inequality in Latin America depends on strong leadership and
broad coalitions ... to mobilise the political agency of progressive governments and the poor. See http://wbln0018.worldbank.org/LAC/LAC.
nsf/PrintView/4112F1114F594B4B85256DB3005DB262?Open document.
17
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Standing, Hilary (2004) Gender, myth and fable: the perils of mainstreaming
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About the author

Andrea Cornwall is a Professorial Fellow of the Institute of Development
Studies at the University of Sussex, where she specialises in the anthropology
of participation and democracy, masculinities, womens empowerment and
womens rights, and sexualities. Recent co-edited works include Feminisms in
Development: Contradictions, Contestations, and Challenges (2007), The Politics
of Rights: Dilemmas for Feminist Practice (2007), and Development with a Body:
Sexualities, Development and Human Rights (2008).
CHAPTER 2
Development as a buzzword
Gilbert Rist
Despite its widespread usage, the meaning of the term development remains
vague, tending to refer to a set of beliefs and assumptions about the nature of
social progress rather than to anything more precise. After presenting a brief history of the term, the author argues that not only will development fail to address
poverty or to narrow the gap between rich and poor, but in fact it both widens
and deepens this division and ultimately creates poverty, as natural resources
and human beings alike are increasingly harnessed to the pursuit of consumption and profit. The survival of the planet will depend upon abandoning the
deep-rooted belief that economic growth can deliver social justice, the rational
use of environment, or human well-being, and embracing the notion that there
would be a better life for all if we moved beyond development.
The meaning(s) of development

To regard development as a buzzword strikes me as highly apposite, for although it has been in vogue for almost 60 years (a record indeed!) its actual
meaning is still elusive, since it depends on where and by whom it is used.1 It
is also part of the ordinary buzz or hubbub to be heard in countless meetings
devoted to issues ranging from agriculture, urban planning, and international
trade to poverty reduction, personal well-being, and industrial production.
Everyone may use it as she or he likes, to convey the idea that tomorrow
things will be better, or that more is necessarily better. But there is more to
it than that. To get a buzz from something also means to get a boost or to
be perked up. In this respect, development has beyond doubt been widely
used as a hard drug, addiction to which, legally tolerated or encouraged, may
stimulate the blissful feelings that typify artificial paradises. So it may also be
legitimate to regard the word development as toxic.
Strangely enough, the international career of the term development,
coupled with the notion of underdevelopment, started as a public relations
gimmick thrown in by a professional speech-writer,2 since President Truman
merely wanted to include in his 1949 Inaugural Address a fourth point that
would sound a bit original. So from the very beginning, when the idea was
first aired in international circles, no one not even the US President really
knew what development was all about. This did not, however, prevent the
word from gaining wide acceptance.3 Nevertheless, this unintentional stroke
20
of genius turned the two antagonists colonisers vs. colonised into seemingly equal members of the same family, henceforth considered either more
or less developed. The dominant view was that time but also money and
political will would suffice to fill the gap between the two sides.
This global promise of generalised happiness had immediate appeal, not
only for those who expected an improvement of their living conditions, but
also for those who were committed to international social justice. In other
words, development with all the hopes and expectations that it conveyed
was at first taken very seriously, even by those who were later to count among
its critics. As Teresa Hayter recalls, in the 1960s there was little attempt [...]
to define development. Instead, there was an unquestioned assumption []
that development, whatever it was, could lead to improvement in the situation of poor people (Hayter 2005: 89). This comment gives a clue to the
reasons why the word development started buzzing in dominant parlance:
it rested on a mere albeit unquestioned assumption, and no one cared to
define it properly. Both elements characterise a buzzword: an absence of real
definition, and a strong belief in what the notion is supposed to bring about.4
Development therefore became a sort of performative word: saying by doing.
Any measure (foreign investment, lowering or raising of trade barriers,
well-digging, literacy campaigns, and the like) was from now on justified in
the name of development, making even the most contradictory policies look
as if they were geared to improving the lives of poor people. This extensive
use of the term development to delineate policies that were assumed to be
necessarily good also helped to build up new schemas for perceptions of reality. In other words, development was no longer considered a social construct
or the result of political will, but rather the consequence of a natural world
order5 that was deemed just and desirable. This trick which is at the root of
what Bourdieu calls symbolic violence6 has been highly instrumental in
preventing any possible critique of development, since it was equated almost
with life itself.
Development also did sterling service during the Cold War period. At that
time, the Great Powers disagreed on almost all issues except one: development, the magic word that reconciled opposite sides. Its necessity and desirability were not debatable, and the two ideological adversaries vied with each
other in promoting it across what was then known as the Third World. To be
sure, there was some shared and genuine intention to improve the lot of the
poor, viewed as potentially interesting future customers of the industrialised
countries, but beyond the routine discourse on the challenge of our times,
development was mainly used as an excuse for enticing developing countries to side with one camp or the other. No wonder, therefore, that this political game turned to the advantage of the ruling elites who were influential in
international arenas, rather than grassroots populations. But this lasted only
for a time, since it was easy to see through. Progressively, white elephants
and gargantuan projects came under criticism and, after two development
decades promulgated under the auspices of the United Nations had failed
DEVELOPMENT AS A BUZZWORD
21
to deliver the goods, a generalised development fatigue overcame both developed and developing countries.
The buzz seemed to fade away, but the catchword had proved so helpful in sanctifying so many different ventures and in giving them an aura of
legitimacy that every effort had to be made to restore its former lustre. This
was indeed no easy task, but the solution was found by adding to the word
development a series of adjectives that were supposed to dignify it. Thanks to
the experts imagination, development was successively qualified as endogenous, human, social, and, eventually, sustainable as if, when standing
alone, development had become a dirty word. Why was it suddenly necessary to specify that development had to be human? Was it a form of tacit
avowal that, left to its plain meaning, it could also be inhuman? This might
have been the case, but no one seriously raised the question.
The height of absurdity was reached when the Brundtland Commission
(WCED 1987) tried to reconcile the contradictory requirements to be met in
order to protect the environment from pollution, deforestation, the greenhouse effect, and climatic change and, at the same time, to ensure the pursuit
of economic growth that was still considered a condition for general happiness. This impossible task resulted in the coining of the catchy phrase sustainable development, which immediately achieved star status.7 Unfortunately it
only meant exchanging one buzzword for another. Sustainable development
became a global slogan that all could readily endorse, and one that was sufficiently vague to allow different, often incompatible interpretations (South
Centre 2002:15). Again, it is impossible to bring together a real concern for
environment and the promotion of development. Sustainable development
is nothing but an oxymoron, a rhetorical figure that joins together two opposites such as capitalism with a human face or humanitarian intervention.8
The defenders of the environment and of economic growth respectively were
both eager to claim that they drew their inspiration from the same notion,
which could be used for different purposes. Hence the battle to define what
sustainable development is really about. But Brundtlands plea for a new
era of economic growth was certainly not in favour of those who considered environmental sustainability a top priority. It is true that concern for
protecting the environment has grown recently, but this can hardly be attributed to the popularity enjoyed by the idea of sustainable development. If
an increasing number of people everywhere and at all levels of society feel
that something has to be done to lessen the impact of human activity on the
biosphere, this is rather due to the mounting environmental crises that we
are witnessing, from recurrent hurricanes to the melting icecap, or from progressive desertification of large inhabited areas to urban pollution. And yet,
development be it sustainable or not remains high on the agenda, and no
one seems about to forsake it.
So far, I have concentrated on the reasons why development has survived
despite (or because of) its ambiguities. But its persistence as a vogue word
in economic and political discourse also rests on an even more important
22
foundation, namely that development corresponds to a generalised and firmly rooted modern belief. Without entering into too much theoretical detail,
it should be remembered that, according to Durkheim, no society can exist
without religion, since religion is an eminently social thing and religious representations express collective realities (Durkheim 1995:9). Religion, in this
sense, has therefore nothing to do with the commonsense view that associates it with the idea of the supernatural or with intimate personal convictions
regarding the existence of God and with attendance at church or mosque. It
relates to the belief of a given social group in certain indisputable truths, a
belief that determines compulsory behaviour in such a way as to strengthen
social cohesion (Rist 1997: 20). In any (democratic) society, various ideologies, whether or not they are related to political parties, are tolerated; but, in
Durkheims sense, religious beliefs are, as it were, above ideologies; they are
shared by all, as everyone believes that any person belonging to the social
group also shares these beliefs (despite possible private disagreement). They
are beyond dispute and entail various practices on the part of believers who
cannot evade them without endangering the cohesion of the group or risking
being considered social outcasts.
This summary account of the concept of religion should help to explain
why development can be considered one of the indisputable truths that
pervade our modern world.9 Whatever their ideological creed, no politician
would dare to run on an election platform that ignores economic growth or
development, which is supposed to reduce unemployment and create new
jobs and well-being for all. Small investors and ordinary people expect an
increase in profits or wages that is supposed to follow a secular trend. Development has become a modern shibboleth, an essential password for anyone
who wishes to improve their standard of living.
A down-to-earth definition
The undeniable success of development, linked to its undeniable failures in
improving the condition of the poor, therefore needs to be called into question.10 The time has come to get rid of this buzzword and demystify the beliefs
associated with it. To neutralise the damaging power of a buzzword amounts
to producing a down-to-earth definition that plainly states what it is all about
and what it actually promotes. In this particular case, the difficulty lies in
the a priori positive meaning of the word development, which derives both
from its supposedly natural existence and from its inclusion in a cluster of
unquestionable shared beliefs. This is why those who are ready to recognise
that development has not really kept its promises are also loath to discard the
notion altogether. Failures, they would say, do not result from development
itself, but rather from erroneous interpretation or ill-considered implementation. Even in the most dramatic situations it is always possible to appeal to the
presumed existence of a good development. After all, God himself may not
23
answer all our prayers or grant all our requests, but his righteousness remains
beyond doubt...
So, to formulate a proper, sociological, definition of development, one
has to put aside its emotional and normative connotations and also to incorporate all the external characteristics which anyone can observe that are
related to the subject matter. In other words, the definition of development
should not be based on what one thinks it is or what one wishes it to be, but
on actual social practices and their consequences, i.e. things that anyone can
identify. What needs to be highlighted is an historical process that concerns
not only the countries of the South, or only operations conducted under the
umbrella of development co-operation, which started some two centuries
ago and continuously transforms our world.11
On this basis and to put it in a nutshell, my definition reads as follows:
the essence of development is the general transformation and destruction of the
natural environment and of social relations in order to increase the production of
commodities (goods and services) geared, by means of market exchange, to effective
demand. This formulation may appear scandalous compared with the wishful
thinking that usually characterises definitions of development. But I contend
that it truly reflects the actual process observable when a country or a region is
developing. (For a more detailed formulation, see Rist 1997: 1218.)
First, as far as the natural environment is concerned, it is well documented
that the industrialisation process in England took place alongside the enclosure movement. In other words, open fields or commons that anyone could
use became private property, to be bought or sold. Development starts when
land is transformed into what Polyani (1957) calls a fictitious commodity,
and when the natural environment is turned into a resource. The progress
of the Industrial Revolution, along with increased demand for energy, led to
the exploitation of new mineral and non-renewable resources. Ore was transformed into steel to be used in the production of new objects, and oil was
transformed into exhaust gas: in both cases, destruction is the reverse side of
production a fact that goes unnoticed by the economist since recycling is
either problematic (requiring new energy costs) or impossible. And, of course,
the whole process ends up in increased pollution. But the exploitation of the
natural environment does not stop there. Anything can be converted into a
commodity and, therefore, into an opportunity for profit. Hence the tremendous efforts made by transnational corporations in favour of licensing procedures to appropriate all kinds of living organisms and biodiversity generally.
The best-known example is that of farmers who are no longer able to use part
of the previous harvest to sow their crops and are forced to buy new seed every
year. A country is the more developed the more limited the number of free
things that are available: to spend an afternoon on the beach, to go fishing,
or enjoy cross-country skiing is nowadays impossible unless one is prepared
to pay for it.
With regard to social relations, the picture is no different, since these are
also subject to the rule of commodity and exploitation. The major change
24
took place with the gradual generalisation of wage-labour in modern societies,

i.e. when labour also became another fictitious commodity, to use Polanyis
phrase. What used to be freely exchanged within the family circle or among
neighbours has been progressively converted into paid employment. Since
everyone has to earn a living, expensive day nurseries have replaced grandparents in looking after small children, marriage bureaux have replaced village dances as opportunities for those in quest of marriage partners, and the
tedious chore of walking the dog twice a day can be contracted out to a jobless
person keen to make a little money. Such is life in a fully developed country...
These anecdotal examples may be laughable, but they are also indicative of
a sweeping trend that is jeopardising social bonds. What used to be intimate
and personal, supposedly outside the realm of the market, can today be the
object of a contract for paid services, such as the practices of womb-leasing,
drawing on sperm banks, or buying human spare parts (eyes, kidneys, livers,
etc.) from the destitute or condemned in Southern countries. Finally, in a
developed country, human beings are also turned into resources and are
expected to know how to sell themselves to potential employers. Prostitution
may be officially condemned, but it has become the common lot: everyone
is for sale.
To complete this already rather grim description of what development is
really about, one should add an inventory of its devastating side effects, not
only on the environment and the precarious equilibrium of the biosphere,
or on the conservation of natural resources (forests, arable land, fish stocks)
which are overexploited, but above all on the continuous impoverishment
of millions of people. As Jeremy Seabrook (1998) has it, poverty is not a form
of illness that demonstrates the malfunctioning of capitalism and can be
cured. On the contrary, poverty is proof of the good health of the capitalist
system: it is the spur that stimulates new efforts and new forms of accumulation. To put it differently, economic growth widely hailed as a prerequisite
to prosperity takes place only at the expense of either the environment or
human beings. World segregation is such that those who enjoy a so-called
high standard of living hardly come into contact with the poor and may thus
cherish the illusion that their privileged circumstances may sooner or later
spread to humankind as a whole. But climatic change, the greenhouse effect,
and nuclear clouds cannot be contained and may affect everyone, rich and
poor alike, perhaps in the not-too-distant future. This is the real meaning and
the real danger of globalisation. It first and foremost concerns the globe, or
our blue planet, and its fragile balance, which is being progressively destabilised by human activities, and not as we are given to believe international
trade, new information and communication technologies, or round-the-clock
stock-market trading.
It should be clear by now why development must be considered a toxic
word, as I half-jokingly suggested at the beginning of this chapter. As a buzzword, it has been used time and again to promote a system that is neither
viable, nor sustainable, nor fit to live in. The (substantial) benefits that it still
25
confers on a tiny minority are not enough to justify its continuing acceptance, in view of the lethal dangers that it entails. This is being progressively,
if reluctantly, admitted. The question therefore remains: given the amount of
information that scientists have gathered on the manifold natural (actually
human-made) hazards that may impinge on our daily lives, why is it that we
do not believe in what we know to be certain? The answer, probably, lies in
the fact that our belief in development is still too strong to be undermined by
scientific certainty. Our collective behaviour is strangely determined by what
Levy-Bruhl, almost a century ago, described as the pre-logical mentality held
to be characteristic of primitive peoples! A radical change of mind is therefore required in order to anticipate possible or likely catastrophes. The idea
is not to revive the figure of the prophet of doom, nor to wring ones hands,
but to take the impending catastrophe so seriously that it will eventually not
happen (Dupuy 2002): just as the Japanese anticipate earthquakes or tsunamis, take catastrophes for granted, adapt their behaviour to this conviction
and enforce anti-seismic construction standards so that, when earthquakes
actually occur, casualties are minimal in comparison with what would happen in other countries. From then on, we must resort to the heuristic of fear,
to anticipate what we might experience when the worst happens, in order to
prevent it from happening, instead of deluding ourselves with the unverified
idea, implicit in the notion of development, that tomorrow things will be
better.
A change could be conceivable if we recall the Amerindian wisdom that
teaches us that we hold the Earth in trust for our children. But it also entails
changes in our daily life, particularly in the Northern hemisphere. These are
often presented, in a moralistic tone, as a way of vindicating austerity or as a
rationing process. But these measures should be considered not as entailing
a loss, but rather a gain: there is a positive side to restoring a sense of limits.
Instead of viewing development as the history of progress, we could also look
upon it as eine Verlustsgeschichte, a history of successive losses which, again,
mainly concerns not only the natural environment, but also social bonds and
conviviality.12
The time has come and it is indeed high time to debunk the development buzzword. To do so means that we must define it properly relying
on actual social practices, rather than wishful thinking. We must be aware
of its inclusion in a corpus of beliefs that are difficult to shatter, expose its
mischievous uses, and denounce its consequences. The most important thing,
however, is to make it plain that there is life after development certainly a
different one from what we in the privileged regions are used to, but there is
no evidence to suggest that we would lose on such a deal.
Notes
1.
To my knowledge, there is no French word that could properly translate

buzzword. Hence I opted for the challenge of writing this chapter in
26
English, even if playing on and with words in another language is always

risky. I am therefore grateful to Roy Turnill for revising an earlier version
of this essay.
2. The appalling history of the drafting of Point IV of President Trumans
Inaugural Address of 20 January 1949, in which the idea of development
vs. underdevelopment was launched, is related by Louis J. Halle, who
served at the time in the State Department. See his article: On teaching
International Relations, The Virginia Quarterly Review 40(1), Winter 1964
(reprint, no pagination). The phrase public relations gimmick is Halles.
3. For a more detailed presentation of this episode, see Rist 1997, pp. 70
et seq.
4. The process leading to the creation of buzzwords or plastic words is highlighted by Prksen 1995. See also Rist 2002.
5. The linkage of development (or growth) with nature can be traced back
to Aristotle: in Greek, the noun nature (phusis) derives from the verb
phuo (to grow, to develop). For plants, animals, human beings, or institutions, to behave according to its nature simply means to develop.
6. The expression symbolic violence has been coined to explain how those
who wield power exert their domination with the tacit consent of the
dominated party, by imposing a particular world view, usually considered
to be natural. From then on, there is no choice but to match ones behaviour to it and thus to reinforce it. See Bourdieu 1980: 215 et seq. and Rist
2006.
7. In fact, the term was already used at a United Nations Seminar in 1979
and in a study jointly sponsored in 1980 by the International Union for
the Conservation of Nature and Natural Resources (IUCN): World Conservation Strategy: Living Resources Conservation for Sustainable Development.
8. In poetic or mystical writings, expressions such as dark brightness or
presence of the absent God are not out of place, as they produce an excess of meaning without establishing a hierarchy between the signifiers.
But the Brundtland Report was neither a poem nor a mystical utterance.
9. Since religious beliefs come in clusters, one could identify some other
truths that pertain to the same corpus, such as democracy, human
rights, market, etc., but that would go beyond the ambit of this chapter. To question one means questioning all of them. See also Perrot et al.
1992.
10. According to UNDP statistics, the gap between the 20 per cent poorest
and the 20 per cent richest of the world has more than doubled over the
last 40 years of so-called development aid.
11. As a symbolic date to mark the beginning of the process, 1776 is probably
the most appropriate. It corresponds to the publication by Adam Smith of
the Inquiry into the Nature and Causes of the Wealth of Nations (the beginning of economics); the Declaration of Independence of the United States
(first occurrence of the concept of human rights); and the perfecting by
James Watt of the steam engine (production of energy based on fossil ore
coal rather than wind- or water-mills).
12. I hasten to say that I am not against electricity, antibiotics, or the Internet. I do not suggest going back (which would be nonsense) to caves. I
do not think that people are happy just because they are poor. But I am
27
convinced that economic growth, as such, is unable to solve (and is rather

likely to increase) the survival problems of those who are faced with water
pollution, depletion of fish resources, desertification etc., not to mention
the millions of displaced persons in the wake of international or civil wars
who are the first victims of the growth in the arms industry.
References
Bourdieu, Pierre (1980) Le sens pratique, Paris: Editions de Minuit.
Dupuy, Jean-Pierre (2002) Pour un catastrophisme clair. Quand limpossible est
certain, Paris: Le Seuil.
Durkheim, Emile (1995) [1912] The Elementary Forms of Religious Life, New
York, NY: The Free Press.
Hayter, Teresa (2005) Secret diplomacy uncovered: research on the World
Bank in the 1960s and 1980s, in Uma Kothari (ed.) Radical History of Development Studies: Individuals, Institutions and Ideologies, London: Zed Books.
Perrot, Marie-Dominique, Fabrizio Sabelli, and Gilbert Rist (1992) La mythologie programme. Lconomie des croyances dans la socit moderne, Paris: PUF.
Polanyi, Karl (1957) [1944] The Great Transformation, The Political and Economic
Origins of Our Time, Boston, MA: Beacon Press.
Prksen, Uwe (1995) Plastic Words: The Tyranny of Modular Language, Philadelphia, PA: Pennsylvania University Press [trans. Die Plastikwrter. Die
Diktatur einer internationalen Sprache, Stuttgart: Klett-Cotta, 1989].
Rist, Gilbert (1997) The History of Development, From Western Origins to Global
Faith, London: Zed Books.
Rist, Gilbert (ed.) (2002) Les mots du pouvoir, Sens et non-sens de la rhtorique
internationale, Nouveaux Cahiers de lIUED, no 13, Paris and Geneva: PUF/
IUED.
Rist, Gilbert (2006) Before thinking about What Next: prerequisites for alternatives, Development Dialogue (special issue What Next) 1(47): 6596.
Seabrook, Jeremy (1988) The Race for Riches: The Human Cost of Wealth,
Basingstoke: Marshall Pickering.
South Centre (2002) The South and Sustainable Development Conundrum, Geneva:
South Centre.
World Commission on Environment and Development (1987) Our Common
Future, Report of the World Commission on Environment and Development, with an introduction by Gro Harlem Brundtland, Oxford: Oxford
University Press.
About the author

Gilbert Rist is a Professor of Political Science and teaches social and cultural
anthropology, inter-cultural relations, and the history of development theories at the Institut universitaire dtudes du dveloppement (Graduate Institute of Development Studies) in Geneva.
CHAPTER 3
Words count: taking a count of the

changing language of British aid
Naomi Alfini and Robert Chambers
A word analysis of six UK Government White Paper policy statements on aid
(selected between 1960 and 2006) compares the top 20 words and key word pairs
used in each document. Characteristic sentences are composed of the top 20s to
represent the spirit of each paper. Results illuminate changes in the context of
White Papers on aid, and point to trends in the history of the UKs approach to
international development. A characteristic sentence to illustrate the 2005 Paris
Declaration on Aid Effectiveness is contrasted with a series of words that did not
appear in that document. Readers are invited and challenged to identify words
they would like to be used and acted on more commonly in development.
Introduction
In language we coordinate our behaviour, and together in language we
bring forth our world. (Fritjof Capra 1996: 282)
The prevailing words and expressions in development discourse keep changing. Some become perennials, long-term survivors year after year, like poverty,
gender, sustainable, and livelihood. Others have their day and then fade, like
scheme and integrated rural development. Yet others mark major shifts in ideology, policy, and reality, as have liberalisation, privatisation, and globalisation.
There is, too, a vocabulary to mock these fashions in the lexicon of development; we talk of the alphabet soup of acronyms and the PC (politically correct)
buzzwords that are flavours of the month in development-speak. During lectures,
development students play Development Bingo,1 ticking off combinations of
the latest vogue words and weasel words as a speaker uses them: capacity building, harmonisation, good governance, transparency, accountability and the like,
startling speakers and waking up colleagues with cries of Development! when
a column is complete.
An Internet search provides several definitions of buzzword: a word or
phrase that takes on added significance through repetition or special usage;
a word or phrase connected with a specialised field or group that usually
sounds important and is used primarily to impress lay persons; and a stylish
or trendy word or phrase. In recent decades, the English forms of buzzwords
30
have tended to be adopted in Washington, DC and then disseminated around

the world as instruments of power.
The words we use (especially buzzwords) frame our perceptions and
thoughts, and affect our mind-sets, ways of ordering our world, and actions.
Embedded through use and repetition, our language influences both policies
and practice in development. Thus, studying how the language of development policy has changed can give us a sense of the historical shifts in development thinking and priorities, and help us to reflect on where we are going (or
could go) in the future.
With this in mind, we have made word counts of relatively comparable
statements of policy to see what their language reveals or suggests. We confined our research to White Papers (official government statements) published
on British aid policy between 1960 and 2006.2 Two dimensions of historical
context can aid our understanding and interpretation of the content of these
papers. First, there were the well-known changes in the world and in the priorities of aid generally. Among the more relevant have been decolonisation
and post-colonial relationships; the shift from industrialisation and import
substitution to agriculture and cash-crop exports as development strategies;
the oil shock of 1973 and the concurrent shortage of world food stocks; and
the U-shaped curve of Northern and donor intervention (high in the colonial
period, low in the 1970s, and then rising to levels in the 1990s and 2000s that
would have been unthinkable two decades earlier). Second, British domestic
politics were significant. After 1963, White Papers were published only in the
periods when Labour governments were in power (19641970 and 19741979,
and from 1997 onwards). Under Conservative governments, the responsible
Overseas Development Administration (ODA) produced only brief technical
reports, while under the current Labour government, the Department for International Development (DFID) has produced White Papers that are fuller
and more detailed, and presented to educate and persuade as well as to articulate policies.
The following White Papers were selected for this study:3
1960 Assistance from the United Kingdom for Overseas Development,

Cmnd. 974, H M Treasury, London: HMSO, March.
This paper conceptualises aid as investment (both private and government), similar to the way British investment was made in the
Americas throughout the seventeenth, eighteenth, and nineteenth
centuries. Being written by Her Majestys Treasury, it reads somewhat
like an accounts update for shareholders.
1967 Overseas Development: The Work in Hand, Cmnd. 3180, Ministry of

Overseas Development, London: HMSO, January.
This paper recognises more complexities and challenges entailed in
overseas development than does the 1960 paper. It seeks to assure the
UKs approach to overseas aid (which includes greater emphasis on
technical assistance and research) will eventually achieve a successful
WORDS COUNT
31
endpoint and does not undercut Britains competitive standing in the

world market.
1975 Overseas Development: The Changing Emphasis in British Aid

Policies. More Help for the Poorest, Cmnd. 6270, Ministry of Overseas
Development, London: HMSO, October.
This paper was written during the world food shortage, following the
oil crisis of 1973. It shifts the focus of overseas aid to the poorest countries and their poorest communities, largely through strategies of rural
development and short-term food aid.
1997 Eliminating World Poverty: A Challenge for the 21st Century, White
Paper on International Development, Cmnd. 3789, Department for International Development, London: HMSO, November.
This paper re-orients overseas aid towards the target for aid contributions
of 0.7 per cent of GNP. It links development to human rights and stresses
the need for public understanding about global mutual dependence and
the benefits that poverty elimination would bring to the world.
2000 Eliminating World Poverty: Making Globalisation Work for the Poor,
White Paper on International Development, Cmnd. 5006, Department for
International Development, London: HMSO, December.
This paper stands alongside the 1997 White Paper by setting out an
agenda for managing the processes of globalisation to achieve poverty reduction. It raises many issues related to globalisation, portrayed as having
the potential to make or break development. It advocates good globalisation policies, building efficient governments and effective markets, and
raising the UKs rate of aid contributions to 0.7 per cent of GNP.
2006 Eliminating World Poverty: Making Governance Work for the Poor,
White Paper on International Development, Cm 6876, Department for
International Development, London: HMSO, July.
This paper presents a four-pronged approach to poverty reduction:
strengthening good governance in poor countries; increasing aid funds
(doubling aid to Africa); mitigating and preventing impacts of climate
change; and reforming international development systems, such as
the United Nations. Along with reducing poverty, it stresses developments role in building security and reducing violent conflict, including terrorism.4
Method and limitations

Our word analysis consists of two examinations. First, we conducted counts
to ascertain the top 20 words used in each paper.5 We eliminated common
words like the, then, and should and others like million which seemed unlikely
to tell us much, and retained words with a clearer development significance.
Noting the relative frequency and manner in which these top 20s are used,
32
we constructed a characteristic sentence for each document, trying to express

some of its spirit and content. Second, we tracked the frequency with which
pairs of key contrasting words (economic: social; rural: urban; women: gender;
and agricultural: industrial) are used throughout the documents.6
Our method and presentation have limitations. Comparability is limited,
because White Papers were not all conceived for the same purpose or written in the same fashion. Their different emphases were in part intended to
complement rather than fully supplant their immediate predecessors. Their
formats vary. Some aim to give an account of the UKs general activities in
development, while others more explicitly focus on themes (such as Globalisation in 2000 and Governance in 2006). Also, intervals between publications are inconsistent. Labour governments published White Papers related
to overseas development every two to eight years, but we could find nothing
comparable produced during the Conservative governments of the Thatcher
and Major years between 1979 and 1997.7 Finally, our characteristic sentences
cannot pretend to be summaries of the White Papers, but rather intend to give
an impression of the framework of the language used.
Word counts: the top 20s

Lists rank the top 20 development-related words used in each paper. The
number shows how many times a word appears in the paper. Numbers are
divided by the total word count (given above each list) to find the percentage (%) that top words constitute of a papers full word content. Rank refers
to a words standing relative to the others in the top 20. Some words share
a rank, because they occur the same number of times within a paper. These
have been organised alphabetically. A few words which were also much used
but did not quite make it to the top 20 are included in the characteristic
sentences.
Findings
We were struck by the fact that the top 20s include nouns like country, world,
aid, and poverty and general adjectives like public and international, but very
few of what would typically be considered buzzwords. Exceptions could be
community in 1975, sustainable and partnership in 1997, and global in 2000.
There are notable shifts in these top 20s over time. First, descriptions of the
political and international context changed. Countries receiving assistance,
mainly Colonial, Commonwealth, and newly independent in 1960, became overseas (1967), and then developing (19752006). In 2006 developing lost some
ground, but Africa appeared for the first time, in twelfth place. People first
entered the top 20 in 1975 and then continued to score, ranking fifth in 2006.
Astonishingly, the poor were entirely absent from the 1960 text and barely
mentioned in 1967. The United Kingdom (1960) became Britain (1967), disappeared in 1975 and 1997, and resurfaced in 2000 and 2006 as the UK. World
33
WORDS COUNT
Table 1. Assistance from the United Kingdom for Overseas Development (1960) (Total words
in document = 4973)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Rank
Word
1
2
3
4
5
6
7
8
9
9
10
11
12
13
14
15
16
17
18*
18*
United Kingdom
assist/s/ance
country/ies
Kingdom
loan/s
Colonial
Commonwealth
development
overseas
technical
Government/s
international
provide/s/ed/ing
fund/s
invest/ed/ment
bank/s
territory/ies
private
economic
independent
Number
78
72
66
63
37
36
33
28
26
26
25
24
23
21
20
19
18
16
15
15
1.57
1.45
1.33
1.27
0.74
0.72
0.66
0.56
0.52
0.52
0.50
0.48
0.46
0.42
0.40
0.38
0.36
0.32
0.30
0.30
* subscription/s and training/ed also occur 15 times, and so are jointly ranked 18 with the
last two words in the list.
Characteristic sentence:
The assistance provided by the United Kingdom for overseas development is
mainly to Colonial territories and newly independent countries of the Commonwealth, and while primarily economic as loans to governments, funds
subscribed to international banks, and private investment also includes
technical assistance and training.
became a regular member of the top 20 from 1975, and international scored
among the top four from 1997 onwards, reflecting perhaps an expanded consciousness of international co-operation and the increased importance of multilateral organisations like the World Bank.
Second, there are shifts in the terminology of aid. The highest-scoring word
and its cognates began as assistance (1960) and then became aid (1967 and
1975), support (1997 and 2000), and finally help (2006). The most mentioned
means of aid also changed. In 1960, discussion began in terms of loans and
investment plans. Thereafter, these terms all but disappeared from the top 20s
34
Table 2. Overseas Development: The Work in Hand (1967) (Total words in document = 46,
237)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Rank
Word
1
2
3
4
5
6
7
8
9
10
11
12
12
13
14
15
16
17
18
19
country/ies
British
overseas
aid/s/ed/ing
development
ministry/s
government/s
assist/s/ed/ing/ance
technical
provid/es/ed/ing
developing
programme/s
train/s/ed/ing
university/ies
service/s
economic/s/ally/ist/ists/; economy/ies
Britain/s
help/s/ed/ing
staff
research
Number
422
343
289
280
279
263
236
204
177
166
164
156
156
151
146
144
142
123
120
117
0.91
0.71
0.64
0.61
0.60
0.57
0.51
0.44
0.38
0.36
0.35
0.33
0.33
0.33
0.32
0.31
0.31
0.27
0.27
0.25
Britains overseas aid to developing countries provides help through programmes and schemes for economic development, technical assistance, training services for staff of government ministries, courses in British universities,
and research.
(investment resurfaced once, in 2000). The 1975 emphasis on schemes and programmes indicates support for activities that were geographically or sectorally
bounded. Policy appeared first in 1975, rose in 1997 and 2000, but dropped
out in 2006, perhaps in part replaced by public services. In addition to economic inputs, aid provided technical assistance and training (including education)
in 1960 and 1967, indicating a focus of the decolonisation process early on.
In 1975 the principal term used was education. Training and education did not
score later, perhaps subsumed in the 2000s under the term capacity building.
Rural, poorest, and food are all one-hit wonders in the 1975 top 20s, reflecting
the short-term nature of the response to the food crisis of the time.
35
WORDS COUNT
Table 3. Overseas Development: The Changing Emphasis in British Aid Policies. More Help for
the Poorest (1975) (Total words in document = 24, 104)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Rank
Word
1
2
3
4
5
6
7
8
9
10
11
12
13
14
14
15
16
17
17
17
country/ies
aid
development
developing
poorest
rural
food
programme/s
need/s
community
government/s
world/s
scheme/s
income/s
provide/d
assistance
help
fund/s
policy/ies
produc/tive/tivity/tion/ing
Number
392
230
190
178
134
117
96
94
74
69
66
65
63
60
60
58
56
55
55
55
1.63
0.95
0.79
0.74
0.56
0.49
0.40
0.39
0.31
0.29
0.27
0.27
0.26
0.25
0.25
0.24
0.23
0.23
0.23
0.23
Government assistance will provide funds and other resources to help meet
short and long term needs of the poorest developing countries and low income communities, with support to rural development schemes, education
projects and international aid including the World Food Programme.
Counts also shed light on the changes that aid was intended to achieve. In
1975 poorest burst into the top 20 at fifth place, despite the fact that even poor
had been scarcely mentioned earlier. From 1997 onwards, concern focused on
poor people and poverty. Poverty elimination was the overarching goal in 1997,
which in the text, though not the title, shifted to poverty reduction in 2000.
(Elimination is used 10 times, whereas reduction is used 99 times in 2000. In
2006 elimination is used only once, in the title, and reduction is used 23 times.)
Need first appeared in 1975 and reappeared in 1997 and 2006. Right(s) featured
only in 1997. Until 1997 the environment did not score (it barely enters into
previous White Papers at all). It remained in 2000 and then was supplanted
by climate in 2006.
36
Table 4. Eliminating World Poverty: A Challenge for the 21st Century (DFID) (1997) (Total
words in document = 26, 375)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Rank
Word
1
2
3
4
5
6
7
8
9
10
10
11
12
13
14
15
15
16
17
18
development
country/ies
international
developing
support/s/ed/ing
poor
government/s
people/s
poverty
world/s
policy/ies
environment/s/al/ally
sustainable/ability
economic
right/s
resource/s
partner/s/ship/ships
need/s
help/s/ed/ing
assistance
Number
334
330
146
139
131
123
118
117
112
100
100
95
91
80
78
77
77
72
70
69
1.27
1.25
0.55
0.53
0.50
0.47
0.45
0.44
0.42
0.38
0.38
0.36
0.35
0.30
0.30
0.29
0.29
0.27
0.27
0.26
Sustainable development to eliminate poverty requires support for human
rights, and international help with more resources of development assistance in
partnership with developing countries, ensuring that government and world
economic policies address the needs of poor people and the environment.
Tracking key words and significant shifts

Throughout the White Papers we tracked the frequency with which the following pairs of significant development-related words were used.
woman/en/s
social
industry/ial
rural
gender
economic
agriculture/al
urban
The changes in each words frequency, and possible relationships between

paired words, are illustrated in Table 7 and Figure 1.
37
WORDS COUNT
Table 5. Eliminating World Poverty: Making Globalisation Work for the Poor (2000) (Total
words in document = 39, 222)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Rank
Word
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
17
18
19
country/s/ies
development
developing
international
government/s
poor
UK/s
poverty
world/s
policy/ies
people/s
trade
invest/ed/ing/ment/ments
environment/s/al/ally
DFID
global
support/s/ed/ing
finance/ial/ed/ially/ing
effective/ly/ness
globalization
Number
631
363
264
237
219
197
190
171
169
160
158
149
141
131
129
124
108
108
106
99
1.61
0.93
0.67
0.60
0.56
0.50
0.48
0.44
0.43
0.41
0.40
0.38
0.36
0.33
0.33
0.32
0.28
0.28
0.27
0.25
* reduction also occurs 99 times and is jointly ranked with globalisation
Since globalisation leads to international development with potential for
poverty reduction, the UK Government will support global policies that
assist developing countries to benefit from world trade, investment and
finance and build effective governments which support poor people and
the environment.
Discussion
The words women and gender follow similar patterns. Until 1997 women was
low and gender non-existent. Both peaked in 1997, and then dropped by more
than half in 2000 (when the focus was globalisation). Interestingly, women has
been used consistently almost three times as often as gender, despite concerns
by some that the Gender and Development (GAD) agenda had shifted attention away from women in development (Cornwall et al. 2004).
Industry showed the expected decline over the whole period, as industrialisation became a less favoured strategy, while agriculture rose to a plateau
in 1967 and 1975, dropped in 1997, and declined to another plateau in 2000
38
Table 6. Eliminating World Poverty: Making Governance Work for the Poor (2006) (Total words
in document = 39, 822)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
Rank
Word
1
2
3
4
5
6
7
8
9
10
11
12
13
13
14
15
16
17
18
19
country/ies/s
help/ing/ed/s
international
development
people/s
world/s
UK
developing
government/s
support/s/ed/ing
aid
Africa/n
work
poverty
poor
service/s
public
need/s
bank/s
climate
Number
452
307
293
273
248
218
204
195
184
183
158
154
151
151
133
131
124
124
123
120
1.14
0.77
0.74
0.69
0.62
0.55
0.51
0.49
0.46
0.46
0.40
0.39
0.38
0.38
0.33
0.33
0.31
0.31
0.31
0.30
Poverty reduction requires international development efforts to help
strengthen governments in developing countries (supporting poor peoples
access to public services), increase international aid (doubling G8 countries
aid to Africa), tackle climate change, and reform international development
systems such as the World Bank to better fit the needs of todays world.
Table 7. Paired words as percentage of word-counts in White Papers on aid (19602006)
woman/en/s
gender
social
economic
agricultur/al
industry/ial
urban
rural
1960
1967
1975
1997
2000
2006
0.02
0.00
0.14
0.30
0.10
0.20
0.00
0.00
0.03
0.00
0.06
0.22
0.21
0.11
0.00
0.01
0.02
0.00
0.08
0.15
0.19
0.07
0.12
0.49
0.17
0.06
0.15
0.30
0.09
0.05
0.04
0.04
0.07
0.02
0.14
0.21
0.05
0.03
0.01
0.02
0.08
0.01
0.14
0.21
0.07
0.02
0.01
0.03
WORDS COUNT
39
and 2006. Rural was low in 1960 and 1967, but then rose to a dramatic peak
in 1975, immediately after the oil-price shock and concurrent drop in world
food stocks. It was then on a much lower plateau through 1997, 2000, and
2006. Apart from a notable rise in 1997, urban features little throughout the
White Papers.
Economic was about twice as commonly used as social until 2000, when it
dropped by a third. It is still more used than social, which rose in 1997 and
subsequently maintained its position (similar to where it started in 1960).
Analysis
This simple analysis cannot pretend to give detailed insights into British aid
policy. But it does confirm and illuminate changes over time. The increasing
length of White Papers can be interpreted as in part reflecting the growth
in knowledge and specialisation as development has evolved into its own
industry over the years. Word frequency indicates and illustrates the trend
of British aid towards the international, with a steady shift away from the
narrow 1960 emphasis on the BritainCommonwealth relationship to the
attention given in 2006 to reorganising international development systems
like the UN. Or again, 1997 was a time of prominence for social issues in development, as indicated by the new words that appeared or rose in its top 20,
for example rights, partnership, poor, people, sustainability, environment, and
gender. The paired words women/gender and social/economic all also peaked in
1997. This was the first White Paper to use all words on the word-pair list,
and it used them all proportionately more than the 2000 and 2006 papers. In
part this is explained by the 2000 and 2006 focus on themes globalisation
and governance respectively and in part by the social orientation of the
new Labour government in 1997 and the radical influence of then Secretary
of State for International Development, Clare Short. Then, after the socially
oriented rhetoric of 1997, the 2000 White Paper assumes a more practicalsounding tone, using words like reduction and effectiveness.
This word analysis raises other intriguing questions and conjectures. Why,
for example, do some words disappear or not appear at all? What is not noted
or said may be as significant as what is. Why is Iraq never mentioned in the
2006 White Paper? A strength of the word-search technology is being able to
confirm guesses about what is not there.
There remains the issue of the use of buzzwords. Although the top-20 analysis does not adequately pick this up, a reading of the White Papers gives the
impression that their use has increased over this period (19602006). One can
speculate whether word-counts of policy documents can reveal more now, in
the early twenty-first century, than in the past. If, as findings of this study suggest, the international dimension is becoming more central to development
policy, then there could perhaps be more value attributed to the use of the
same standard lexicon. There have been many calls, such as the Rome Declaration (RomeHLF 2003), for harmonisation of lender and donor policies. As
40
0.50%
0.40%
woman/en/s
gender
social
economic
agricultur/al
industry/ial
urban
rural
0.30%
0.20%
0.10%
0.00%
1960
1967
1975
1997
2000
2006
Figure 1. Frequency of paired words throughout White Papers on aid (19602006)
donors engage in this, do they also harmonise their vocabulary and syntax so
that they are not only singing from the same hymn sheet, but also singing
the same tune? The question is whether harmonisation drives standardisation
and a narrowing of vocabulary, with more use of the same fewer words. If so,
this is likely to reduce diversity, choice, and subtlety of expression. Too much
standardisation may also lead to new hegemonies.
An example is provided by the OECD Paris Declaration on Aid Effectiveness (DAC 2005). In this, the density of keywords is striking.8 An appropriate
characteristic sentence to describe it reads as follows:
To monitor indicators of effective performance from aid, donors and partners
need the capacity to manage the mutual harmonisation of programmes and
to assess, measure and report on results.
Paradigmatically, this presents a mechanistic world without people, where
aid effectiveness is achieved through topdown, standardised bureaucratic
norms, with measurements and upwards reporting. A shadow sentence of
words never used in the Declaration might read:
To negotiate and evolve agreements that optimise outcomes for poor, vulnerable, and marginalised people requires compromises and trade-offs based
on personal conviction, interactions, and relationships that nurture trust,
together with reflective appreciation of power and conflicts.9
Paradigmatically, this is for a world that names and recognises the realities
and significance of power, trust, negotiation, and relationships in aid (see, for
example, Eyben 2006).
WORDS COUNT
41
Words for the future

The words left out of White Papers may be as significant as those that appear and those that make the top 20s. Throughout the years, White Papers
have not used words such as critical, reflection, self-awareness, empathy, solidarity, compensation, personal development, love, happiness, pleasure, hope, spiritual,
or holistic. Only in recent years have terms like marginalisation, exclusion, and
professionalism begun to appear. Negative dimensions such as conflict and corruption are beginning to be addressed, although statements still dwell upon
the roles and responsibilities of poorer countries. Similarly, papers since 1997
have included needs, rights, accountability, and justice, but there continues to
be a lack of language articulating the responsibilities and obligations of the
powerful countries and international organisations towards those who are
marginalised and excluded. Attention remains focused on the poor and relatively powerless, not on the wealthy and powerful.
When invited to name positive words expressing concepts, values, and
actions that they would like to be given greater emphasis in future development, participants in workshops have often proposed and given high scores to
critical, empathy, ethics, honesty, humility, justice, listen, love, peace, reflect, respect,
and redistribution.
If Fritjof Capra is right, that together in language we bring forth our world,
let us end with an invitation and a challenge. We have reviewed some of the
words most common in past and current British aid-policy documents that
have both reflected and redirected much thinking and action. If you have read
this far, may we invite you to join us in reflecting critically on the words and
concepts that you habitually use and how they frame, influence, and reinforce
your own thinking and action. And may we then challenge you, and ourselves, to name words that we wish to be used or used more, together to bring
forth our future world; and then to use and act on them and spread their use.
Acknowledgements
We thank Andrea Cornwall for many helpful corrections and suggestions at
the draft stage, and also David Wendt, who spent many hours on the technical side of data analysis. We are grateful to Henry Rowsell of the British Library
of Development Studies for help and advice in tracing these and other documents. The usual disclaimers apply.
Notes
1.
Reportedly invented and originally played as Buzzword Bingo by students at the Massachusetts Institute of Technology during a commencement speech by Vice President Al Gore in 2001, (http://everything2.
com/index.pl?n ode_id=431890).
42
2.
Although the organisation responsible for aid has been known variously as
Ministry of Overseas Development (19641979), Overseas Development
Administration (ODA) (19791997), Department for International Development (DFID) (1997present), there was much continuity of staff and
location during this period (from correspondence with staff from DFIDs
Stationery Office www.dfid.gov.uk/pubs/ in August 2006, and from http://
en.wikipedia.org/wiki/Department_for_International_Development, on
12 February 2007).
The search for comparable policy statements on British overseas aid was
challenged by the fact that DFIDs Stationery Office does not have a list of
their titles, nor are copies of them available on-line. This is in part due to
the fact that overseas aid was handled by various bodies until 1997, when
DFID was formed (see Note 2). Thus, our initial search consisted of finding
out which bodies these were (through contacting communications staff
at DFID, on-line searches, and paper searches through the archives at the
British Library for Development Studies, at the Institute of Development
Studies in Brighton, England). Of the eight papers that we were able to
locate, we used six. The papers in 1963 (Aid to Developing Countries) and
1965 (Overseas Development: The Work of the New Ministry) have not been
included, since they were published so close to 1960 and 1967 that we
deemed them unlikely to contribute much more insight. Unable to trace
any White Paper or comparable policy statement between 1975 and 1997,
we analysed Common Crisis the British Governments response to the
Brandt Commission, but found it too specific for useful comparability.
Before 1997, conflict, violence, and violent were not mentioned in the selected White Papers. In 2006 these words were used proportionately more
than in the previous papers (for example, although the 2000 and 2006
have similar total word counts, conflict is used 95 times in 2006 and 53
times in 2000). Further, a full chapter of the 2006 paper is devoted to Promoting Peace and Security, which makes frequent reference to conflict.
Word-counts were conducted using software called Automap, which provides a total count of every word in a simple text (.txt) document (www.
casos.cs.cmu.edu/projects/au tomap/software.html). Thus, we converted
the electronic versions of White Papers produced from 1997 onwards
(available on-line at www.dfid.gov.uk/pubs) from pdf to .txt format, using
MS Word. Since White Papers that pre-date 1997 are not available electronically, we scanned paper versions into MS Word documents and then
converted these to .txt format. All papers were imported into Automap for
analysis. Resulting word-counts were cleaned. This involved removing
any software commands that were picked up (which are unrelated to the
text), as well as a list of commonly occurring but irrelevant words, such
as the, of and and although these were included in the total word-count
used to calculate percentages. We then read through lists and removed
other words that we thought had no significance to the study (such as million and work). Next, we searched out the different forms of high-scoring
words by stem searches (for example, econ for economy, economic, economically), and by tense searches (help, helps, helping, helped). Words were
added together with the others in their stem and tense groups, and then
lists were re-ordered according to the new figures.
3.
4.
5.
WORDS COUNT
6.
7.
8.
9.
43
For the word-pair analysis, we drew up a list of words that we thought fitted into pairs that indicated contrasts in development. These words were:
economic, social, rural, urban, women, gender, agricultural, and industrial.
The words that we selected undoubtedly also reflect our own interests
and priorities in development. Therefore, we encourage other people to
create and investigate their own lists.
We tried to fill the 22-year gap between 1975 and 1997 with The Common
Crisis (1983), the governments official response to the Brandt Commission report, but found it was too different and specific to be included.
A simple manual method of counting for chosen words was used for the
Paris Declaration. This was repetitive use of CTRL + H in MS Word.
Conflict does, however, show up once in potentially conflicting targets. Poor
and trust appear once each, but in the titles of organisations: The Consultative Group to Assist the Poorest and the Tanzania Social and Economic
Trust. None of the other words in italics is to be found in the document.
References
Capra, Fritjof (1996) The Web of Being: A New Synthesis of Mind and Matter,
London: HarperCollins.
Cornwall, Andrea, Elizabeth Harrison, and Ann Whitehead (eds.) (2004)
Repositioning feminisms in development, special issue of IDS Bulletin
35(4): October.
Development Advisory Committee (DAC) (2005) Paris Declaration on Aid
Effectiveness: ownership, harmonisation, alignment, results and mutual
accountability, endorsed 2 March, Paris: DAC/OECD, available at www.
aidharmonization.org/ahoverview/secondary-pages/editable?key=205.
Eyben, Rosalind (ed.) (2006) Relationships for Aid, London and Sterling, VA:
Earthscan.
Eyben, R., A. Hughes and J. Wheeler (2005) Rights and power: the challenge
for international development agencies, IDS Bulletin 36(1): 6372.
Rome High-Level Forum on Harmonisation (2003) Rome Declaration on Aid
Harmonisation, endorsed 25 February, Rome:
High-Level Forum on Harmonization, available at www.aidharmonization.
org/ahoverview/secondary-pages/why-RomeDeclaration.
About the authors

Naomi Alfini is an independent researcher on power dynamics in development contexts, particularly in relation to children and young peoples
participation.
Robert Chambers is a Research Associate in the Institute of Development
Studies at the University of Sussex. His main research and operational experience has been in East Africa and South Asia. His books include Rural Development: Putting the Last First (1983), Whose Reality Counts? Putting the First Last
(1997), and Ideas for Development (2005).
CHAPTER 4
Poverty reduction
John Toye
The idea of poverty reduction naturally attracts all kinds of angels in NGOs,
government departments and international financial institutions but their ministrations are frustrated by many obstacles. These include the narrow and static
way in which economists define the poor; the remoteness of the poor, their social
invisibility and elusiveness to most forms of targeting; and the absence of political
will to engage in poverty-reduction policies. The angelic response to these obstacles
has been to trumpet a global campaign of poverty reduction with millennial goals,
international aid targets, and poverty-reduction strategy papers. It would be better
to re-discover the language of risk, vulnerability, and social insurance. The message of the association between risk and reward, and the collective need for social
mechanisms that will allow individuals to bear increased risk without exposure to
irreversible damage, is the one that really needs to be delivered.
Mediaeval theologians debated how many angels could dance on the head of
a pin. Sometimes one wonders if the equivalent modern question should not
be: How many angels can dance on the head of the poor? The answer to both
questions may be the same: an infinite number. Once those angels get into their
high-tech tap shoes, there is no stopping them.
The idea of poverty reduction itself has a luminous obviousness to it, defying
mere mortals to challenge its status as a moral imperative. Poverty reduction
thus has a natural attraction for angels of all kinds: the angels of non-governmental mercy, the great and good angels of the government aid bureaucracies
and international financial institutions not forgetting the cohorts of angelic
academics. To be a moral imperative, however, an action must be capable of
being performed. The determined angel will therefore need to be armed with
a definition of poverty, a method of reducing poverty, and the political will to
implement the method.
What poverty is to be reduced?

Poverty is now thought of as a kind of generalised lacking, or a state of being
without some essential goods and services. Poor people are people deprived
of things that they need to live a normal life. Identifying poor people then
becomes a matter of tallying up how much people consume, often using a
46
household survey, and discovering what percentage of them fall below some
pre-set threshold that is meant to represent the minimum standard of a normal life. This percentage is called the headcount ratio of the poor.
There are various ways to define the cut-off point between the poor and
the non-poor. The scientifically minded go straight to the science of nutrition
and call on the calorie as the bedrock of need: allegedly 2300 calories a day per
person is required. Then they price the minimum survival calorie intake and
allow a percentage above that for non-food expenditure. The fact that there
is no uniform standard of this kind, and that in general calorie requirements
vary with climate and the amount of physical work performed is often quietly
ignored.
Attention is usually paid, however, to one special case of this variation:
the difference in food needs between adults and children. Much ingenuity is
devoted to deciding the adult-equivalence scale in order to convert childrens
minimum consumption needs into that of an adult. Is a childs basic need one
half or one third of an adults? Does the proportion vary with the age of the
child? Does it vary with the number of children in the household, for example, because of economies of scale in the production of household services?
The household itself, which is taken as the unit for accounting for consumption, is also a somewhat dubious concept, when stretched over heterogeneous continents and cultures. Different patterns of family formation, of
migrant employment, of the adoption and fostering of children sometimes
make it difficult to decide on which groups of people are eating out of a common pot and thus forming a household for statistical enumeration purposes.
The use of a pre-set threshold implies that need is absolute. Once basic
needs are met, poverty is no more. Others, however, have argued that poverty
is relative, and that when economic growth raises living standards altogether
beyond some minimum threshold, the poor do not vanish, but are still there,
trapped in the bottom deciles of the income distribution. Others again have
argued that poverty is both absolute and relative at the same time. It is absolute in that, in any given society, minimum essential goods can be listed and
priced. It is relative because in different societies or indeed the same society
at different points in time the lists of basic needs and their costs might be
different.
This definition of poverty is manifestly far too narrow. Its focus is on
consumption (or income), and it ignores both the productive assets of the
poor and a range of communal and social resources that the poor use to
supplement their consumption. Such resources are vital to well-being. Lack
of access to public health and education services and public utilities, such
as clean water and public security, may be as damaging to a persons life
chances as inadequate nutrition and the absence of some household effects.
Yet these aspects of welfare are usually missing when the poor are being
counted.
POVERTY REDUCTION
47
What to do to achieve poverty reduction?

Having counted the poor, however partially, the determined angel now faces
three options for what to do about it. They are poverty alleviation, poverty reduction, and poverty elimination. Poverty alleviation sounds rather namby-pamby,
as if one were temporising with poverty rather than really confronting it. Poverty elimination has the right degree of gritty determination and radicalism,
but it has a utopian feel about it, and it seems to fly in the face of the Gospel
of Saint Matthew, which tells us the poor are with you always. Poverty reduction, which sounds both resolute and realistic, is the golden mean between
these two, and is therefore the angelic policy of choice.
The absolute and the absolute-cum-relative definitions of consumption
poverty preserve the idea that poverty could conceivably be reduced to zero,
while consumption inequality remains. This keeps the poverty-elimination
option open in principle. However, if poverty is relative, it would have to continue until all households are consuming an equal amount a state of affairs
that definitely has a utopian feel to it.
How should poverty reducers go about their task? It might seem that their
aim should be to redistribute consumption such that the number of people
lifted out of poverty, i.e. hoisted over the minimum consumption threshold,
is maximised, subject to a government budget constraint. Yet to do so would
be a very ineffective way of reducing poverty. Maximising the numbers who
cross the poverty line is best achieved by concentrating budget transfers on
those poor people who are already closest to the minimum standard. More
poor people can be moved across the poverty line, the closer to it they are
already. A policy that reduces poverty by reducing the headcount ratio helps
only the richest of the poor and leaves the rest untouched.
If reducing the poverty of the poorest of the poor is the priority, the aim
should be to reduce the intensity of poverty, the size of the wedge between
the incomes of the poor and the poverty threshold. This can be done, at least
in the first instance, without any effect on the headcount ratio. Just as a very
poor person can get poorer without changing the headcount ratio, so that
same person can get richer without changing it.
If poverty is to be reduced by making income transfers, these can be universal or can be targeted on the poor. Universal transfers command wider
political support, but they are more expensive and they benefit rich and poor
indiscriminately. Targeted transfers are less wasteful, but can suffer from targeting errors: failure to reach all of the poor, failure to disqualify some of the
rich, or both at once. The best targeting is self-targeting, a transfer that only
the genuinely poor would apply for. Self-targeting may, however, awaken the
collective memory of the Victorian workhouse and its principle of less eligibility, i.e. the notion that conditions there should be such that nobody would
choose to enter it if they had any better option. Self-targeting and the principle of less eligibility are but two terms for the same thing.
48
Helping the poorest of the poor raises other kinds of problem. The poorest
of the poor tend to be the most remote of people, most subject to the vagaries
of geography, weather, and disease, and the most subject to the sorts of social discrimination that renders them all but invisible. They are the least connected to each other and the rest of society, the least organised for self-help or
social action, and the least prepared for political engagement. In short, they
are the most recalcitrant to all forms of angelic ministration.
Summoning Political Will

If the poorest of the poor do not organise themselves to demand their right to
poverty reduction, poverty reduction can be achieved only by summoning up
a huge effort of Political Will. Yet Will is elusive, more Will o the Wisp than
Will to Power. Like the Scarlet Pimpernel, they seek him here, they seek him
there. Among the national elites of the developing world he is usually absent
without leave for long periods. If only these elites were more haunted by the
spectres of crime, disease, and insurrection emanating from the hovels of the
poorest of the poor, Political Will might return. If only the elites were more
moved by the piteous sights in their streets and shantytowns and could feel a
sense of common humanity with their inhabitants, Will might be summoned.
But, no! Many national elites seem pretty comfortable with things exactly as
they are with zero poverty reduction, or even negative poverty reduction and the
absence of Political Will.
Global poverty reduction

In these circumstances, the obvious Angelic Alternative is to go global. For
this, what is needed is a global definition of poverty, a global-transfer technology, and a global summoning of Political Will for poverty reduction. No
problem. Or is there?
Globally speaking, the poverty to be reduced is dollar-a-day poverty. What
is that? It is the number of people in the world who live on less than one dollar a day. One might want to be a little curious about this concept, since poor
people in developing countries rarely have any dollars at all. If they have any
paper money, it will be their local currency, not the mighty greenback. So we
are talking about the local-currency equivalent in cash or kind of one US dollar per day, calculated through the foreign-exchange rate adjusted for purchasing power parity. How much consumption can that amount of local currency
buy? That will depend on the types of goods that the poor eat, and on their
prices. In some countries, the staple of the poor is rice, in others manioc, in
others potato. There is no single basket of consumption goods that the poor
of all countries consume. There are also plenty of obstacles to perfect price
arbitrage, so in some countries the price of the staple of the poor is relatively
high, while in others it is relatively low. Thus the local-currency equivalent
of one dollar a day in country A will purchase a different type and amount of
POVERTY REDUCTION
49
basic consumption for its poor person than will the local-currency equivalent
of one dollar in country B. Although neither poor consumer in A or in B can in
any sense be called rich, the degree and urgency of their poverty may be quite
different. Nevertheless, they are lumped together as the dollar-a-day poor for
the purpose of achieving global poverty reduction.
The global-transfer technology for poverty reduction is foreign aid, a.k.a.
international development co-operation assistance, a.k.a. international partnership agreements. In recent years, bilateral aid agencies and international financial institutions have proclaimed that their paramount mission is nothing
but poverty reduction. This came after a decade (the 1980s) during which conservative governments in the West had instructed them to focus their efforts
exclusively on increasing economic growth by adopting a range of neo-liberal
policies. The disappointing results from these policies created the public mood
to resume the drive for poverty reduction. Increasingly, aid transfers have become conditional on the aid-recipient country adopting a Poverty Reduction
Strategy Paper, a plan outlining national poverty-reduction policies.
International poverty-reduction targets are disembodied poverty targets, in
that they are not integrated into particular transfer schemes of bilateral and
multilateral foreign aid. Such targets (for example, those included within the
Millennium Development Goals for 2015) do not represent the degree of poverty reduction that such aid schemes can be expected to achieve. They are
chosen primarily for their political impact, and hence they have an element
of arbitrariness about them. If they seem bold and dramatic (but not absurdly
so), they will help to summon Political Will in the developed countries to foot
the bill for the aid transfers.
The problem of linkage between targets and transfers re-surfaces in another
form, however: the question of poverty-efficient aid allocation. If the target is to
reduce dollar-a-day poverty by half by 2015, the question is how shall aid be
allocated across countries between now and 2015 to get as close to the target
as possible? The resolution of this question requires one not only to establish
the number of poor in each country today (which is supposedly given by the
dollar-a-day calculation), but also to estimate the rate at which aid will be
able to reduce poverty in each country in the future. Suffice it to say that the
margins of error in doing so are extremely wide.
The Advocate of the One We Dont Speak Of has long argued that the only
reliable way to reduce poverty is by means of economic development, and
that aid will not reduce poverty in a sustainable way unless it first stimulates
economic development. The empirical evidence is not wholly inconsistent
with his claim. It does show that poverty tends to fall when economic growth
takes place. Yet it also shows that the rate of poverty reduction during periods of economic growth varies widely between countries. Growth evidently
brings more benefits to the poor in some places than in others. Perhaps not
surprisingly, where the initial income distribution is more unequal, there is
less poverty reduction per unit of growth than in countries with a more equal
distribution. One of the secrets of achieving pro-poor growth (now re-labelled
50
shared growth) is thus to embark on measures of re-distribution with growth a

venerable angel chorus that has survived long enough to be re-discovered and
become fashionably popular again.
Poverty and vulnerability

Something else that is being re-discovered is the original motivation for embarking on poverty measurement and analysis. The original concern was not
the modern one of bringing about poverty reduction by reducing the numbers
of those deemed to be in poverty. Rather it was to prevent the working poor
from falling into destitution, and into the moral turpitude that was believed
to be inseparable from destitution. The problem that the Victorian angels addressed was that the respectable poor seemed to be at risk of tipping over
irreversibly into a condition of life that was immeasurably worse than mere
poverty, which continued to be seen as normal for much of the population.
The Victorian angels ambition, paradoxically to modern eyes, was to stop the
numbers of the poor from decreasing by stopping the numbers of the destitute from rising. This is what motivated Charles Booths study of poverty in
London and Seebohm Rowntrees study of poverty in York.
The foundational concern was thus not with a current state of lacking or
scarcity of consumption of those who had some regular income. It was about
their exposure to future risks that could plunge families into dependence and
depravity and do so irreversibly. In short, the focus of concern was not their
poverty, but their vulnerability. The social reforms that followed from these
poverty studies were addressed to the causes of the vulnerability of the poor.
For the risk of loss of employment, the state would provide labour exchanges
and unemployment insurance. When work was no longer possible, the state
would pay an old-age pension to those who had contributed during their
working lives. The solution was for the government to provide social safety
nets for those among the working poor affected by stochastic risk. It was not
for the government to try to raise their general standard of living.
Amid all the angelic rhetoric, reports, and resolutions on global poverty reduction, it is encouraging that the words risk, vulnerability, and social insurance
are beginning to buzz around once more. Why so? It is surely because we are
beginning to re-discover that risk and reward go hand-in-hand. Individuals
willingness and ability to accept greater risk can result in increased incomes
for themselves, and often for the whole community. Willingness to accept
risk is a matter of individual attitudes, but a communitys ability to accept risk
(assuming that some individuals are willing risk takers) is a matter of having
access to mechanisms of insurance, in case the risk goes badly for the individual risk taker. Any community that wants to get beyond the standard of
living afforded by a simple subsistence economy has to be willing and able to
engage in a greater division of labour, and a wider array of markets over the
workings of which it will, almost by definition, have little control. Expanding
POVERTY REDUCTION
51
the division of labour is a high-risk process, in the course of which the daring
and the innovators in the community may come terminally unstuck.
Yet this vulnerability need not claim many victims, if it provokes the search
for effective ways of limiting individual liability. Some social-insurance mechanisms already exist in subsistence societies, and care must be taken not to
destroy them gratuitously in the search for something better. However, they
are rarely robust enough to take the full strain of insuring against the greater
risks that will arise as the division of labour deepens and reliance on distant
markets becomes more pervasive. In a time of increasing globalisation, something new will be required. In building more robust institutions of insurance,
the demons of moral hazard and adverse selection must be confronted. Economists will give more practical help to the poor by designing the incentives of
insurance schemes correctly, than by further refining the buzz-buzz of poverty
reduction.
About the author

John Toye is Professor of International Development at the University of
Oxford, and was previously Director of the Institute of Development Studies
at the University of Sussex. From 1998 to 2000 he was Director of the Globalisation Division of the UN Conference on Trade and Development (UNCTAD).
His most recent book, The UN and Global Political Economy (Indiana University
Press 2004), was co-authored with his son, the historian Richard Toye.
CHAPTER 5
Social protection
Guy Standing
The term social protection has been widely used around the world and is often
treated as synonymous with social security, which is misleading. This chapter
considers the numerous terms that have become part of the language of social
protection, indicating that the image conveyed by the term is rather different from
what is meant by it.
Introduction
In their first year at university, all students should have a mandatory course
in linguistic manipulation. There is nothing new about the use and misuse of
words, images, similes, and metaphors in shaping the way we think, act, formulate hypotheses, and assess evidence. But the intensity with which modern
communications bombard our senses has reached such a pitch that we need
to develop skills of resistance.
The notion of social protection is peculiarly susceptible to the seductiveness of buzzwords and euphemisms. Elsewhere, I have argued that the linguistic distortion of debates on the direction of certain policies constitutes one of
the eight crises of social protection (Standing 2002a, 2002b). This chapter
now reviews the main terms that have been used by analysts, politicians, their
well-paid advisers, think tanks, and commentators. The underlying theme
is that the mainstream terminology has evolved as part of a strategy to adapt
systems of social protection to the perceived pressures of globalisation and
the process of labour re-commodification. One could make a case for arguing
that those using the key buzzwords have been contributing to a particular
orientation, which inter alia envisages a shrinking role for the state, moving
away from provision of a comprehensive relatively universalistic system of
social support and from a wide range of enterprise benefits unrelated to the
performance of labour.
Before we start: an incidental observation. We should be serious. This means
we should be prepared to treat the perpetrators of buzzwords with more wit.
We should require social scientists to define those colourful phrases and to
justify their use. More mockery would not go amiss.
Several other contextual points are worth bearing in mind. It is surely true
that ordinary language is idealised, giving the impression that words and
phrases mean the same thing to all of us. In an age dominated by techne and
54
information technology, it is easy to overestimate the extent of consistency

and comprehensibility of ordinary communication. This was a point made by
Jrgen Habermas in his classic theory of communicative action. It is easy for
those who dominate public discourse to assume that there is more potential
for communication than is the case, to presume that there is a consensus, and
to insist or imply that a convenient consensus does exist. Language is a social
force. Throughout history, institutions have arisen to institutionalise specific
discourses and divert knowledge from external critique.
Social protection: the key terms

The following will do no more than list and comment on what seem to be the
key terms in the modern lexicon of social protection. Others would compile
a different list. But one hopes that what follows captures the essence of the
matter. Words in inverted commas are those that are considered separately or
that are susceptible to several interpretations.
1. Social protection, social security, and welfare

Let us start with the basics. These three terms are often used as if they were
synonyms. They are not. Social protection is the broadest, signifying the full
range of protective transfers, services, and institutional safeguards supposed
to protect the population at risk of being in need. Social security is the term
that covers the state-based system of entitlements linked to what are often
called contingency risks.1
The word welfare is peculiar, in that it has been used very differently in the
USA and western Europe, although as with so many terms the hegemonic
culture seems to be reshaping the perception of welfare in Europe. In the USA,
the word has a derogative connotation, and one is advised to say it with a
slight sneer. In Europe, for several decades one could reasonably demand that
policies should enhance our welfare. In the USA, polite talk refers to bums
on welfare and welfare dependency. The defining moment was when Bill
Clinton gave the warming pledge in 1996 to end welfare as we know it.
The welfare state as a term has been subject to a bewildering battering
since Richard Titmuss first coined the term. One reason was Gsta EspingAndersens (1990) typology of three worlds of welfare state, which has given
a generation of sociologists enriching opportunities to stay off the streets
through boosting their CVs with outpourings on typologies, often with the
word regime added. It is a matter of personal judgment whether one finds
the vast literature illuminating or confusing, or both.2
What is the primary objective of the welfare state? Some believe it should
promote happiness, others that it should promote social justice, or income
equality or equal life chances. Jrgen Habermas, among others, has depicted
welfare legislation as having a normalising effect, and supporting established
SOCIAL PROTECTION
55
stereotypes. While a lack of consensus on the objective has helped to erode

the legitimacy of the welfare state, there should be little doubt that it has promoted social norms of behaviour, and little doubt that social scientists have
assisted in making it more efficient in doing so.
For many years in the twentieth century, welfare policies to protect individuals in need were seen as valuable for society as a whole. But the welfare states
collective insurance functions, based on principles of social solidarity, have been
gradually reduced by the rhetoric of individual rights-and-responsibilities and
the rhetoric of user services, taxpayers money, and efficiency. Some now see
the welfare state as primarily safeguarding the market economy while protecting market-oriented individuals against contingency losses, stabilising labourbased earnings. Many others make a name for themselves by proposing that
welfare states must become enabling states (oppose that!) or social investment states.3 No doubt they will have a lot of social capital (a clever term that
came into popularity when the supply-siders began to wish to see a role for the
state, having spent a decade denigrating anything to do with it see Ben Fines
contribution to this volume).
With the thousands of publications devoted to the welfare state and its
regimes, one is left with the impression that it has been an instrument for
preserving societies based on the performance of labour, in which it has reinforced social stratification rather than the reverse. That may be contestable,
but there is a fuzziness about the term that is used by the vast majority of social scientists and policy makers as if it had a single, uncontested meaning.
2. Need and poverty

One should not consider social protection without mentioning that the
two most fundamental words of all are ambiguous and contested. Rarely are
the words poverty and need defined in any detail when discussing social
protection.
Contrary to liberal tradition, which sees pursuit of individual interests as
legitimate, discursive theory maintains that needs must be determined and
adjudicated rationally and socially. Wants and needs become negotiable by
public standards, transforming economic man into social citizen. This involves deliberative justice, which can only be developed in conditions of basic
security.
As various analysts have recognised, we require a politics of need interpretation, which could be constructed in three stages, according to Nancy Fraser
(1989):
a struggle to validate a need as a politically legitimate one, or to have it

defined as a non-political matter;
a discourse on what is needed to satisfy the need;
a struggle to have the need alleviated: a resource struggle.
56
Neither rights nor needs exist as objective facts that are determined scientifically, outside society. They are social constructs, determined by a process of
consciousness. They are always relative and subject to refinements of definition. In practice, social-protection systems evolve, and in doing so modify
what is covered by the notion of need.
3. Social insurance
This term has been used to justify social security and social protection for
more than a century. Often one hears Eurocrats (a buzzword in itself) extol
the European social model, and state with disarming candour that it will
be defended. The image that those who use the term are trying to project is
social insurance, implying a model by which contributions are matched by
entitlements, and by which the more fortunate not only cover their risks in
case of need but also express social solidarity by contributing to the transfers
to less fortunate neighbours, who have also contributed in their time. It is a
comforting model, easily understood.
Unfortunately, it is a model of privilege, one at best suited to an economy
in which almost everybody is in full-time, well-paid, stable jobs and in which
contributions can be levied equitably and efficiently. It apparently thrived in
a golden age that never existed, even though that age is located in the minds
of some social scientists in the late 1960s.
In the twenty-first century, this is even more a fiction than when the proselytisers of social insurance succeeded in selling the labourist model in the
middle decades of the twentieth century. Now, if a person has casual labour,
or is unemployed, he or she is unlikely to have contributions paid or be able
to make them. If a person is working hard in caring for his or her children or
elderly frail relatives, ditto. Enormous numbers of European workers and
even more of the migrants in their midst do not qualify for the range of
social-insurance benefits that define the European social model that is being
defended so stoutly. And the number is growing.
Recognising such realities, astute policy makers keen to increase coverage
(see [6] below) introduced fictitious contribution periods to bolster the edifice of social insurance. For example, during a period designated as legitimate
unemployment, or maternity leave, or sick leave, a person may be classified
as having made social-insurance contributions, even though they have not
done so, or the fictitious contribution may be deducted from the amount
of transfer, as it were. This opens up a pseudo-world of unreality: fictitious
contributions from fictitious work, and contributions without contributing.
Policy makers could preach the virtues of social insurance, when in fact a
rising proportion of beneficiaries were fictitious contributors, leaving governments having to top up social-insurance funds from general taxation. This has
led to pressure to cut benefits and to make them harder to obtain or to retain,
so as to balance the funds.
SOCIAL PROTECTION
57
4. Social safety net

This is a candidate for the title of Most Obfuscating Euphemism of the 1990s.
With the ascendancy of supply-side economics, it was noticed that the rollback of public social spending meant that a lot more people were becoming
economically insecure, vulnerable, and impoverished. Supply-side economic orthodoxy had argued that cutting social spending and removing rigidities
that were forms of protection would boost economic growth. Adding to the
colourful imagery, it was said with fervour that a rising tide would lift all
ships. Imagine! When this metaphor ran into the sand (sic), due to the evidence of rising inequalities and insecurities, a new metaphor had to be added
to the lexicon. So, economists, particularly in the World Bank, IMF, and OECD,
urged governments to develop a social safety net for the really poor.
It has such a nice image catching all those unfortunate enough to fall from
the mainstream of society into need or poverty, a net under the high-wire
risk society, enabling them to avoid pain and to bounce back. Unfortunately,
in reality the term has been a euphemism for selective, targeted measures,
usually means-tested, supposedly intended for those deemed to be the most
needy. One could argue that it has been a ruse to cut public social spending,
and one is inclined to tell those who use the term that a feature of the net is
that the holes are so large that many of the victims fall through it.
Because they feel that a safety net suggests lack of active intervention, some
sages have resorted to the image of a trampoline net, implying that what governments should do is help those falling into need to bounce back up by one
means or another. It is easy to stretch this image to one of condemnation.
Those not bouncing back must be unfit or lazy or shirking, and as such should
be retrained or compelled to take up an available work opportunity.
All this amounts to a model of statistical discrimination, sifting out the
undeserving (see [9] below). Even if there were an empirically supported tendency for certain types of people to fail to take available jobs, or an adequate
income, that would not mean that all people of that type would have those
tendencies. The term safety net should be avoided.
5. Targeting, selectivity, and means-testing

Targeting is another word intended to invite automatic approval. It came into
vogue with supply-side economics and structural adjustment programmes in
developing countries. The image is that policy should focus on the groups
most in need, rather than being universal or untargeted. It goes with the notion of selectivity, and with the special case of self-targeting, prompting a
rather painful image for the uninitiated. Thus, Amartya Sen, among many
others, lauds public-works schemes as an ideal form of social protection because they involve self-targeting (Sen 1999). Only if you are really desperate
will you queue up in the heat and dust to beg for a place in the road-digging
gang. That is the idea. But why one should favour such a scheme is unclear.
58
The implied reasoning is surely fallacious. Those most in need of income support are likely to lack the energy to reach the queue, let alone be able to work
well in the mid-day sun and dust.
Targeting and selectivity have been the rationale behind the global trend
towards means testing. Here the image is that people should receive support
from the state only if they have insufficient means to support themselves.
The means usually means income. But what counts as income? Some policies
have counted only earned income, others have included savings, rent, dividends, etc. Some have included the imputed value of property. Some have
included the income of others on whom the person might (or might not!)
depend for support.
Whatever the design, means testing produces poverty traps (see [10] below), and may induce relationship traps as well, in that it might pay a couple
to separate, at least during the day time. A modern variant is what might
be called the old-age care trap, whereby frail elderly people have to sell their
last-remaining assets in order to qualify for means-tested care. This growing
practice is unedifying, demeaning, and stigmatising. But it goes with the drift
to means testing.4
Above all, means testing and other schemes based on selectivity criteria
fail to satisfy any principle of social justice worthy of the name, because they
tend not to reach those most in need of income support, a fact which research
around the world has consistently demonstrated. This is most dramatically
the case in developing countries. It recalls the aphorism (attributed to Richard
Titmuss) that benefits that are only for the poor are invariably poor benefits.
6. Coverage
A common assertion is that a primary objective should be to increase the
coverage of social protection, the implicit suggestion being that more people
should be covered by schemes protecting them from contingency risks. The
ILO has launched what it calls a campaign to increase social-security coverage. It is spending a lot of money on the campaign, holding lots of costly meetings in exotic places. But it is unclear what extending coverage means. For
example, suppose a country is operating a social-insurance system to which
only 10 per cent of the population are making contributions. If the government abolished it and replaced it with a wholly means-tested social-assistance
scheme, by definition the whole population would be covered. Would that
be a great achievement?
Coverage conveys another comforting image, that of a blanket. But it
should be attached to a specific type of scheme. There are many forms of
social-protection scheme that one might wish to cut, thereby reducing coverage. For example, it is far from clear that one would wish to see a growth of
coverage in the form of workfare schemes.
SOCIAL PROTECTION
59
7. Social inclusion
Over the past three decades, social protection has gradually become a euphemism for altering the behaviour and attitudes and capabilities of those
perceived to be marginalised and socially excluded. None of the words in
inverted commas in the previous sentence was part of the lexicon of mainstream social-security discourse in the 1960s and 1970s.
The imagery has mirrored the reorientation of policy. Increasingly, those
in need are characterised as socially and emotionally defective, in need not of
financial resources but of moral fibre, confidence, and emotional intelligence
(sic). The perception that societys losers are in need of help because of their
attitudinal and behavioural failings has led to more emphasis on protection
by case work, by processing clients, if necessary by compulsion, which is
good for them, even if they do not appreciate it. Overall, social protection
has been shifting from the domain of economics and sociology to one of
psychology. The paternalistic triumph is a frightening spectre of increasingly
sophisticated social engineering, in the guise of protection. The tragedy is not
that some people do need help, but that there are few safeguards against therapising people into being helpless victims (Furedi 2004). A new occupation
has emerged in the lexicon of social protection: people changers. What do
you want to be when you grow up? A human case worker.
8. Active versus passive policy

Not so long ago, the language of social protection was enriched by the enthusiastic adoption of the view that most social and labour-market policies
were passive and that they should become, or be replaced by policies that
were, active. As buzzwords go, the related term Active Labour Market Policy
should be a candidate for a BBA (Best Buzzword Award), although there are
other worthy candidates.
The distinction between passive and active social policy has been based
on the image that whereas the former gives money or services with few or no
conditions, active policy provides jobseekers with services that enable them to
hold jobs with pride. Policies should activate and be pro-active. The macho
imagery is blatant. Who could be in favour of being passive? Being passive
implies being inactive, lazy, feeble, and lacking in sexual energy. Active implies being energetic, strong, aroused. Yes, Minister, of course we are in favour
of active policies.
The activepassive distinction was derived from a rather different image
and policy. In the Rehn-Meidner model that guided Swedish macro-economic
policy in the post-1945 era, the term active labour-market policy meant counter-cyclical, implying that, as unemployment rose, state spending should rise
to absorb the unemployed in training or public works. When the recession
receded, it was expected that such policies should be cut back. By contrast,
60
active now means corrective, enabling the poor and unemployed to be more
competitive and employable.
In the new idiom, active policy means inducing those at the margin of the
labour market to be socially integrated. Advocates go further. If the marginals
do not take up the opportunity, they must be compelled to do so, because
in the longer term they will be happier, even if they do not appreciate that
now.5
The imagery of the dichotomy leads the observer down a familiar path.
What if someone does not believe that she needs to be made more employable and socially integrated? Clearly, she is undeserving of public support.
Are we sure?
9. Deserving versus undeserving poor

The undeserving poor have been around for a very long time. All social-protection systems make moralistic judgments. Who deserves support? And who
deserves it more or less than others? The distinction between deserving and
undeserving poor crystallised in the nineteenth century. But by early in the
twentieth century research had shown that the distinction was arbitrary and
unfair, and pernicious. It was resurrected in the 1980s and 1990s, as a generation of technocrat advisers to keen young politicians realised that identifying
the undeserving was a good way of justifying cuts in public social spending,
at a time when more attempts were being made to explain unemployment
as essentially voluntary, the fault of the individual rather than the state of
aggregate demand.
The word undeserving implies that the person is to blame for his plight.
The notion has been enriched in recent years through the addition of what
should be called the transgressing poor, i.e. those who are not only undeserving but break the law, once denied benefits, simply in order to survive.
They fall foul of immoral hazards (see [10] below). Once caught, they may be
incarcerated, which conveniently removes them from the poverty and unemployment statistics. In some states in the USA, that may be sufficient to result
in their losing the right to vote. Pollsters monitor the way the undeserving
poor are prone to vote. The politicians monitor the pollsters.
10. Moral hazards and immoral hazards

The widely used notion of moral hazard is a term of sublime sophistry. It is
another candidate for Best Buzzword Award, in that it sounds intellectual and
scientific, beyond the understanding of the lay person, best left to experts,
sorting out the men from the boys.
A moral hazard arises from a tendency for someone to be in a situation
where it pays to stay in it rather than move out of it into something that
is socially better. In social-protection discourse, it is associated with two appealing terms: the poverty trap and the unemployment trap. An irony of
SOCIAL PROTECTION
61
the dominant welfare reforms since the 1980s and 1990s was that they have
spread such traps, because there was a strong shift to means-tested social assistance around the world. If you can receive a state benefit only if you are
poor, why try to move out of poverty if you would lose more in withdrawn
benefits than you would gain from doing a low-paid job? The international
drift to means testing led to many more people facing effective marginal tax
rates in excess of 100 per cent, and many others facing rates not much below
100 per cent.
Once policy makers realised this, they tried to combine incentives with
coercion to push people through the poverty-trap zone, making it harder to
continue to receive out-of-job benefits, and often providing so-called in-work
benefits, i.e. earned-income tax credits or marginal employment subsidies designed to top up the incomes of those entering low-wage jobs.
These words suffer from awkward drawbacks. But they convey a picture of
millions of people trapped in moral hazards, manipulating the system while
lying in bed and becoming obese, living a life of idleness and debauchery.
Remarkably, moral hazards breed immoral hazards. Some people actually
cheat. Instead of taking low-paid jobs legally or staying idle, they take jobs
without declaring them. It should not be surprising if systems that are intentionally manipulative lead to manipulative responses. But of course it takes
only a few newspaper stories to fan middle-class indignation to the point of
demands for benefit cuts and acceptance of more policing of recipients of such
benefits, intensifying the stigma, leading to lower take-up of benefits by those
desperate for help, and encouraging identification of welfare cheats, who
are criminalised. The final irony here is that this leads not only to a further
erosion of public support for universal social protection but also to a process
whereby a growing number of people are disqualified from receiving any
state benefits. Dear reader, you will murmur that I exaggerate. Really?
11. The reciprocity principle

This high-sounding notion is how modernist policy advisers describe the
claim that there are no rights without responsibilities. This is linked to the
rhetorical question, Why should taxpayers be expected to pay for beneficiaries of state transfers if the latter give nothing back to society? Implicit is the
double claim that their plight is their fault and that they must take a job, and
be grateful.
This is disingenuous. A right is a right, and should not be made conditional
on some type of behaviour that some bureaucrat determines is appropriate.6
If there are forms of behaviour that policy makers believe are socially inappropriate, they should be ruled out for all citizens equally. Should the idle rich
be entitled to the right to eat extravagantly, when they give so little to society? Forcing the victims of economic mishap to behave in certain ways when
others more fortunate are not forced to do so is to treat them as second-class
62
citizens. Such questions soon expose the reciprocity principle for what it is:
a bogus argument for inequality.
12. Dependency
This word came to exert a powerful hold on the minds of policy makers in the
1990s. The claim was that vast numbers of people receiving income transfers
were guilty of relying on them, becoming demotivated and indolent. Dependency goes with addiction. The pejorative word was used to justify cuts in
benefits and make them more conditional (as in active), tightening eligibility, restricting the length of time that a person could receive them, and so on.
Dependency may be juxtaposed with independence. Again, who could
possibly favour the former, a supine condition? Well, this simplistic imagery
could be challenged by the claim that most of us are dependent on others
in many ways. Biologically, the human species has survived through mutual
dependency and collaboration. Recognition of our dependencies is a healthy
response to our humanity. The assurance of some state transfer may provide
just the degree of economic security to enable us to gain the confidence to
make rational, socially responsible decisions. Taking it away in the guise of
reducing dependency may be just what is required to lead to anomic, irresponsible, and ultimately self-destructive behaviour.
13. Workfare
Social protection was supposed to be about welfare. But as means-testing
and social-assistance schemes were failing, a new word came into fashion:
workfare. What politicians and supporters have tried to convey when
using the word is simply that they are in favour of easing the unemployed
into jobs instead of passive unemployment benefits. But in reality workfare
means making the taking of a job or training place the formal condition for
obtaining a state transfer. It goes with the reciprocity principle and active
labour-market policy.
As argued elsewhere, workfare schemes have many disadvantages (Standing
2002b: 173-95). Unfortunately, many Ministers of Labour or Social Affairs, in
developing countries as well as in industrialised countries, have been drawn
into using the language of workfare, without appreciating all the failings of
what is actually involved. Among the latest to be converted is the government
of India, where elderly women who were entitled to a widows pension have
been told that they cannot have it any more, and must take a job as a childcarer, thereby enabling younger women to take a job in a public-works scheme
launched as part of the so-called Rural Employment Guarantee Scheme. The
disruptive consequences and the distributive effects of this set of workfare rules
will eventually be the subject of a host of PhD dissertations.
SOCIAL PROTECTION
63
14. Social protection as a productive factor

Social democrats met market liberals in the late 1990s in the report-strewn terrain of European Union meetings, by linking social protection to production
in this clever phrase.7 Those wishing to defend social protection realised that
public social spending was being depicted as a drag on economic growth,
productivity, and development, by crowding out private investment, lowering savings, and threatening national competitiveness. Clearly, this was
unsustainable.
It would be churlish to suggest that none of this was proven. The trick was
to disarm the supply-side critics. So, the adopted ruse was to shift the imagery, by presenting social protection as a productive factor, like capital and
labour.
Of course, the ruse was also an attempt to shift the composition of public
social spending from universal, relatively unconditional transfers and services,
deemed to be deplorably unproductive, to certain selective measures deemed
to be productive. This is another route to activation policies, and to targeting
and selectivity. It is a term that can justify a reorientation and a re-prioritising
of social spending. It means that workfare is better than welfare. Who could
be against making social protection a productive factor? Imagine the shame: he
wants to make it unproductive!
A minor drawback of the dichotomy is that it could lead to a focus on what
is easy to measure in conventional economic terms. There are other drawbacks
as well. For instance, if you justify social spending as conducive to efficiency
and labour productivity, then you risk being unable to justify spending that is
not productive. An alternative view, with a long pedigree of respectability, is
that social protection should be about giving human beings a sense of social,
cultural, and economic security, as a human right. That was what inspired the
United Nations Declaration of Human Rights in 1948, the Covenant of Social,
Economic and Cultural Rights of 1966, and the Charter of Emerging Human
Rights of 2004.
15. Privatisation and publicprivate partnerships

The words privatisation and social protection have come together with increasing ease. In the early 1990s, in developing countries and in the newly
defined transition countries, the main reform promoted by the international
financial institutions was the privatisation of pensions, with dreams of privatising health care and other aspects of social protection soon afterwards.
Millions of dollars were devoted to the promotion of pension privatisation.
The Chilean model became a symbol, and numerous special trips, often
financed by the World Bank and other financial agencies, were arranged so that
budding politicians in other parts of the world could go on pilgrimage there.
The zeal was dimmed by subsequent evidence showing the failings of the
64
scheme, particularly its lack of equity as the privatised individual accounts

came into effect.
With privatisation came liberalisation and commercialisation. And quietly there emerged privatepublic partnerships, or as, inevitably they became
known, PPPs. This is related to the new preference for welfare pluralism,
and is a euphemism for a trend towards private financing and provision.8 Of
course, the word partnership is not exactly neutral. Is it a partnership of
equals, with each gaining as much, and paying as much? Who is really in
control? Consider the claim, We must have more PPPs, partnerships! Unless it is
defined, the term is dangerously vague. But the tendency is to favour partnership. It has a nice cuddly sound to it. The provision of subsidies to those dubious private providers is downplayed.
The acronym PPP is not a short form of a descriptive compound noun but
an ideological concept. One may like it or not, but the objectives and motives are concealed. Probably, it is a mechanism for enabling multinationals to
penetrate a particular social service. When a politician or policy adviser says
there should be incentives for PPPs, what he or she probably means is that
there should be subsidies for foreign capital, to encourage foreign firms to
invest in the country. It is unlikely that the politician will join the board or
take a consultancy with the firm shortly afterwards. Perish the thought. That
is possibly covered by the hyphen in the full term. But such cynicism is surely
misplaced.
16. Social dumping and the race to the bottom

Social dumping is a myth, claims Professor Lord Anthony Giddens, commonly called the high priest of the Third Way and long-time adviser to Tony
Blair (Giddens 2006). This term is a source of anguish among social-protection
specialists. It originated as analogous to the dumping of goods, sold in a foreign market at less than the cost of production in order to capture market
share. But social dumping is really about the argument that we in country X
cut social benefits in order to make our production more competitive than
those in country Y, and to retain jobs that would otherwise go to country Y.
The image goes further with a race to the bottom, suggesting that all countries
are cutting back on social benefits in order to become more competitive than
others, lowering their non-wage labour costs.
It is not very nice, this race. It is good to know that Lord Giddens regards
social dumping as a myth. He believes that moving jobs to countries with lower social protection will result in pressure there to raise benefits. This is really
a delightful example of wishful thinking. Total labour costs in western Europe
in, say, car production are about 50 times what they are in China. It will take
rather a long time for those benefits to rise to narrow the difference.
The reality is that governments and companies are using international
competitiveness and the desire to preserve jobs as justification for benefit cuts.
Those are not myths. But we can be carried away by the euphemisms. To some
SOCIAL PROTECTION
65
extent, benefits are dwindling. But quietly, governments are responding by

raising subsidies to capital, to lower the costs borne by corporations. One day
that will come on to the agenda of the WTO, as a form of unfair competition
and trade distortion. Meanwhile, the pace and extent of social dumping may
have been lessened, but not stopped. Rather than a race to the bottom, it is
likely that there is a trend towards convergence, to below what was the dream
of social democrats in the mid-twentieth century.
Concluding reflections
Social protection has been misused. Poverty and economic insecurity are reflections of inequality, of income, wealth, power, and status. A society in which
everybody had a right to basic security would address inequality directly. But in
the globalisation era, so far, there has been a drift to a charity perspective, not
a rights-based one. We are all urged to contribute, altruistically, to charities, to
adopt a goat, fund an African childs schooling, and so on. Pity, as Bernard Shaw
so memorably put it, is akin to contempt.
Alongside charity, there is a slide into coercion and a slide into discretion
as a principle of social benefits. Local bureaucrats are given the quiet nod to
decide on who should receive benefits, who should not, and what conditions
on which those chosen should be given the benefit. It is all very paternalistic,
leaving the inequalities unchallenged.
Linguistically, we must never forget that language can be used as a means
of resistance, even though we have focused on how policy makers and ideological proponents of particular changes manipulate language. Claimants of
public assistance in the UK and elsewhere use the language of the elites to
turn against them, as when they refer to using enterprise and responsibility
by doing undeclared work for cash. We have not assessed the buzzwords of
resistance in this chapter. They merit a separate treatment.
One extraordinary feature of the topic of social protection and it is by
no means unique in this respect is the proliferation of acronyms. These are
rarely innocent. But what they tend to do is to give insiders an advantage, a
capacity to blind outsiders with science. The PRSP must help to deliver the
MDGs, and the IFAs will support that.
More generally, social protection is not a fixed concept; it is an elastic notion
that every user of the term can define differently. A statement such as we must
devote more resources to social protection might elicit consensus support and
nods of agreement. But few might agree if what the speaker meant was that
more resources should be devoted to workfare schemes, or conversely to give
every citizen a basic income without obligations. Now, that is a good idea.
Notes
1.
Social protection is supposed to compensate for risks, but it is not clear

what types of risk should be included. Analysts have differentiated
66
2.
3.
4.
5.
6.
7.
9.
between idiosyncratic and systemic risk, and between risks, shocks, and
hazards. It all becomes a little confusing. But the key point is that different systems of social protection cover different types of situation needing
some form of social protection.
This writers views about the vagueness of the original effort were given
in a review of the book at the time in the Journal of European Social Policy
(Standing 1991).
On the former, see Gilbert 2002; on the latter, see Giddens 2000.
As this chapter was being finished, the Bush Administration in the USA
was announcing that it was extending means testing to its old-age Medicaid programme, ostensibly to prevent the non-poor receiving subsidised
health care. A predictable result will be that many more of the near-poor
will slip into impoverishment.
This is the explicitly stated view of Blair-adviser Richard Layard (2005),
ennobled by New Labour for his policy contributions.
For a defence of this view, drawing on the idea of republican, or claim,
rights, see Standing 2005.
Not surprisingly, the ILO took up the subject several years later, by when
the proposition had descended into confusion.
For useful reviews, see Mehrotra and Delamonica 2005; Webster and
Sansom 1999.
References
Esping-Andersen, Gsta (1990) Social Foundations of Postindustrial Economies,
Oxford: Oxford University Press.
Fraser, Nancy (1989) Talking about needs: interpretive contests as political
conflicts in welfare-state societies, Ethics 99(X): 291313.
Furedi, Frank (2004) Therapy Culture: Cultivating Vulnerability in an Uncertain
Age, London: Routledge.
Giddens, Anthony (2000) The Third Way and Its Critics, Cambridge: Polity
Press.
Giddens, Anthony (2006) Europe in the Global Age, Bristol: Polity.
Gilbert, N. (2002) Transformation of the Welfare State: The Silent Surrender of
Public Responsibility, Oxford: Oxford University Press.
Layard, Richard (2005) Happiness: Lessons from a New Science, London: Penguin.
Mehrotra, S. and E. Delamonica (2005) The private sector and privatisation in
social services: is the Washington Consensus dead?, Global Social Policy
5(2):14174.
Sen, Amartya K. (1999) Development as Freedom, Oxford: Oxford University
Press.
Standing, Guy (1991) The three worlds of welfare capitalism, Journal of
European Social Policy 1(1): 715.
Standing, Guy (2002a) Beyond the New Paternalism: Basic Security as Equality,
London: Verso.
Standing, Guy (2002b) Globalisation: the eight crises of social protection,
The Indian Journal of Labour Economics 45(1): 1746.
SOCIAL PROTECTION
67
Standing, Guy (ed.) (2005) Promoting Income Security as a Right, London:

Anthem.
Webster, Mike and Kevin Sansom (1999) PublicPrivate Partnerships and the
Poor: An Initial Review, Task No. 164, WELL: Loughborough University,
available at www.lboro.ac.uk/well/ resources/well-studies/full-reports-pdf/
task0164.pdf (retrieved 26 January 2007).
About the author

Guy Standing is Professor of Economic Security at the University of Bath in
the UK and Professor of Labour Economics at Monash University in Australia.
He is also economic adviser to the United Nations Department of Economic
and Social Affairs, and was formerly Director of Socio-Economic Security in
the International Labour Organisation. His publication of greatest pertinence
to this volume is Beyond the New Paternalism: Basic Security as Equality (2002).
CHAPTER 6
Globalisation
Shalmali Guttal
The term globalisation is widely used to describe a variety of economic, cultural,
social, and political changes that have shaped the world over the past 50-odd
years. Because it is a complex and multifaceted phenomenon, globalisation has
been credited with a wide range of powers and effects. Its proponents claim that it
is both natural and an inevitable outcome of technological progress, and creates
positive economic and political convergences. Critics argue that globalisation is
hegemonic and antagonistic to local and national economies. This chapter argues
that globalisation is a form of capitalist expansion that entails the integration
of local and national economies into a global, unregulated market economy. Although economic in its structure, globalisation is equally a political phenomenon,
shaped by negotiations and interactions between institutions of transnational
capital, nation states, and international institutions. Its main driving forces are
institutions of global capitalism especially transnational corporations but it
also needs the firm hand of states to create enabling environments for it to take
root. Globalisation is always accompanied by liberal democracy, which facilitates
the establishment of a neo-liberal state and policies that permit globalisation to
flourish. The chapter discusses the relationship between globalisation and development and points out that some of the most common assumptions promoted by
its proponents are contradictory to the reality of globalisation; and that globalisation is resisted by more than half of the globes population because it is not
capable of delivering on its promises of economic well being and progress for all.
Definitions and debates

The term globalisation is widely used to describe a variety of economic,
cultural, social, and political changes that have shaped the world over the
past 50-odd years, from the much-celebrated revolution in information technology to the diminishing of national and geo-political boundaries in an
ever-expanding, transnational movement of goods, services, and capital. The
increasing homogenisation of consumer tastes, the consolidation and expansion of corporate power, sharp increases in wealth and poverty, the McDonaldisation of food and culture, and the growing ubiquity of liberal democratic
ideas are all, in one way or another, attributed to globalisation. It is certainly
one of the most contested topics in the social sciences, and possibly because
70
it is a complex and multifaceted phenomenon it has been accorded multiple

definitions, and a wide range of powers and effects have been ascribed to it.
Debates about globalisation abound, not only about how to define it but
also about its origins, central actors, driving forces, and transformative powers. Supporters and detractors alike agree that advancements in applied sciences, technology, and communications have played central roles in making
globalisation possible. US and British banks deal with their customers through
call centres in Asia; popular brands of clothing and sportswear design their
products in the USA or Europe, manufacture them in developing countries,
and sell them all over the world at comparable prices; the Internet allows
commodities, futures, and currencies to be traded across the globe, taking advantage of time differences in different bourses and exchange markets; legal
and medical establishments in the affluent North outsource much of their
processing to selected developing countries such as India, to take advantage
of a skilled and educated labour force that costs a fraction of what these establishments would pay in their home countries.
There is, however, far less agreement on the nature, powers, and origins
of globalisation. Is globalisation civilising or destructive? Powerful or feeble?
Politically neutral or ideology-driven? And when did it start? With Columbus
as he set out to conquer new worlds for the Spanish Crown? Or when the East
India Company laid the foundation of the British Empire in India? Or when
the USA took over the reconstruction of war-ravaged Europe through the
Marshall Plan? Many argue that globalisation is a natural outcome of technological, scientific, and economic progress and is irreversible. Others claim that
globalisation is driven by greed and the desire for accumulation and control of
material wealth, for which capitalism provides a rational ideology and operational framework. Among those on the left, globalisation is viewed as an undeniably capitalist process that has its roots at least as far back as the industrial
revolution in Europe and the rise of the British Empire, and has rapidly gained
ground since the collapse of the Soviet Union and of socialism as a viable form
of economic organisation.
Globalisation is both a result and a force of modernisation and capitalist expansion, entailing the integration of all economic activity (local,
national, and regional) into a global market place: that is, a market place
that transcends geo-political borders and is not subject to regulation by nation
states. The practical manifestations of this integration are the dismantling of
national barriers to external trade and finance, deregulation of the economy,
export-driven economic growth, removal of controls on the transnational mobility of finance capital, expansion of portfolio capital, privatisation, and the
restructuring of local and national economies to facilitate free-market capitalism. This is not to say that the cultural and social dimensions of globalisation
are unimportant, but that contemporary culture and society are increasingly
shaped by neo-liberal economic measures that supposedly enhance economic
freedom and consumer choice. Most significant among these measures are
the liberalisation of trade and finance, deregulation, and privatisation, which
GLOBALISATION
71
have been nailed down over the past three decades by the Washington Consensus, the unprecedented rise of corporate power, the formation of the World
Trade Organisation (WTO), and burgeoning bilateral and regional free-trade
and investment agreements.
The proponents of globalisation claim that it will create convergences of
income, access to knowledge and technology, consumption power, living
standards, and political ideals. By integrating local and national economies
into a global economy that is unfettered by protectionism, economic growth
will increase, wealth will be created, and more people in the world will be able
to enjoy the advantages and fruits of modernisation, technological progress,
and civilisation. Its critics, on the other hand, argue that globalisation is hegemonic, antagonistic to the poor and vulnerable, and is debilitating local and
national economies, communities, and the environment.
Globalisation is also a deeply political phenomenon. It is shaped by complex negotiations and interactions between institutions of transnational capital (such as corporations), nation states, and international institutions charged
with bringing coherence and order in an increasingly interdependent world.
The economy does not exist outside the actions and choices of individual and
collective actors, be they private corporations, sovereign governments, United
Nations (UN) agencies, the WTO, or international financial institutions (IFIs)
such as the World Bank and the International Monetary Fund (IMF). Globalisation is enabled through the facility of neo-liberal policies. An integral companion to globalisation is liberal democracy, which cloaks neo-liberal policy
prescriptions in the language of individualised rights, liberties, and choice.
Neo-liberal, so-called democratic states are both convenient and necessary
for capitalism to expand its frontiers and reach.
Origins and actors

The roots of globalisation can certainly be traced back to the colonisation of
Asia, Africa, and the Americas by the dominant economic powers of Europe.
However, the expansion of capitalism as a globalising force has not been uniform in successive eras since then. Impelled by the search for new markets
and new sources of wealth, and fanned by the industrial revolution, colonialism resulted in the establishment of international commodity markets and
mercantilist trade. Although economic protectionism deepened following the
First World War and the Great Depression in the early twentieth century, the
end of the Second World War provided an impetus for a new bout of capitalist expansion, which, however, was tempered by the establishment of the
Soviet bloc and socialism as an alternative form of capital accumulation and
distribution.
Since the Second World War, much of the world has indeed become more
inter-linked through innovations and advances in applied sciences, travel and
transportation, communications, and information technology. But globalisation as we know and experience it today is not simply an inevitable outcome
72
of scientific advancement and technological progress, and there is little that

is natural or even autonomous about it. Rather, it is the result of specifically
conceived, planned, and targeted neo-liberal policy and structural measures
that sought to bring all aspects of social, economic, and political life under
the rubric of market capitalism. This era of globalisation took hold in the early
1980s with the coming to power of the Reagan administration in the USA and
the Thatcher government in the UK, the eruption of the global debt crisis, the
fleshing out of neo-liberalism as an economic framework (which eventually
came to be known as the Washington Consensus), and the IFIs imposition of
structural adjustment programmes (SAPs) on developing countries. The fall of
the Berlin Wall, the collapse of the Soviet Union, and the end of the Cold War
hastened the acceptance by nations of capitalism as the only viable economic
order that could create wealth. New nation states that emerged from territories
previously under the Soviet umbrella were quick to embrace the economic,
institutional, and political support extended by the well-established capitalist
powers of North America and Western Europe, especially the USA.
An extremely important development during the later part of the twentieth century was the unprecedented increase in the economic capacities,
power, and reach of private corporations, many of which were already operating transnationally. Not only were corporations economically equipped
to take advantage of advances in science and technology, but many of these
same advances were financed, promoted, and marketed by corporations. The
Thatcher and Reagan era signalled an end to state-enforced regulations to curb
corporate power. The widespread adoption of neo-liberalism in many of the
worlds nations led to sharp increases in state support for the private sector
and allowed companies to concentrate resources through mergers and acquisitions. Soon, corporations were often bigger sources of capital than the state
and its financial institutions. By the mid 1990s, 51 of the worlds top 100
economic entities were transnational companies (TNCs), including General
Motors, Wal-Mart, Exxon Mobil, Toyota Motor, Royal Dutch Shell, and IBM
(for current information, see www.corporations.org).
Today, national and transnational corporations are the main drivers of neoliberal, economic globalisation. They are the principal beneficiaries of international trade, finance, and investment agreements, and the most powerful
advocates of liberalisation, deregulation, and privatisation in every area of
commerce and production. While maintaining control over manufacturing,
distribution, and service-supply chains, they have lowered their operational
costs by outsourcing selected production and services processes to firms in
countries where they can get maximum returns. Not only does this result
in appreciable increases in their profit margins, but it also allows corporations to shift their sites of production and services processing to wherever they
can operate at the lowest costs and with the fewest hindrances from national
regulations. Corporations are not in fact advocates of genuine free markets
with multiple market actors; rather, their interests lie in securing monopolistic
control of markets. On the one hand, TNCs are nationally based corporations
GLOBALISATION
73
that mobilise their countrys economic and political power, authority, and
diplomacy to operate transnationally and expand their profits. At the same
time, TNCs give global endeavours national roots. For example, Nestl, Proctor & Gamble, Walls, Monsanto, HSBC, and Citibank have bought up local
companies, tied local/national employment to the success of their products
and services, and completely dominated local/national consumer markets in
a large number of countries.
But corporations do not drive globalisation entirely by themselves. Governments are crucial actors in securing domestic and external markets for their pet
corporations through subsidies, preferential bidding and contract awards, export credits, development aid, trade and investment agreements, and military
aggression. The World Bank and the IMF, the WTO and specialised UN agencies provide the economic and financial architecture for globalisation, while
international groupings such as the Organisation of Economic Co-operation
and Development (OECD) and the World Economic Forum serve as forums to
determine the rules of capitalist global governance. Most of the worlds largest
TNCs have their home bases in France, Germany, the UK, and Japan, with the
largest concentration in the USA. This, coupled with the widespread use of the
US dollar as an international currency, has allowed the USA to maintain its
dominance over the global economy as well as over the institutions of global
governance. The globalisation arena, however, is hardly static: capitalist expansion creates conditions for new actors to enter the fray, challenge existing
actors, and compete for economic and strategic dominance.
Possibly the greatest current challenge to US domination of the global
economy is from China, which two decades ago decided to use capitalism
as an engine of growth. China is using globalisation to establish itself as a
modern economic superpower as possibly no other country has done before.
It has several attributes upon which globalisation thrives: a rapidly growing
economy with the capacity to absorb raw materials, and capital- and technology-intensive goods; an inexhaustible supply of cheap labour for industrial
production; and a growing internal market of newly prosperous consumers.
China has built up an impressive manufacturing, production, and services
base for labour-intensive, skilled, and hi-tech industries by forcing TNCs investing in the country to locate their entire production processes there, rather
than outsourcing selected processes. Since 2003, China has become the main
destination of Asian exports and served as the principal stimulus of growth
in the world economy over the past decade. And finally, China has started to
build strategic partnerships with countries rich in natural resources in Asia
and Africa, through the provision of foreign aid, preferential loans, and cancellation of interest-free loans owed to China.
Development and globalisation

The development industry has arguably been the most effective portal for
globalisation, and some of the most powerful actors in the globalisation arena
74
are members of the mainstream development establishment. These include

the IFIs, UN specialised agencies, academics, research institutions, think tanks,
civil-society organisations (CSOs), and private consultants and consulting
firms, all of whom devise the applications by which economic globalisation
is operationalised. Central here are the World Bank, IMF, and regional development banks, who control much of the financing for development, and
are instrumental in entrenching globalisation as the only development model
available to developing countries.
From its inception, development was conceptualised as a modernising endeavour through which people in the South could consume, think, and act
like their counterparts in the North (see Gilbert Rists contribution to this
volume). The euphoria of new technology, knowledge, and science created the
myth that the economic backwardness and underdevelopment of newly decolonised nations could somehow be resolved through techno-fixes, regardless
of the deep structural inequalities that colonialism had created both among
and within nations. Cold War struggles to establish spheres of influence provided incentives for massive aid transfers from wealthy Northern countries
to poor Southern nations, and all aid sought greater market openings in aidrecipient countries for Northern products, capital, and services. The explosion
of the debt crisis in the 1980s provided opportunities for the North to seal its
claims to Southern markets through the SAPs designed by the IFIs.
SAPs were packages of economic reforms aimed at establishing market
economies and hastening economic growth in indebted countries, regardless
of costs and consequences. They entailed drastically reducing government
social spending in areas such as health and education; liberalising imports;
removing national restrictions and controls on foreign investment and capital
mobility; devaluing the national currency to make exports more competitive
and thus generate revenues to service the external debt; privatising state enterprises, utilities, and functions; and removing protections for workers and local
producers that were viewed as restrictive to private investment and capital
mobility. SAPs sought to remove the government from the economy, thus
creating spaces for the expansion of private, transnational capital through corporate activity. The ideology underpinning SAPs was the same as that which
impelled globalisation: that markets unfettered by national regulation are the
most efficient allocators of resources; and, by tying themselves to borderless
world markets, poor countries can achieve rapid economic growth, which in
turn will generate the revenues needed for national development.
Diverse economic, social, legal, and administrative systems are hindrances
to the free play of markets and economic integration that characterise globalisation. SAPs killed this diversity. By the early 1990s, state roles had been
transformed in almost all developing countries that operated under IFI loan
regimes. Subsidies, welfare, and economic redistribution policies were all but
dismantled in a bid to streamline government spending; government enterprises and public assets were privatised in order to achieve greater efficiency;
and protectionist measures (such as tariffs, quotas, custom duties, and wage
GLOBALISATION
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regulations) were drastically reduced in order to make local producers, industries, and workers more efficient by exposing them to foreign competition.
The economies of developing countries become ever more closely tied to international markets controlled by corporate powers from the traditional North.
And, as states shed their functions of upholding social and economic justice
and equity, the provision of physical, social, and financial infrastructure and
services started to be farmed out to a variety of civil society and market actors.
SAPs laid the foundations of neo-liberal economies ruled by neo-liberal states
in developing countries.
SAPs did not, however, deliver the promised economic growth, export revenues, and freedom from debt and poverty. Instead, they led to economic stagnation and increased unemployment, income poverty, economic vulnerability,
and environmental destruction. They increased the economic vulnerability of
national economies by exposing them to externally triggered economic and
financial shocks, and making them dependent on export markets over which
they had no control. Borrowing countries became more indebted than before
and fell into debt traps whereby they used new loans to repay existing debts.
Numerous studies of SAPs reveal that they both created policy-induced poverty and entrenched pre-existing structures of social, economic, and political
inequality. (For a sample of critiques, see Bello 2006a, 2006b; Brooks 2006;
Roberts 2005; Singh 2005.)
The dangers of neo-liberal economics and globalisation were resurrected
in July 1997, when a financial crisis exploded in Indonesia, South Korea, and
Thailand and rapidly spread across the region, forcing the collapse of many of
the economies of East Asia. The crisis was triggered by currency speculation
and sudden massive capital flight, but its foundations had been laid several
years earlier, when countries bowed to pressures from the IMF to free speculative capital from the constraints of national regulation. Thanks to the IMFs
policy advice, the economies of Indonesia, South Korea, and Thailand had
become virtual casinos; capital flowed in and out with few restrictions, but
also with little substance in the real economy to back it up. The financial collapse was soon transformed into a full-blown economic and structural crisis
of enormous magnitude by IFI rescue packages, which were essentially SAPs
with a few social programmes thrown in. In less than a year, tens of millions
of people were plunged into sudden, abject poverty.
Although IMF, World Bank, and Washington Consensus pundits tried to
blame the crisis on Asian crony capitalism, the eruption of similar crises in
Turkey, Russia, and Argentina clearly showed that not only were BankFund
economic reform packages to blame, but also that their so-called rescue packages were intended to save foreign banks, investors, and corporations, and
not the crisis-hit countries. By contrast, strict capital controls in Malaysia and
China during the crisis protected their economies from unravelling.
In the face of growing international criticism following the Asian crisis, and
increasing evidence of the destructive impacts of SAPs, the Bank and Fund
changed their tack somewhat. SAPs started to be called poverty-reduction
76
strategies, included some social programmes, and put greater emphasis on

establishing globalisation-friendly national institutions through a new set of
policy reforms called good governance (see Mkandawires Chapter 2). The
core of the IFI development model, however, has remained unchanged, and
the assumed inevitability of globalisation appears to have prevented even
progressive members of the development establishment from imagining alternative forms of and paths towards development. And, despite mounting
evidence to the contrary, developing-country governments continue to maintain what appears to be an almost religious faith in the eventual power of
markets to correct imbalances, inequities, and imperfections.
An interesting example here is the micro-credit industry. Possibly because
the dominant development model is centred on capital accumulation, the
poverty that it creates is also generally attributed to lack of capital, which
must then be addressed by creating access to it. For income-poor families, this
access is created through loans from micro-credit projects and institutions.
Most micro-credit schemes are aimed at women organised in self-help groups
(SHGs), run by CSOs and private consultants, and heavily promoted by aid
agencies and the IFIs. While some micro-credit schemes may well have helped
borrowers to invest in effective income-generating activities, many have created debt traps whereby SHG members borrow from other sources to repay
their loans, unfortunately mirroring at the micro level the macro-level financial condition afflicting many indebted governments. Today, micro-credit has
become a global debt-creating industry worth billions of dollars. It is favoured
by aid agencies and aid-recipient governments alike and relieves the latter of
the far less favoured responsibility of controlling markets and redistributing
wealth, assets, rights to land, and access to resources which could generate
longer-term solutions to poverty.
The experience of the past few decades shows that countries that maintained financial controls and regulated the market to build up infrastructure
and agricultural capacity and protect employment (such as China, India,
Malaysia, Taiwan, Thailand, and South Korea) did better economically than
those that followed the World BankIMF development model. However, most
countries, rich or poor, have embraced globalisation as the preferred model of
development. An important reason for this is political: the top leadership in
most countries today consists of people from elite classes (with some exceptions in Latin America) and technocrats who are not committed to seeking
credible alternatives to globalisation.
Contradictions and paradoxes

Globalisation is not an inclusive or progressive form of internationalism.
Rather, it is the successful expansion on a world scale of particular localisms
of social, economic, and political organisation, which are neo-liberal and capitalist in character. The mix of material and ideological elements that make
this expansion possible makes globalisation a hegemonic process. Nor does
GLOBALISATION
77
globalisation create or encourage economic freedom, opportunities, and

choice at all levels; rather it is more akin to a monoculture of ideas, politics,
and economic models.
Globalisation is also contradictory in its effects. Its assumed integrative
nature is belied by severe and growing inequalities both within and among
nations. While capital and goods may be free to move across boundaries, labour is not. Much of the economic growth attributed to globalisation has been
jobless, and has benefited those who are already socially and economically
equipped to take advantage of the opportunities offered by economic and
financial liberalisation. Recurrent fluctuations in currency and commodity
markets and the ability of TNCs to move production sites at whim have wiped
out small producers and workers in developing countries. But large national
and transnational businesses have benefited from such volatility by acquiring
new assets at rock-bottom prices in developing countries. Corporations want
protectionism for themselves and laissez-faire for their competitors.
Globalisation has integrated rich, affluent, and educated classes, but has
fractured working classes and marginalised the poor, who do not have the
skills and economic clout to profit from open markets. While trade and financial liberalisation and privatisation have devastated the livelihoods of farmers,
fishers, workers, and indigenous peoples in the South, the North too is facing
globalisation-induced troubles. The subcontracting and outsourcing of industrial production and services processing to developing countries has created
unemployment in the home countries of some of the worlds largest TNCs
such as the USA, the UK, and France. Contrary to the rosy predictions of its
proponents, globalisation has not created a flat, harmonious world with economic prosperity for all. Instead, it has bred imbalances and contradictions
that capitalists themselves are hard put to explain.
Paradoxically, the same forces that promote global capitalism also promote
democracy, human rights, and government intervention. This is paradoxical,
because global capitalism cannot survive in an ethical climate that promotes
genuine democracy and fundamental human rights, nor does it favour independent-minded states. Corporations are geared towards profit making and
expanding the bottom line for their shareholders, who generally do not include workers, family farmers and fishers, indigenous communities, the urban
poor, or even lower-middle-class families. But in order to keep expanding their
profits, corporations need the sanction and structural support of nationally
and internationally accepted legal, judicial, and political entities that have
the moral authority to exercise force through policy and other means. In other
words, corporations need a neo-liberal state and multilateral forums and institutions in order to advance their interests. They need the state to act for them:
to clear the ground for their entry into domestic arenas; to establish economic,
financial, legal, and judicial frameworks that facilitate their operations; and,
most important, to provide rational and ethical cover for their operations.
This cover is easily conjured by equating globalisation with development,
78
democratic decision making, consumer choice, and the individualised rights

of a consuming public.
The role of the governments and state power in the current era of globalisation is a much-debated issue. Many on both the left and the right argue that
the state is relatively meaningless in the face of global capital. But state power
needs to be examined both within and outside the confines of national arenas. Political structures within nation states are expressions of the economic
arrangements and power alignments of interest groups within nations. States
that are closely allied to global capital are indeed powerful and they secure for
their corporations the most advantageous terms in international and bilateral
trade and investment treaties. The withdrawal of the state from economic
interventions in most developing countries has been achieved through economic and military aggression by capital-rich countries. At the same time,
many developing-country governments have tended to be extremely authoritarian in national arenas and used military force against their own citizens in
order to comply with the demands of global capital. State power in relation to
globalisation is both contradictory and responsive to the emergence of new
forces and trends. India, Brazil, South Africa, and China (the so-called BICS,
or BRICS, including Russia) are now forces to reckon with in the WTO. Under
the patronage of China, Cambodia which has been in the grip of post-war
reconstruction and SAPs for almost two decades is now able to thumb its
nose at IFIs and wealthy donor countries.
Resistance
As corporate-led globalisation sweeps the world, it transforms those that it
touches and, in so doing, it creates spaces and avenues for its dismantling
and the possibility of its imminent arrest. Globalisation has not delivered
(and cannot deliver) on its promises. Private corporations, national elites, and
those able to access higher education have reaped benefits, to be sure. But for
hundreds of millions across the world, the actual effects of neo-liberal policies
have been inequality, poverty, hunger, increased susceptibility to disease and
sickness, and economic and political marginalisation. Peasants, small-scale
farmers and fishers, small and medium entrepreneurs, workers, pastoralists,
and indigenous communities have faced deep and shattering livelihood crises
as a result of free trade and investment, and the depredations of speculative
capital. Public goods and services that once were and should still be within equal reach of all those living within a common territory are now being
offered as private goods and services accessible only to solvent consumers.
Non-state and supra-state actors (such as private corporations and multilateral
organisations) often perform the political functions of states, but without being under effective, sovereign control.
For every system of domination, there is a hacker. And progressive civilsociety actors are devising increasingly creative and powerful ways of hacking
into the neo-liberal regime, exposing its flaws and weakening its institutions.
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79
The hegemony of corporate-led globalisation is being challenged and resisted

by a growing, worldwide movement whose base is made up of a wide diversity of people, ideas, cultures, languages, ages, professions, and competencies.
These include progressive peoples movements, networks, CSOs, independent
academics and intellectuals, writers, artists, film makers, small businesses, and
even governments, all of whom are using modern information technology to
mount well organised, well informed, and sustained challenges to economic
globalisation, corporate power, and the key institutions of neo-liberal ideology. The same technology that has exacerbated the financial insecurity of
nations has also been used by peoples movements and activists to jam the
gears of globalisation.
In Latin America, Bolivia has nationalised its energy resources, Argentina
has unilaterally restructured the debt owed to Northern bond-holders, and
Venezuela has launched the Bolivarian Alternative for the Americas (its Spanish acronym, ALBA, meaning dawn) as an alternative plan for regional integration. Larger developing countries are refusing to borrow from the IMF, and
those that are under IMF regimes are keen to clear their payments ahead of
schedule. The crisis of the trade talks in the WTO, the growing crises of competency and legitimacy of the IMF and World Bank, the intensifying resistance
to US occupation in Iraq and elsewhere, and the moves at multiple levels
local, national, and regional to design, test, and share alternative paths to
social, economic, and ecological well-being, are all examples of successes of
the counter-hegemonic challenge to globalisation.
References
Bello, Walden (2006a) Globalization in retreat, Foreign Policy in Focus, 27
December, www.fpif.org/fpiftxt/3826 (retrieved 23 April 2007).
Bello, Walden (2006b) Chain-Gang Economics: China, the US, and the Global
Economy, 1 November, www.focusweb.org/chain-gang-economics-chinathe-us-and-the-global-economy.html?Itemid=94 (retrieved 23 April 2007).
Brooks, Mick (2006) Globalisation and imperialism, In Defence of Marxism, 11
April, www.marxist.com/globalisation-imperialism-economy110406.htm
(retrieved 23 April 2007).
Roberts, Michael (2005) Globalisation and empire, In Defence of Marxism, 7
December, www.marxist.com/globalisation-empire-barbarism071205.htm
Singh, Kavaljit (2005) Questioning Globalization, New Delhi: Madhyam Books.
About the author

Shalmali Guttal is a Senior Associate with Focus on the Global South (Focus),
an activist think tank that monitors development policy and practice. Over
the past 20 years, she has worked in India, the USA, and mainland Southeast
Asia on issues of social, economic, and political justice.
CHAPTER 7
The F-word and the S-word too much of

one and not enough of the other
Cassandra Balchin
This chapter questions the growing use of the term faith-based in development
policy and practice. It is argued that it homogenises people in minority migrant
and developing-country contexts and excludes many who are working for human
rights and social justice from secular perspectives, thus providing an unsound
analytical base for policy. Against the background of the war on terror, the
author also examines the differences in US and British development policy arising
out of the term faith-based.
If you want to get ahead in international development policy today, youve got
to use the F-word: faith-based. On the other hand, if you want to be dismissed,
de-legitimised, silenced in development policy and practice, then youve only
got to use the S-word: secularism. It has become such an anti-buzzword and
has fallen so far out of favour that even secularists have forgotten to carry on
developing the concept.
First, some problems of definition. We seem to have slid from identifying
certain collections of humans as religious groups to calling them faith-based
organisations. Surely, if a bunch of people come together because of their
shared religion, then they are a religious group? In old-fashioned political
science, groups tended to be linked with the phrase interest groups. But we
wouldnt want people to start thinking that any of this had anything to do
with politics and power, would we?
There is also a sloppy slippage between communities, groups, organisations,
and institutions all prefaced by faith and often invoked in the same breath.1
Sorry, but while I may see myself as part of the Muslim community, I most
certainly do not see myself as represented by or part of any particular faith
group, organisation, or institution. In a report by the Muslim Womens Network, launched on 7 December 2006 to share the voices of women in Britains
Muslim communities, some of the angriest comments were reserved for the
way the government seems to talk only to (conservative) male community leaders (Ward 2006). Having been linked with the international network
Women Living Under Muslim Laws for some 15 years, I know that women
across different geographical and religious contexts make the same criticism
of international development policy. Part of the problem here seems to be
82
a conflation of social location, identity, and values,2 as pointed out by Nira

Yuval-Davis (2006).
Studies in developing countries have indeed acknowledged the importance of religion in peoples daily lives (Shaheed 1998). In the 1980s and early
1990s, this often came as a rude shock to many international development
organisations, especially those based in Western Europe which for decades
seemed to operate on the principle that if one shut ones eyes and pretended
it wasnt there, the whole question of religion would magically go away. This
habit now seems to have been replaced with a tendency to ignore the many
in developing countries who do not identify as having any specific religion,
coupled with a presumption that everyone approaches faith in the same,
homogeneous way.3 One British government website stumbles when it tries to
do some defining. It says:
Faith community [] can refer to any religiously affiliated group and
there is no officially agreed definition. There are core themes, which
form the basis for all productive inter-faith activity and for co-operation
by all the faith communities in addressing issues of neighbourhood renewal These centre around: community, personal integrity, a sense of
responsibility for future generations not just the here and now learning, wisdom, care and compassion, justice and peace, respect for one another and for the earth and its creatures. (Neighbourhood Renewal Unit,
available at www.neighbourhood.gov.uk/page.asp?id=1003, retrieved 27
February 2007)
Does this definition mean that people who are not included in the policysexy faith communities, lack all these core themes? Thats a bit unfair on
atheists, surely, especially when we all know self-proclaimed devout people
who beat their servants and drive 4 x 4s. How is this definitional list of a faith
community any different from a list of what it takes to be a decent human being? The website of the World Faiths Development Dialogue (set up in 1998 as
an initiative of James D. Wolfensohn, then President of the World Bank, and
Lord Carey, then Archbishop of Canterbury) carries an article that proclaims:
A mark of the great world faiths is the assumption of a moral reality and a
critique of the basic human condition (Abrams 2003:2). I cant quite decide
whether that means that Marxism is also a great world faith, or that nobody
except the Christians, Muslims, Hindus, and Jews (sometimes the Buddhists
are also thrown in) has any morals.
Official US development policy is no better. For example, a grandly entitled
Faith-Based & Community Organizations Pandemic Influenza Preparedness
Checklist (available at www.pandemicflu.gov/plan/faithcomchecklist.html)
raises a number of questions. If the presumption is that a faith-based organisation is operating at the community level and can therefore help to deliver
health advice during a crisis, then why not call it a community organisation?
Or why highlight only religious organisations which can help out? Why not
local lesbian support groups or a wheelchair-users group? And if access to local
THE F-WORD AND THE S-WORD
83
communities isnt the issue, and the government needs to reach all organisations that can reach people, then why not include trade unions? Very odd.
And also very funny. The World Faiths Development Dialogue website carries an article, albeit with a disclaimer covering all similar documents, which
earnestly compares Differences between Secular NGOs and Religious based
NGOs. It asserts that while in secular organisations The management concept is based on management position and responsibility. The relationship
with management is of employer and employee, in religion-based NGOs
After God, all are equal, assigned with specific responsibilities based on skills
and capacity. The relationship is like members of a family or community.
Beneficiaries are members of an extended community (Sabur 2004). Youre
kidding, right?
At the level of international development policy, donors and aid agencies
have been increasingly obsessed with religion since the mid-1980s, when
there was an increase in the strength of extreme right-wing politico-religious
groups (fundamentalists), combined with a mushrooming of womens and
human-rights groups in developing countries, and greater donor commitment
to advocacy initiatives (which meant that one had to start talking politics
and ideology). For example, international seminars on Women, Islam and
Development started appearing (but hardly, if ever, Women, Christianity and
Development). All of this long preceded the attacks of 11 September 2001
and the subsequent War on Terror, although clearly the latter has led to an
increasing desperation in terms of international development policy.
But fundamentalism is on the rise not only in the Global South, where
even Sri Lankas Buddhists now have their very own fundamentalists. Christian fundamentalists are hugely influential in both US and British policy. The
US National Security Councils top Middle East aide consults with apocalyptic
Christians eager to ensure that US policy on Israel conforms with their sectarian doomsday scenarios (Perlstein 2004), and in recent US elections all candidates seemed to find it obligatory to preface their speeches with a statement of
faith. Tony Blair publicly emphasises his Christian beliefs, and no one should
be surprised that the former British Secretary of State for Communities and
Local Government is a member of Opus Dei, the right-wing Catholic group.
In current international development policy, religion is simultaneously
seen as the biggest developmental obstacle, the only developmental issue, and
the only developmental solution. The co-existence of these three seemingly
contrary approaches, which can often be found within a single bilateral or
international development agency or NGO, is possible because they all stem
from the same Orientalist presumption about the underdeveloped Other
(Said 1979). It basically boils down to racism.
Let me simplify an argument that I have made elsewhere (Balchin 2003).
In the first approach (seeing religion as the biggest developmental obstacle),
irrational people are blamed for their own underdevelopment (as opposed
to, for example, gross global trade inequalities perpetuated by the North),
and frequently custom is inaccurately conflated with religion. In the second
84
approach, factors influencing poverty such as class, gender, and racial discrimination are ignored or downplayed. In the third approach, it is presumed that all proper Indonesians, Ugandans, Moroccans, Chileans, etc.
are religious; secular initiatives are de-legitimised, and the work of many
local service-delivery and human-rights groups ignored.
Whatever happened to inter-sectionality: the recognition that we are all
subject to multiple identities that construct and are constructed by each other? Are my friends in Sisters in Islam a faith-based group or a feminist group
or a Malaysian group? I think they see themselves as all of the above and
why cant they be all of these without having to exclusively prioritise one or
other aspect of their work?
Added to the problem of prioritising one aspect of our identities to the
exclusion of others is the tendency inherent in this faith-based business
to conflate ethnicity, culture, race, and religion. International development
policy makers do it, the fundamentalists encourage it because it suits their
self-importance, and we all slip into the habit. In 2005 I was working with a
group of Muslim women in Britain, eliciting the problems that they face as
women in the community. A long, angry list of deprivations and discriminations emerged. Do English Muslim converts face these problems, I asked,
hoping to help them to identify more clearly the sources of the problems that
they faced and thereby to identify what policies should be changed. Stunned
silence. Most of the problems were going to drop off the list.
Have we stopped to really think what this whole faith groups business
means in terms of international development resources and policies? Under
President Bushs Emergency Plan for AIDS Relief (PEPFAR) and related legal
measures (which had to be introduced through executive orders and not
through democratic congressional process owing to strong opposition), one
third of AIDS-prevention money overseas (about US$ 1 billion) had to be spent
on programmes that encouraged abstinence until marriage. A report issued in
2006 by the Government Accountability Office, the investigative arm of the
US Congress, found that the effort to steer money to abstinence programmes
has taken funds away from other anti-AIDS programmes (Kranish 2006). Thats
an awful lot of money that could have usefully been spent on promoting safe
sex or addressing the power imbalances (especially gender-related imbalances)
that mean some cannot negotiate safe sex for themselves. Thats an awful lot of
lives. And if you are a lesbian or a gay man, a child, or a prostitute (or maybe all
three), forget any hopes of getting sex education or support if you dont want
to become HIV-infected.
Perhaps less dramatic, but no less frustrating, for local rights activists is
the recent announcement that the British government will double its aid to
Pakistan and all of the extra money will go to making sure that madrassahs
dont become terrorist hotbeds (BBC 2006). Perhaps the obsession with religion is also then linked with the neo-conservative economic agenda of winding
down state infrastructure and services (and hoping that community services
offered by religious groups will plug the gap): investing that much money in
85
the state education sector in Pakistan might ensure that no one needs to go to a
madrassah in the first place.
In the context of the War on Terror especially, faith-based is implicitly
counterposed to extremism, but this may lead to quite different development policies. To take just one example, in US policy faith-based is shorthand for Christians we can do business with, and extremism translates into
Muslims. An investigative report by The Boston Globe found that USAID spent
US$ 57 million from 2001 to 2005 (out of a total of US$ 390 million allocated
to NGOs) to fund almost a dozen projects run by faith-based organisations in
Pakistan, Indonesia, and Afghanistan. Of the nearly 160 faith-based organisations that have received prime contracts from USAID in the past five years,
only two are Muslim. Christian groups share of USAID funding has roughly
doubled under George Bush Jr and accounts for 98.3 per cent of all money
given to faith-based groups (Milligan 2006).
By contrast, in British development policy, working with faith-based initiatives has been code for funding moderate Muslims. Progressive Muslim groups
rarely get funding, because they dont match the stereotype of what a Muslim
should or should not be a stereotype that suits both the Orientalist and fundamentalist worldviews. Indeed, the word moderate appears in virtually every
DFID programme relating to Muslim contexts without definition at any point.
The only definition I could find was an indirect one, in an internal document:
By extremism, we mean advocating or supporting views such as support
for terrorist attacks against British or western targets, including the 9/11
attacks, or for British Muslims fighting against British or allied forces
abroad, arguing that it is not possible to be British and Muslim, calling
on Muslims to reject engagement with British society and politics, and
advocating the creation of an Islamic state in Britain. (FCO/HO 2004)
Thus any organisation which holds misogynist, homophobic, or antisemitic views could, under this categorisation, pass for moderate.
Because many Western governments and indeed major international development and human-rights NGOs have been so ignorant about the role of
religion in peoples lives, particularly about this role in non-Christian contexts,
for decades they failed to develop the tools to analyse religious groups and
thereby understand which of the groups within this potentially vast ideological array actually work for human rights and equitable development (assuming
that these governments and NGOs actually support such rights and development). In their recent rush to do religion or to support faith-based initiatives,
governments have on occasion made friends with some unsavoury characters
(Bright 2006). Meanwhile, gender specialists working in international development and human-rights NGOs still find it hard to get acceptance for the simple
message that fundamentalism is bad for womens health.
In the name of tradition, the faith communities approach accords some
religious figures a place that they have traditionally never had. Women activists in Muslim communities in the Philippines believe that USAIDs efforts in
86
2003 to secure a joint fatwa from local religious figures in support of reproductive health was a major factor in enabling the Ulema to overcome previous
internal differences and work together to form a united political force that
subsequently dominated local councils until discredited as having no concrete policies to deal with the areas poverty (personal communication).
Faith-based always comes with its sidekick, inter-faith dialogue or activities. In contexts where the walls have gone up and war has been declared,
dialogue across boundaries is a Good Thing. But sometimes inter-faith dialogue can work to oppress dissenting voices within each religious community,
because it easily translates into I recognise your hegemonic definition of your
identity and you recognise mine, and well get along fine. Remember the
Holy Alliance between the Roman Catholic Church and right-wing Muslim
governments at the 1994 International Conference on Population and Development, and their concerted attacks on womens bodily autonomy?
In November 2006, the Commonwealth Foundation organised a discussion on Faith and Development which concluded that Faith institutions and
civil society movements have a key role in providing education and achieving
local and global justice, gender equality, and action for non-violent resolutions to conflict.4 Its recommendation was the establishment of a Multi-Faith
Advisory Group that can advise the Foundation on the role of culture and
faith in development. The report stated that this will require a balanced
membership. I wonder whether this will include groups like Catholics For a
Free Choice, who highlight the current damage being done to gender equality
by faith institutions?
This brings us to the thorny question of who gets to define who is a member of a particular faith community, or if they qualify for membership at all.
What about groups such as the Ahmedis, declared non-Muslims in some countries and visibly not represented in membership, for example, of that supposedly umbrella organisation, the Muslim Council of Britain? The whole faith
communities policy leaves international development policy makers very
close to the highly contested ground of defining who is and is not a Muslim,
or a Christian, or a Jew, and so on and so forth.
What is wrong with the focus on faith-based groups is that it misses the crucial point about who is actually exercising power in a community, and for what
purposes. At a 2005 Oxfam GB workshop that considered questions of gender
and religion, we shared stories of experiences where religion had appeared as
the obstacle to a particular development initiative at the very local, grassroots level. But when we analysed who was using religion and for what purpose
(mostly men, mostly to preserve the status quo), it transpired that a religious
principle actually lay at the heart of only one of the dozen stories shared.5
So where does this leave us? What is the alternative? Secularism? It has
become such a dirty word that international development policy makers have
not even discussed publicly whether it means non-religious or anti-religious,
and how either of these is to be realised in social policy. Ironically, people in
developing countries are indeed discussing the issue: for example, Abdullahi
87
an-Naim on the future of Sharia (for details, see www.law.emory.edu/cms/

site/index.php?id=2383), Juan Marco Vaggione (2002), Asghar Ali Engineer,
and Penda Mbow (2006).6 For many of them, having faith and being secular
are not mutually exclusive.
Meanwhile, it is clear that international development policy to date has not
been effective in addressing deprivation and discrimination. What is not so
clear is what we should do about it. But I would suggest that the faith-based
approach is not the best solution, with its treatment of faith as synonymous
with organised religion as defined by the powerful within those religions; its
dismissal of people who do not wish to assert a religious public identity; its
hypocritical support of diversity across religions while ignoring the possibility of contestation within religions; and above all its implicit claim that
hungry stomachs can be filled by morality and ideology, rather than by global
trade equality, an end to militarisation, and the realisation by all people of
their human rights.
Notes
1.
2.
3.
4.
5.
6.
An example is the website of the British governments Department for

Communities and Local Government (DCLG), notably its sections on Race,
Equality, Faith and Cohesion, and the Neighbourhood Renewal Unit.
For example, the fact of being born into a Muslim family does not necessarily mean that one identifies as Muslim, and nor does a Muslim identity
necessarily mean adherence to a conservative political ideology.
For example, see Centre for Islamic Legal Studies (2005), which seems to
ignore Nigerian womens secular struggles, as well as progressive interpretations of Islam, and has been heavily criticised by Nigerian women
activists.
Available at www.commonwealthfoundation.com/uploads/documents/
faith_development_recommendations1.pdf (retrieved 27 February 2007).
Islams prohibition against interest or profit on loans affecting micro-credit
schemes in Yemen and even that is contested among Muslim jurists.
Dossier No. 28, published in December 2006 by Women Living Under
Muslim Laws, reproduces all these articles and many others.
References
Abrams, Len (2003) Faith, Development and Poverty Some Reflections,
www.wfdd.org.uk/articles_talks/abrams.pdf (retrieved 27 February 2007).
Balchin, Cassandra (2003) With her feet on the ground: women, religion and
development in Muslim communities, Development 46(4): 3949.
BBC (2006) UK and Pakistan forge terror pact, BBC News, 20 November,
http://news.bbc.co.uk/1/hi/world/south_asia/6161500.stm (retrieved 27
February 2007).
Bright, Martin (2006) When Progressives Treat With Reactionaries: The British States flirtation with radical Islamism, Policy Exchange, www.policyexchange.org.uk/Publications.aspx?id=192 (retrieved 27 February 2007).
88
Centre for Islamic Legal Studies (2005) Promoting Womens Rights Through
Sharia in Northern Nigeria, Zaria: Centre for Islamic Legal Studies, Ahmadu
Bello University, with support from DFID and the British Council.
Engineer, Asghar Ali (2006) Secularism in India, parts I and II, Secular Perspectives, 16 June 15 July, www.csss-isla.com/archive.php (retrieved 27
February 2007).
Foreign & Commonwealth Office/Home Office (2004) Young Muslims and
Extremism, draft report, www.stoppoliticalterror.com/media/youngmuslims070805.pdf (retrieved 27 February 2007).
Kranish, Michael (2006) Democrats inspect faith-based initiative, The
Boston Globe, 4 December, www.boston.com/news/nation/washington/articles/2006/12/04/democrats_inspect_faith_based_initiative/ (retrieved 27
February 2007).
Mbow, Penda (2006) The secular state and citizenship in Muslim countries:
bringing Africa into the debate, www.ned.org/events/past/events06.
html#Jan2606 (retrieved 27 February 2007).
Milligan, Susan (2006) Together, but worlds apart: Christian aid groups raise
suspicion in strongholds of Islam, The Boston Globe, 10 October.
Perlstein, Rick (2004) The Jesus landing pad: Bush White House checked
with rapture Christians before latest Israel move, The Village Voice, 18
May, www.villagevoice.com/news/0420,perlstein,53582,1.html (retrieved
27 February 2007).
Sabur, M. Abdus (2004) Case Study of the Asian Muslim Action Network
(AMAN), www.wfdd.org.uk/programmes/case_studies/aman.doc (retrieved
2 March 2007).
Said, Edward (1979) Orientalism: Western Conceptions of the Orient, New York,
NY: Vintage Books.
Shaheed, Farida (1998) The other side of the discourse: womens experiences
of identity, religion and activism in Pakistan, in Farida Shaheed, Sohail
Akbar Warraich, Cassandra Balchin and Aisha Gazdar (eds.) Shaping
Womens Lives: Laws, Practices and Strategies in Pakistan, Lahore: Shirkat Gah
Womens Resource Centre.
Vaggione, Juan Marco (2002) Paradoxing the secular: religion, gender and
sexuality at the crossroads, Transregional Center for Democratic Studies
Journal 3(8): 119.
Ward, Lucy (2006) Muslim women angry at views being ignored, study
shows, Guardian Unlimited, 7 December, www.guardian.co.uk/religion/
Story/0,,1965867,00.html (retrieved 27 February 2007).
Yuval-Davis, Nira (2006) Belonging and the politics of belonging, Patterns of
Prejudice 40(3):196293.
About the author

Cassandra Balchin, formerly a journalist based in Pakistan, has been linked
with the network Women Living Under Muslim Laws since the early 1990s
and is Director of Legal Awareness, Women & Society (LAWS), focusing on
Muslim communities in Britain.
CHAPTER 8
Participation: the ascendancy of a

buzzword in the neo-liberal era
Pablo Alejandro Leal
Participation was originally conceived as part of a counter-hegemonic approach
to radical social transformation and, as such, represented a challenge to the status quo. Paradoxically, throughout the 1980s and 1990s, participation gained
legitimacy within the institutional development world to the extent of achieving
buzzword status. The precise manipulations required to convert a radical proposal
into something that could serve the neo-liberal world order led to participations
political decapitation. Reduced to a series of methodological packages and techniques, participation would slowly lose its philosophical and ideological meaning.
In order to make the approach and methodology serve counter-hegemonic processes of grassroots resistance and transformation, these meanings desperately need
to be recovered. This calls for participation to be re-articulated within broader
processes of social and political struggle in order to facilitate the recovery of social
transformation in the world of twenty-first century capitalism.
Somewhere in the mid-1980s, participation ascended to the pantheon of development buzzwords, catchphrases, and euphemisms. From that moment
on, and throughout the greater part of the 1990s, the new buzzword would
stand side by side with such giants as sustainable development, basic needs,
capacity building, and results based. Participation entered the exclusive
world of dominant development discourse; it had gained currency and trade
value in the competitive market struggle for development project contracts,
an indispensable ingredient of the replies to requests for proposals that issued from multilateral aid agencies everywhere. Development professionals
and consultants rushed to attend workshops on how to employ a multiplicity
of methodological packages such as Participatory Rural Appraisal (PRA), Participatory Learning and Action (PLA), Appreciative Inquiry (AI), Community
Based Needs Assessment (CBNA), and Stakeholder Analysis. Other professionals rushed to lead these workshops, given the growing market for them. There
was no doubt: participation was hot, it was in, and it was here to stay or at
least, until it was displaced by another, newer buzzword.
That this happened should be of no surprise to anyone, since the development industry has made an art of reinventing itself in the face of its failure to
reduce or alleviate poverty, social and economic inequity, and environmental
90
degradation after more than five glorious development decades. What is striking is the time and manner in which it came upon the institutional development scene, and this chapter seeks to explore this particular issue.
The historic and systemic failure of the development industry to fix
chronic underdevelopment puts it in the challenging position of having both
to renew and reinvent its discourse and practice enough to make people believe that a change has, in fact, taken place and to make these adjustments
while maintaining intact the basic structure of the status quo on which the
development industry depends. This explains why we have seen, over the
past 50 years, a rich parade of successive development trends: community
development in the post-colonial period, modernisation in the Cold War
period, and basic human needs and integrated rural development throughout the 1970s. The neo-liberal period (1980s to the present day) witnessed a
pageant of such trends as sustainable development and participatory development from the late 1980s and all through the 1990s; capacity building,
human rights, and good governance throughout most of the 1990s; and,
we must not forget, poverty reduction/alleviation in the dawn of the twentyfirst century.
Michel Chossudovsky (2002:37) explains the phenomenon in simple and
lucid terms:
The official neoliberal dogma also creates its own counter-paradigm
embodying a highly moral and ethical discourse. The latter focuses on
sustainable development while distorting and stylizing the policy issues pertaining to poverty, the protection of the environment and the
social rights of women. This counter-ideology rarely challenges neoliberal policy prescriptions. It develops alongside and in harmony rather
than in opposition to the official neoliberal dogma.
It is clearly more than coincidence that participation appeared as a new
battle horse for official development precisely at the time of the shock treatment of Structural Adjustment Programmes (SAPs) inflicted on the underdeveloped world by the World Bank and the IMF. SAPs were the operational
methodology that, in practice, implemented neo-liberalism in poor nations.
By using the re-negotiation of Third World debt as leverage, the international
financial institutions were able to force poor countries to do things that were
clearly against their best interest. Thus the wave of privatisation, denationalisation, elimination of subsidies of all sorts, budgetary austerity, devaluation,
and trade liberalisation initiated a deep social desperation throughout the
Third World. The anti-SAP riots in Caracas in 1989, which left more than 200
people dead; the bread riots of Tunis in January 1984; the anti-SAP riots led by
students in Nigeria in 1989; the general strike and popular uprising against the
IMF reforms in Morocco in 1990; and the Zapatista uprising of 1994 against
the signing of the North American Free Trade Agreement (NAFTA) are but
some of the most emblematic examples of the social and political backlash
that the SAPs produced.
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In participation, official development found what Majid Rahnema has

called a redeeming saint (Rahnema 1990:20). Developments failures were
now to be explained by its top-down, blueprint mechanics, which were to be
replaced by more people-friendly, bottom-up approaches that would put the
last first, as Robert Chambers (1983) coined in his well-known book Rural
Development: Putting the Last First.
What perhaps sets the ascendancy of participation apart from other coopted development concepts are its radical roots. Arising from the emancipatory pedagogy of Paulo Freire, the Marxist-oriented school of Participatory
Action Research (PAR), the principal objective of the participatory paradigm
was not development or poverty alleviation but the transformation of
the cultural, political, and economic structures which reproduce poverty and
marginalisation. The basic ideology of PAR, according to Mohammed Anisur
Rahman (1993:13), is that a self-conscious people, those who are currently
poor and oppressed, will progressively transform their environment by their
own praxis. Or, in more Freirean terms, development can only be achieved
when humans are beings for themselves, when they possess their own decision-making powers, free of oppressive and dehumanising circumstances; it is
the struggle to be more fully human (Freire 1970:29).
Development per se is not excluded from the equation but is seen as something that stems from and is functional to the advancement of social transformation. According to Fals-Borda et al. (1991), in the context of the global
state of victimisation and oppression of the poor by power-wielding elites,
development comes only as a result of individual self-awareness and subsequent collective action. In other words, social transformation can and should
produce development, while institutional development historically has not
led to social transformation. The reason for this is very clear: institutional
development was simply never intended to do so.
Radical neo-liberalism
The World Bank praises the privatization of Zambias public health system: It is a model for Africa. Now there are no more long line-ups in
the hospitals. The Zambian Post completes the idea: There are no
more long line-ups at the hospitals because people now die at home.
(Galeano 2002)
When taking into consideration the radical nature of the participatory proposal for social transformation and the neo-liberal structural-adjustment
context in which it has been co-opted, the incompatibility between the two
might seem far too deep-seated to permit such a co-optation to take place. But
if we factor in the growing social discontent, popular mobilisations, and antiSAP riots that were taking place across the Third World, we begin to understand how the development industry could not simply ignore the increasing
critiques and challenges to its reigning paradigm. In Rahnemas words (1990:
92
200), the challenge that participation posed to development orthodoxy was

too serious to be brushed away or frontally imposed.
Yet, what exactly does Rahnema mean when he identifies participation as
a threat too serious to be brushed away? In what way did participation represent a challenge to the reigning orthodoxy? To understand this issue, we
must locate ourselves in the context of the Cold War, whose most significant
disputes (which were anything but cold) took place not in the First but in the
Third World. National liberation struggles were on course in Africa in countries like Namibia, Angola, and Guinea Bissau. Tanzania had undertaken its
historic project of Ujamaa socialism under the leadership of Julius Nyerere. In
Central America, the Sandinista rebels had triumphed in Nicaragua, and revolutionary insurgencies in El Salvador and Guatemala were underway. In South
America, the brutal dictatorships of the Southern Cone were confronting an
increasingly belligerent popular opposition. In all of these cases, popular education and participatory grassroots action were playing an active role.
In 1971, Freire would travel to Tanzania and, along with Budd Hall, a renowned PAR activist and thinker, would assist the socialist government in the
design of its educational programme. In the mid-1970s, Freire would serve as
an adviser to the revolutionary government of Guinea Bissau. He would later
provide similar services for the Sandinista government of Nicaragua. Popular education would play a significant role in the construction of grassroots
guerrilla support in El Salvador and Guatemala throughout the 1980s, while
it would help to consolidate popular resistance to the fascist dictatorships in
South America1 throughout the 1970s and 1980s. In 1977, radical Colombian
sociologist and participatory research pioneer, Orlando Fals-Borda, would be
instrumental in organising a world conference on PAR which, according to
Budd Hall, reflected the decision of researchers and activists to use their intellectual skills and connections to strengthen the political movements associated with revolution and democracy of the time (Hall 1997). From this
conference, the participatory action-research movement received a global
push and expansion.
It was clear that in the Cold War dispute, participation and popular education had taken sides with the Left and not the Right, and, in the world run by
the ultra-reactionary ReaganThatcher politics of the 1980s, the very decade
in which participation began its ascendancy, this would not go unnoticed.
The threat was real and palpable and needed to be reckoned with.
If we add to the above the fact that the SAP politics of 1980s and 1990s
would only serve to heighten popular resistance throughout the Third World,
it would become imperative for the global power elites to seek some kind of
palliative solution, to put a human face on inhumane policies; at the very
least, to create the illusion that they were not indifferent to the suffering inflicted upon the poorest of the poor by the new neo-liberal shock treatment
(Leal and Opp 1999). Consequently, a 1989 World Bank Report entitled SubSaharan Africa: From Crisis to Sustainable Growth advocated creating new institutions and strengthening civil-society organisations (CSOs), inclusive of
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groups such as NGOs and voluntary organisations such that these might create channels of participation, by establishing links both upward and downward in society and [voicing] local concerns more effectively than grassroots
institutions (World Bank 1989:61, cited in Leal and Opp 1999). According to
the Bank, with the creation of a proper enabling environment, poor nations
can channel the energies of the population at large, and ordinary people
should participate more in designing and implementing development programs (ibid.).
But the mutations of the official discourse did not stop there, and the
irony that they produced was indeed something to behold. By employing the
language of empowerment, self-reliance, and participation, the Bank assumed a populist appearance reminiscent of PAR. The new rhetoric assumed
a pseudo-political stance in its suggestion that the crisis of governance in
many countries is due to the appropriation of the machinery of government
by the elite to serve their own interests, and went so far as to state that a deep
political malaise stymies action in most countries (ibid.). At a first glance,
one might naively infer that the logical implication is to call for people to be
empowered to overturn the current and oppressive state of affairs through
increased political participation. However, the actual intent is somewhat different. By having identified the nasty state as the culprit, the World Bank was
not advocating a popular government, but rather creating a populist justification for the removal of the state from the economy and its substitution by the
market. As Moore (1995:17) asserts:
...the World Bank is not about to give the state to these people even
though it contends that the state has taken the resources from them.
Rather than have the state controlled by the common people, the World
Bank would control the local states withdrawal from the economy.
Resources must be taken away from the state and placed in the market,
where all citizens will supposedly have equal access to them.
Thus liberation or empowerment of poor people in this rationale is not
linked with political or state power. Rather, the implication is that empowerment is derived from liberation from an interventionist state, and that
participation in free-market economics and their further enlistment into development projects will enable them to take fuller charge of their lives, and it
is this which is cast as inherently empowering (Leal and Opp 1999).
The World Bank would go on to manufacture products such as the Participation Source Book in 1996, a methodological guide to doing participatory
development. And later it would produce the stirring report Voices of the Poor
(Narayan et al. 2000), making heart-felt calls for all development institutions
to pay closer attention to the needs, aspirations, and subjectivities of the planets marginalised classes and to consider how these might influence development policy. Linked to Voices of the Poor were the Poverty Reduction Strategy
Papers (PRSPs), an initiative also led by the World Bank, that sought to articulate poverty reduction with participation, with empowerment as an implicit
94
adjunct (Cornwall and Brock 2005: 1045). And finally, the cherry on the
cake, were the Millennium Development Goals (MDGs), ratified by the United
Nations General Assembly in 2000, in which the worlds governments committed themselves to the goal of halving global poverty by 2015. The declaration
is peppered with buzzwords such as sustainability, participation, empowerment, equality, and democracy, but it makes no reference to what might be
the forces that produce and perpetuate poverty. Maintaining a politically and
conceptually ambiguous stance, the MDG declaration affirms that the central
challenge faced by the planets governments and respective institutions is
to ensure that [neo-liberal] globalization becomes a positive force for all the
worlds poor (United Nations General Assembly 2000: 2).
Peoples participation and empowerment filter into all of the above equations, sometimes implicitly, but more often than not explicitly identified as
foundational pillars of the global poverty-reduction crusade. According to
Cornwall and Brock (2005: 1046), by remaining politically ambiguous and
definitionally vague, participation has historically been used both to enable
ordinary people to gain agency and as a means of maintaining relations of
rule. However, in the hands of the development industry, the political ambiguity has been functional to the preservation of the status quo.
Preserving the hegemony of the status quo, in the Gramscian sense, entails the reproduction of discourse through various channels in order to create
and maintain a social consensus around the interests of the dominant power
structures, which in the twenty-first century are encased in and are functional
to the neo-liberal world order. Thus, the manipulations required to neutralise
challenges and threats to its dominant rationale and practice cannot afford to
lack sophistication. Whatever the method used to co-opt, the dominant order
has assimilated an historic lesson, as White (1996) affirms with simple clarity:
incorporation, rather than exclusion is the best form of control. Since frontal negation or attacks to those challenges to the dominant order often serve
only to strengthen and legitimate the dissent in the eyes of society, co-option
becomes the more attractive option for asserting control. Counter-ideology is
thus incorporated as part of the dominant ideology, as Chossudovsky (2002:
37) argues:
Within this counter-ideology (which is generously funded by the research establishment) development scholars find a comfortable niche.
Their role is to generate within this counter-discourse a semblance of
critical debate without addressing the social foundations of the global
market system. The World Bank plays in this regard a key role by promoting research on poverty and the so-called social dimensions of
adjustment. This ethical focus on the underlying categories (e.g. poverty alleviation, gender issues, equity, etc.) provides a human face
to the World Bank and a semblance of commitment to social change.
However, inasmuch as this analysis is functionally divorced from an
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understanding of the main macro-economic reforms, it rarely constitutes a threat to the dominant neoliberal economic paradigm.
For participation to become part of dominant development practice, it
first had to be modified, sanitised, and depoliticised. Once purged of all the
threatening elements, participation could be re-engineered as an instrument
that could play a role within the status quo, rather than one that defied it.
Co-optation of the concept depended, in large measure, on the omission of
class and larger social contradictions. As such, participation became another
ingredient in the prevailing modernisation paradigm. This conceptualisation
holds that poverty, inequity, and marginalisation are results of a lack of application of technology, capital, and knowledge combined successfully through
appropriate policy and planning mechanisms, leading to pertinent reforms of
institutional structures (i.e. SAPs) (Escobar 1995; Tandon 1996). The dominant
discourses of mainstream development hold as fundamental the assertion that
the pattern for these types of intervention are found in the Western rationalist
tradition which focuses on behavioural models of rational choice rather than
structural inequity or the human response to oppression (Cowen and Shenton
1995; Porter 1995; Pieterse 1991).
As such, institutional development opts for the route of technocracy or the
technification of social and political problems. By placing emphasis on the
techniques of participation, rather than on its meaning, empowerment is thus
presented as a de facto conclusion to the initiation of a participatory process
part and parcel of technical packages like PRA, PLA, and stakeholder analysis.
Power or political issues are thus translated into technical problems which
the dominant development paradigm can easily accommodate (White 1996).
Freed from its originally intended politics and ideology, participation was
also liberated from any meaningful form of social confrontation, aside from
the very superficial dichotomy between outsiders and insiders, or uppers
and lowers. Power, in the current global context, and especially so in the
context of Third World societies, implies significant degrees of social confrontation and contradiction which are inherent and imminent in processes of
social change and transformation. However, for reasons that should by now
be self-evident, social confrontation is an issue that the development industry
has never been able or willing to address.
This process of depoliticisation has been well documented in a series of
critiques, culminating with Cooke and Kotharis (2001) Participation: The
New Tyranny? Nevertheless, to say that institutional development effectively
depoliticised participation is not entirely true. Either tacitly or overtly, participation is either functional to the dominant social order or it defies it. The
depoliticised versions of participatory action (participatory development,
PRA, etc.), liberated from their transformative elements, are still, in fact,
political, since they inevitably serve to justify, legitimise, and perpetuate current neo-liberal hegemony. As such, by having been detached from its radical nature, participatory action was consequently re-politicised in the service
of the conservative neo-liberal agenda. As Williams (2004:1) states:
96
If development is indeed an anti-politics machine, [...] participation

provides a remarkably efficient means of greasing its wheels.
Returning to politics and power

It should come as no surprise then, that a very relevant and legitimate call has
been made to politically relocate participation and rescue its transformative
potential. One good example is the edited volume From Tyranny to Transformation? Exploring New Approaches to Participation (Hickey and Mohan 2004). This
book is based on the idea that while the critical backlash has been legitimate
and necessary, one must be careful not to throw the baby out with the bathwater and discard participation in its entirety. The merits of participation as a
political and methodological approach that makes social transformation possible remain, but participation must be re-articulated to serve broader struggles, as Hickey and Mohan (2004:1) point out:
[...] participatory approaches are most likely to succeed where they are
pursued as part of a wider (radical) political project and where they are
aimed specifically at securing citizenship rights and participation for
marginal and subordinate groups.
Since it is abundantly clear that wider radical political projects are unlikely ever to be on the agenda of development industry, the re-politicisation
of participation must take place outside the institutional development agenda
and within the social, political, and cultural context of grassroots struggle.
Power is, as it has always been, at the centre of the participation paradigm.
But, as we have discussed, the institutionalised understandings of empowerment seek to contain the concept within the bounds of the existing order,
and empowerment becomes the management of power when in the hands of
the powerful. Institutionalised development, unable to accept or assume the
original connotations of power and empowerment that participation carried
with it, manoeuvred to create new interpretations of the concept. Principal
among them is the idea of power as something which could be given by the
powerful to the powerless. Of course, as Tandon (1996:33) points out, this is
highly problematic:
Those who give power condition it; it has to be taken. It is through the
active struggle for rights that you secure those rights. It is through the
active struggle for resources that you secure those resources. That is the
lesson of history.
Empowerment, disassociated from the broader societal issues that generate
poverty and disenfranchisement, is reduced to sharing in the cycle of development projects; but, as White (1996) notes, sharing through participation
does not necessarily mean sharing in power. If empowerment, as Guijt (1998)
states, is about the transformative capacity of people or groups, and there is
no collective analysis of the causes of oppression or marginalisation and what
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97
actions can be taken to confront and affect those causes, then any efforts are
unlikely to be empowering. Genuine empowerment is about poor people seizing and constructing popular power through their own praxis. It is not handed
down from the powerful to the powerless, as institutional development has
conveniently chosen to interpret the concept. Those who give power condition it, for, as Paulo Freire (1970) best put it himself: Freedom is acquired by
conquest, not by gift.
Towards other, better possible worlds

I am not a subject but rather I create myself as one, as a subject. I continually become; I continually place myself as a subject. There is no subject without becoming one as such. To become is a verb and not a noun.
If others place me as a subject, I am not a subject but an object, because
I have been placed as one. All domination is based on positioning the
other as an object. (Dr 1998: 1)
Todays globalised world is characterised by a vast concentration of wealth
that implies a parallel concentration of political power. This has led to the
exclusion of the global majorities, denying them any meaningful economic
or political participation. The inability of these expanding majorities to attain
a dignified life, not in consumer-led opulence espoused by the modernisation
paradigm, but at least free from misery, renders political democracy meaningless. Rather than being subjects of their own political power, the global poor
are objects of neo-liberal capital, overwhelmed by global forces that they do
not see or comprehend. After all, political power is nothing if it does not serve
as a vehicle to assert control over or govern ones present and future life.
One cannot speak of participation when a few global power brokers decide the
fates of more than two thirds of the worlds population.
Most Third World societies are experiencing crisis in governance, brought
on by militarisation, transnational corporate control, and corrupt governments created in the service of neo-liberal globalisation. These phenomena
have undermined all democratic capacity at the formal institutional level
and created a sort of political vacuum. This political vacuum could be interpreted as a strategically favourable situation for building upon local peoples
decision-making capacity and grassroots action, for building popular power and
self-governance. However, this first political vacuum is related to a second,
which can be called the absence of spaces and a culture for meaningful participation. In societies with historically paternalistic or authoritarian structures or
current de-democratised neo-liberal regimes, the spaces for meaningful social
and popular participation are constantly reduced. As a consequence, the necessary culture of participation is displaced by the Freirean culture of silence.
The above begs the question: What exactly do we wish to participate in? Can
we continue to accept a form of participation that is simply added on to any
social project, i.e. neo-liberal modernisation and development, creating an
98
alibi for development by transferring ownership to the poor in the name of

empowerment? Or should participation be re-located in the radical politics of
social transformation by reaffirming its counter-hegemonic roots?
We must not lose sight of the fact that the underlying principle of those approaches to participation was the struggle for deep social transformation. This
is something quite different from institutional reform, or development. The
context of the global political economy of power and powerlessness places
new responsibility on participatory activists and practitioners to reconstitute
participation as an instrument for promoting social transformation. The recovery of the emancipatory meaning of participation implies re-grounding
in the radical roots of liberatory/popular education and participatory action
research, to re-situate the transformative proposal in the twenty-first century
neo-liberal world order and reconstruct the spaces and culture for participation and the exercise of popular power. In this logic, Orlando Fals-Borda
(2000), the renowned PAR pioneer, creates the concept of peoples SpaceTimes
as the place where we, as grassroots practitioners and activists, can initiate
our politicalpedagogic work:
[...] peoples SpaceTimes are concrete social configurations where diversity is part of normality, and where people weave the present into
their particular thread of history (Sachs 1992:112). Local affirmation,
collective memory, and traditional practices are fundamental in such
SpaceTimes. Here life and cultural identities, mutual aid and cooperative
institutions are formed, personality is shaped, and collective rights have
priority over individual rights. Hence it is not surprising that many of
the mechanisms used in SpaceTimes by the common people to defend
themselves are those to which they have had recourse throughout the
centuries, mechanisms and practices which they know best for survival
in basic struggles such as those for land, power, and culture. (Fals-Borda
2000: 628)
The struggle to fill peoples SpaceTimes is the struggle to counteract the hegemony of global capitalist power. It is thus the struggle for political power; it
is the struggle for cultural recognition or affirmation of alternative constructs
of the good life; it is the struggle for control over territories, communities,
and their resources or the defence of the space of material and cultural reproduction (Fals-Borda 2000). For local people to construct this type of popular
power, they must engage in their own political and economic analysis of the
local, national, and global realities, which will in turn determine their capacity to influence and affect power relations at higher social levels.
As such, there lies before us the historic task, as participatory practitioners and activists, to be active protagonists in the reconstruction and redimensioning of the social subject which will frontally engage the world of
twenty-first century capitalist society by creating new political and cultural
imaginaries and make the push towards transformation. This juncture drives
us all to make value-based, philosophical, and ideological stands with respect
PARTICIPATION
99
to our own praxis, beginning with the recognition that our primary task is, as
it should always have been, not to reform institutional development practice
but to transform society.
Note
1.
For some examples, see John Hammond (1998), Bud Hall (1997), and
Paulo Freire (1978).
References
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Longman.
Chossudovsky, Michel (2002) The Globalization of Poverty: The Impacts of IMF
and World Bank Reforms, Mexico: Siglo XXI Editores. (Spanish version)
Cooke, Bill and Uma Kothari (eds.) (2001) Participation: The New Tyranny?,
London/New York: Zed Books.
Cornwall, A. and K. Brock (2005) What do buzzwords do for development
policy? A critical look at participation, empowerment and poverty reduction, Third World Quarterly 26 (7): 104360.
Cowen, Michael and Robert Shenton (1995) The invention of development,
in Jonathon Crush (ed.) Power of Development, London: Routledge.
Dr, Rubn (1998) Crisis y reconstruccion del sujeto poltico popular, paper
presented at Primeras Jornadas de Teora y Filosofa Poltica, Buenos Aires,
2122 August, Facultad de Ciencias Sociales, Universidad de Buenos Aires.
Available at: www.clacso.org/ www.clacso/espanol/html/biblioteca/sala/
sala2.html.
Escobar, Arturo (1995) Imagining a post-development era, in J. Crush (ed.)
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Fals-Borda, Orlando, and Muhammad Anisur Rahman (eds.) (1991) Action and
Knowledge: Breaking the Monopoly with Participatory Action-Research, New
York, NY: Apex Press.
Freire, Paulo (1970) The Pedagogy of the Oppressed, New York, NY: Continuum.
Freire, Paulo (1978) Pedagogy in Process: Letters to Guinea Bissau, New York, NY:
Continuum.
Galeano, Eduardo (2002) Paradojas, La Jornada, Mxico City, 19 October.
Guijt, Irene (1998) Waking up to power, conflict and process, in I. Guijt and
K. Shah (eds.) The Myth of Community, London: IT Publications.
Hall, Budd L. (1997) Reflections on the Origins of the International Participatory Research Network and the Participatory Research Group in Toronto,
Canada, paper presented to the Midwest Research to Practice Conference
in Adult, Continuing and Community Education, Michigan State University East Lansing, Michigan, 1517 October.
Hammond, John (1988) Fighting to Learn: Popular Education and Guerrilla War
in El Salvador, Piscataway, NJ: Rutgers University Press.
100 DECONSTRUCTING DEVELOPMENT DISCOURSE
Hickey, S. and G. Mohan (eds.) (2004) From Tyranny to Transformation? Exploring New Approaches to Participation, London: Zed Books.
Leal, Pablo and Robert Opp (1999) Participation and Development in the Age
of Globalization: Institutional Contradictions and Grassroots Solutions,
available at www.pdforum.org. Abridged version published in Development
Dialogue, published by CIDA.
Moore, David (1995) Development discourse as hegemony: towards an
ideological history 19451995, in David Moore and Gerald Schmitz
(eds.) Debating Development Discourse: Institutional and Popular Perspectives,
London: Macmillan.
Narayan, Deepa, Raj Patel, Kai Schafft, Anne Rademacher and Sarah KochSchulte (2000) Voices of the Poor: Can Anyone Hear Us?, New York, NY: Oxford
University Press/World Bank.
Pieterse, Jan Nederveen (1991) Dilemmas of development discourse: the
crisis of developmentalism and the comparative method, Development
and Change 22(1): 529.
Porter, Doug J. (1995) Scenes from childhood: the homesickness of development discourses, in Jonathan Crush (ed.), Power of Development, London
and New York: Routledge.
Rahman, Muhammad Anisur (1993) Peoples Self-Development: Perspectives
on Participatory Action Research, London/Dhaka: Zed Books and Dhaka
University Press.
Rahnema, Majid (1990) Participatory action research: the Last Temptation of
Saint Development, Alternatives 15:199226.
Tandon, Yash (1996) Poverty, process of impoverishment and empowerment,
in Vangile Titi and Narech Singh (eds.) Empowerment for Sustainable Development: Toward Operational Strategies, London: Zed Books.
United Nations General Assembly (2000) United Nations Millennium
Declaration: Resolution adopted by the General Assembly, www.un.org/
millennium/declaration/ares552e.pdf.
White, Sarah C. (1996) Depoliticising development: the uses and abuses of
participation, Development in Practice 6(1): 615.
Williams, Glyn (2004) Towards a re-politicisation of participatory development: political capabilities and spaces of empowerment, in S. Hickey and
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Washington, DC: World Bank.
About the author

Pablo Alejandro Leal is Professor of Political Economy at the Benito Jurez
University of Oaxaca State and a professor of development theory, popular
education, and participatory action-research at the Oaxaca campus of the
National Pedagogic University. He is also an active member of the Zapatista
Collective of Oaxaca.
CHAPTER 9
Citizenship: a perverse confluence

Evelina Dagnino
This chapter discusses the different meanings that citizenship has assumed in
Latin America in the past few decades. Its main argument is that, in the perverse
confluence between neo-liberal and democratic participatory projects, the common reference to citizenship, used by different political actors, projects an apparent homogeneity, obscuring differences and diluting the conflict between those
projects.
Citizenship has become an increasingly recurrent term in the political vocabularies of social movements, and more recently NGOs, governments, and international development agencies. In Latin America, its emergence is linked
with the experiences of social movements during the late 1970s and 1980s,
reinforced by democratisation efforts, especially in those countries still under
authoritarian or military regimes. It swiftly became a common reference point
among a range of social movements such as those of women, black people and
ethnic minorities, gays, older people, consumers, environmentalists, urban
and rural workers, and those organised around urban issues such as decent
housing, health, education, unemployment, and violence (Foweraker 1995;
Alvarez et al. 1998).
For Latin American social movements, the reference to citizenship was not
only a useful tool in their own specific struggles but also a powerful link among
them. The general claim for equal rights already embedded in the conventional concept of citizenship was both expanded and given particular meanings
in relation to specific claims. The process of redefinition placed a strong emphasis on the cultural dimension of citizenship, incorporating contemporary
concerns with subjectivities, identities, and the right to difference. This new
citizenship was seen as reaching far beyond the acquisition of legal rights: it
depended on citizens being active social subjects, defining their rights, and
struggling for these rights to be recognised. At the same time, the emphasis on
culture asserted the need for a radical transformation of cultural practices that
reproduce social inequality and exclusion.
As a result of its growing influence, citizenship soon became a contested
concept in Latin America (Dagnino 2004). From the 1990s onwards, it has
been appropriated by the elites and by the state to encompass a variety of
meanings. In the neo-liberal perspective, citizenship is understood primarily
as the integration of individuals into the market, while at the same time previously acquired rights, in particular labour rights, are being progressively eroded. Meanwhile, in response to increasing poverty and social exclusion, there
has been a resurgence of philanthropic endeavours from the so-called Third
Sector, which convey their own version of citizenship.
The contested definitions of citizenship are the principal axis of political
struggles in Latin America today, a reflection of the confrontation between a
democratising, participatory project to extend the meaning of citizenship and
the neo-liberal offensive to curtail any such possibility. In this chapter, I draw
on the experience of Brazil in relation to these issues in order to highlight the
challenges and contradictions to be addressed in using the term citizenship in
international development discourse.
A perverse confluence
Todays democratisation processes are locked in a perverse confluence of two
distinct political projects. On the one hand, many countries have seen the increasing involvement of civil society in discussion and decision making about
public policy. In Brazil, in particular, efforts to enlarge democracy through
participation have been recognised and incorporated in the 1988 Constitution. As a result, the confrontational relations between the state and civil
society have been largely replaced by an investment by social movements
in the possibility of joint initiatives and in institutional participation in the
newly created participatory spaces (see, for example, Abers 1998; Dagnino et
al. 1998; Fedozzi 1997; Santos 1998). At the same time, neo-liberal governments throughout Latin America are bent on achieving a reduced, minimal
state1 that progressively abandons its role in guaranteeing universal rights by
rolling back its social responsibilities and transferring them to civil society,
now envisaged as a mere implementer of social policies.
The perverse nature of the confluence between the participatory and the
neo-liberal projects lies in the fact that both not only require a vibrant and
proactive civil society, but also share several core notions, such as citizenship,
participation, and civil society, albeit used with very different meanings. The
common vocabulary and shared institutional mechanisms obscure fundamental distinctions and divergences. The apparent homogeneity conceals conflict
and contradictions by displacing dissonant meanings.
The neo-liberal project has also re-defined meanings in the cultural sphere.
The notion of citizenship offers perhaps the most dramatic case of how such
meanings are displaced. First, because it was precisely through the notion of
citizenship that the participatory project managed to achieve its most important political and cultural gains, to the extent of generating an innovative
definition that has penetrated deep into Brazils political and cultural fabric
(Dagnino 1994a; 1998). And second because such a displacement determines
how the most critical challenge facing Latin America inequality and poverty
is addressed.
CITIZENSHIP: A PERVERSE CONFLUENCE
103
Participatory citizenship
Citizenship came to prominence as a crucial weapon in the struggle against
social and economic exclusion and inequality, and in broadening the prevailing conception of politics. Thus, the struggles for a deepening of democracy
that were undertaken by social movements in Latin America sought to redefine citizenship by challenging the existing definition of what constituted the
political arena its participants, its institutions, its processes, its agenda, and
its scope (Alvarez et al. 1998).
Adopting as its point of departure the notion of a right to have rights, this
new definition of citizenship enabled new social subjects to identify what they
considered to be their rights and to struggle for their recognition. In contrast
to a view of citizenship as a strategy by the elites and by the state for the gradual and limited political incorporation of excluded sectors of society, or as a
legal and political condition necessary for the establishment of capitalism, this
is a definition of non-citizens, of the excluded: a citizenship from below.
Much of the attraction of citizenship and its core category of rights lies in
the dual role that it has played in the debates on democracy that characterise contemporary politics in Latin America. The struggle for the recognition
and extension of rights helped to make the argument for the expansion and
deepening of democracy much more concrete. And the reference to citizenship provided common ground and shared principles for a huge diversity of
social movements that adopted the language of rights as a way to express their
demands. This in turn helped these movements to avoid fragmentation and
isolation. Thus the building of citizenship was always conceived as a struggle
for the expansion of democracy that could incorporate both a broad range
of demands and particular concrete struggles for rights, such as the rights
to housing, education, and health care, whose achievement would further
deepen democracy.
The focus of social movements on the need to assert the right to have rights
is clearly related to extreme levels of poverty and exclusion, but also to the
pervasive authoritarianism and hierarchical organisation of Brazilian society.
Class, race, and gender differences have historically underpinned the social
classification that pervades our cultures by establishing each persons place
in the social hierarchy. Thus, for marginalised sectors, the political relevance
of cultural meanings that are embedded in social practices is part of their daily
life. As in most Latin American societies, to be poor means not only to experience economic or material deprivation, but also to submit to cultural rules
that convey a complete lack of recognition of poor people as subjects, bearers
of rights. In what Telles (1994) called the incivility embedded in that tradition, poverty is a sign of inferiority, a form of existence that makes it impossible for individuals to exercise their rights. The cultural deprivation imposed
by the absolute absence of rights which is essentially the denial of human
dignity finds its expression in material deprivation and political exclusion.
The perception of cultural social authoritarianism as a dimension of exclusion, in addition to economic inequality and political subordination, constituted a significant element in the struggle to redefine citizenship. First, it
made clear that the struggle for rights, for the right to have rights, had to be
a political struggle, thus enabling the urban popular movements to establish
the link between culture and politics which became embedded in their collective action. The experience of the Assemblia do Povo (Peoples Assembly) from
1979 to the early 1980s, a movement of favelados (shanty-town dwellers) in
Campinas in the state of So Paulo, illustrates this. Right from the start of their
struggle for the right to the use of the land, favelados knew that they would
have to struggle first for their very right to have rights. Thus, their first public
initiative was to ask the media to publicise the results of their own survey of
the favelas, in order to show the city that they were not idlers, misfits, or prostitutes, as they were assumed to be, but decent working citizens who therefore
should be seen as bearers of rights (Dagnino 1994b).
Making this connection made it possible to establish alliances with other
social movements such as ethnic, feminist, gay, ecological, and humanrights movements in seeking more egalitarian social relations and helping
to articulate a distinctive, enlarged view of democracy. Rights and citizenship
(Santos 1979) became the core of a common ethicalpolitical field in which
many of these movements and other sectors could share and reinforce each
others struggles. For instance, the emergence of the Sindicato Cidado (Citizen
Trade Unions) in the early 1990s shows that this vision penetrated even the
Brazilian labour movement (Rodrigues 1997), traditionally associated with a
more strictly class-based stance.
Secondly, the broader scope of citizenship went far beyond the formal legal
acquisition of a set of rights within the politicaljudicial system. Rather, it
represented a project for a new sociability: a more egalitarian way of organising
all social relations, new rules for living together in society (new ways to deal
with conflicts, and a new sense of a public order, of public responsibility, a
renewed social contract) and not only the incorporation into the political
system in the strict sense. More egalitarian social relations imply recognising
the other as having valid interests and rights, and the constitution of a public
domain in which rights determine the parameters for discussion, debate, and
the negotiation of conflicts, thus bringing in an ethical dimension to social
relations. Such a vision is profoundly unsettling for both the social authoritarianism that characterises Brazilian society and for more recent neo-liberal
discourses that elevate the importance of private interests at the expense of an
ethical dimension to social life (Telles 1994).
Thirdly, once rights are no longer limited to legal provisions, access to existing rights, or the implementation of formal rights, it is possible to include new
rights that emerge from specific struggles or campaigns. In this sense, the definition of rights and the assertion of something as a right become themselves
the objects of political struggle. The rights to autonomy over ones own body,
to environmental protection, or to housing, for instance, illustrate something
105
of the diversity of these new rights. The inclusion not only of the right to
equality, but also the right to difference, specifies, deepens, and broadens the
right to equality (Dagnino 1994a).
Fourthly, an additional element in this redefinition transcends a central
reference in the liberal concept of citizenship: the claim to access, inclusion,
membership, and belonging to an already given political system. What is really at stake in struggles for citizenship in Brazil is more than the right to be
included as a full member of society; it is the right to participate in the very
definition of that society and its political system, to define what we want to be
members of. The direct participation of civil society and social movements in
state decisions constitutes one of the most crucial aspects in the redefinition
of citizenship, because it conveys a potential for radical transformations in the
structure of power relations that characterise Latin American societies.
A further consequence of such a broadening in scope is that citizenship is
no longer confined to the relationship between the individual and the state,
but becomes a parameter for all social relations. This may be more evident
for social movements of women, blacks, or gays, for example, since such a
significant part of their struggles is concerned with fighting the discrimination and prejudice that they face in every aspect of daily life. The process of
building citizenship as the affirmation and recognition of rights was seen as a
way to transform deeply embedded social practices. Such a political strategy
implies moral and intellectual reform: a process of social learning, of building
new kinds of social relations in which citizens become active social subjects. It
also means that all members of society have to learn to live on different terms
with citizens who refuse to accept the social and cultural places previously
ascribed to them.
Social movements, whether organised around basic claims such as housing, water, sewage, education, and health care, or broader interests such as
those of women, blacks, or ecological movements, emphasised that citizenship meant the constitution of active social subjects who can thus become political actors. Some even defined citizenship as consisting of this very process.
Thus consciousness, agency, and the capacity to struggle are evidence of ones
citizenship, even if other rights are absent. Among 51 activists interviewed in
Campinas, So Paulo, in 1993, most members of popular movements and of
workers unions expressed this view. By contrast, answering the same question Why do you consider yourself a citizen? members of business organisations stressed the fact that they fulfil their duties and have rights, whereas the
middle-class activists highlighted their position in society, derived from their
professional activities, as indicators of citizenship. Interestingly, while a large
majority of these two sectors considered that they were treated as citizens, a
similar majority of those belonging to social movements and workers unions
expressed the opposite view (Dagnino 1998: 4041).
The role of the social movements of the 1970s and 1980s in shaping this
redefinition of citizenship is obviously rooted in their own struggles and practices. Although they drew on a history of rights that had given rise to regulated
citizenship (Santos 1979), they reacted against the conception of the state and
of power embedded in that history. They also reacted against the control and
tutelage of the political organisation of popular sectors by the state, political
parties, and politicians. Their conception of rights and citizenship embodied
a reaction against previous notions of rights as favours and/or objects of bargain with the powerful (as in the case of citizenship by concession, cidadania
concedida) (Sales 1994). In this sense, the struggle for rights, also influenced by
the 1970s human-rights movements against the military regime, encapsulated
not only claims for equality but the negation of a dominant political culture
deeply rooted in Brazilian society.
This notion of citizenship and the participation of civil society as a mechanism for its extension were formally recognised in the 1988 Constitution.
The Collor government, brought to power in 1989, began the move to neoliberalism, which reached its peak under Cardoso from 1994 to 2002, and
created what we have referred to as the perverse confluence between the two
political projects. Citizenship was once again redefined in neo-liberal terms,
in order to neutralise the meanings that the term had acquired in its use by
social movements while trying to retain its symbolic power.
Neo-liberal versions of citizenship

Some neo-liberal definitions of citizenship retrieve the traditional liberal conception, while others address new elements in the contemporary political and
social configurations in Latin America. First, the collective meaning given by
the social movements is reduced to a strictly individualistic understanding.
Second, neo-liberal discourses establish an alluring connection between citizenship and the market. To be a citizen is equated with individual integration
in the market, as a consumer and as a producer. This seems to be the basic
principle underlying the vast number of projects to enable people to acquire
citizenship: that is to say, to learn how to start up micro-enterprises, or how
to become qualified for the few jobs still available. As the state retreats from
its role as guarantor of rights, the market is offered as a surrogate for citizenship. Hence, social rights enshrined in the Brazilian Constitution since the
1940s and reaffirmed in 1988 are now being eliminated, on the grounds that
they impede the freedom of the market and therefore restrict economic development and modernisation. This rationale effectively casts bearers of rights/
citizens as unpatriotic, privileged enemies of political reforms intended to
shrink state responsibilities. Previously guaranteed rights to social services are
increasingly viewed as commodities to be purchased by those who can afford
them. This effectively turns the market into a surrogate for citizenship, the
incarnation of modernising virtues and the sole route for the Latin American
dream: inclusion in the First World.
A further aspect of neo-liberal versions of citizenship is in the formulation
of social policies on poverty and inequality. Many of the struggles organised
around the demand for equal rights and the extension of citizenship focused
107
on how such policies should be defined. The participation of social movements

and other sectors of civil society was a fundamental claim in the struggles
for citizenship, in the belief that this would contribute to social policies that
would ensure that all citizens enjoyed universal rights. With the rolling back
of the state, these social policies are increasingly formulated as emergency
responses for those whose very survival is at risk. The targets of these policies
are not seen as citizens who are entitled to rights but as needy (carentes) human beings requiring public or private charity. In the face of the gravity and
urgency of the situation, reinforced by cuts in social spending, many sectors
of civil society called upon to participate in the name of building citizenship
choose to subordinate their belief in the universality of rights and surrender to
the immediate practical possibility of helping a handful of the destitute.
The notion of a Third Sector (the others being the State and the Market)
as a surrogate for civil society is particularly expressive of this attempt to implement a minimalist politics and to collapse the public spaces for political
deliberation that had been opened up by the democratising struggles of previous decades (Avritzer 2002). The relationship between the state and NGOs
exemplifies this perverse confluence. Endowed with technical competence
and social insertion as reliable interlocutors in civil society, NGOs are frequently seen as the ideal partners to assume the responsibilities handed over
by the state to civil society or to the private sector (see also Alvarez 1999 for
the impact of this process in depoliticising feminist organisations in Brazil).
Parallel to this is the governments tendency to criminalise social movements
that remain combative and well organised, such as the Landless Movement
(MST) and some trade unions. Reinforced by the mass media and international aid agencies, there is a growing sense that civil society is synonymous
with NGOs, if not equated with the Third Sector. In this scheme of things,
civil society is thus reduced to those sectors whose behaviour is acceptable
to the government, or to what one analyst referred to as the five-star civil
society (Silva 2001).
Conclusion
This analysis has important consequences for the contested conceptions of
citizenship, such as the displacement of issues such as poverty and inequality: in being addressed solely as technical or philanthropic issues, poverty and
inequality are effectively withdrawn from the public (political) arena and so
from the proper domain of justice, equality, and citizenship, and reduced to a
problem of ensuring minimum conditions for survival.
Moreover, the solution to the problem of poverty and inequality is presented as an individual moral duty. The idea of a collective solidarity that underlies
the classical reference to rights and citizenship is being replaced by an understanding of solidarity as a strictly private moral responsibility. This is why
civil society is being urged to engage in voluntary and philanthropic work.
It is no coincidence that voluntary work is becoming the favourite hobby of
the Brazilian middle class. This understanding of citizenship also accords with
that held by corporate foundations. Seeking to maximise profits while also
nurturing a public image of social responsibility, these foundations also view
solidarity as a question of individual ethics, with no reference to universal
rights or to the political debate on the causes of poverty and inequality.
This re-signification of the notions of citizenship and solidarity block off
their political dimension and erode the sense of public responsibility and public interest that had been so hard-won in the democratising struggles of Brazils
recent past. As the targeted distribution of social services and benefits comes to
occupy the place formerly held by rights and citizenship, so the institutional
channels through which to claim rights are closed down; instead, distribution
depends only on the good will and competence of those involved. It becomes
increasingly difficult, therefore, even to formulate the notion of rights within
the public sphere (Telles 2001). The symbolic importance of rights as the cornerstone of an egalitarian society is thus being dismissed in favour of social
relations based on individualism.
A second set of consequences relates to the participation of civil society,
another central plank of the democratising project that has been re-signified.
While the neo-liberal project requires the participation of civil society, this
increasingly means that organisations of civil society take over the role of
the state in providing services. The effective sharing of decision-making power, i.e. the full exercise of citizenship as conceived by democratising forces,
takes place in most cases within the limits of a neo-liberal framework, with
decision-making power remaining the preserve of the strategic nucleus of
the state (Bresser-Pereira 1999). The political meaning of participation has
thus been reduced to management, and related concerns with efficiency and
client satisfaction have come to replace the political debate on inequality
and social justice.
The perverse confluence described here constitutes a minefield in which
sectors of civil society, including NGOs, that do not support the project of
the minimal state feel deceived when, motivated by the shared vocabulary of
citizenship, they get involved in initiatives with government sectors that are
committed to rolling back the state. Many of the social movements who participate in public spaces to formulate public policies share the same reaction.
Some of them define this situation as a dilemma, and several contemplate
rejecting altogether any further joint initiatives, or being extremely cautious
with respect to the correlation of forces within these initiatives and the concrete possibilities opened by them (Dagnino 2002).
Under an apparent homogeneity of discourse, what is at stake in these
spaces is the advancement or retreat of very different political projects and
conceptions of citizenship. Although the election in 2002 of Lus Incio Lula
da Silva of the Workers Party (PT) renewed hopes that the democratic participatory project would advance, his broad coalition government has not been
immune to the effects of the perverse confluence described in this chapter.
Ironically, since the PT itself emerged in the 1980s as a result of civil societys
109
struggles around the building of citizenship, the governments social policies

an increase in their number and scope notwithstanding are still largely following the same neo-liberal directions. Resolving the perverse confluence and
reaffirming a radical conception of citizenship is the difficult and urgent task
now facing social movements and democratic sectors of civil society.
Acknowledgement
This chapter draws on the authors earlier work We all have rights but:
contesting conceptions of citizenship in Brazil, in Naila Kabeer (ed.) Inclusive
Citizenship: Meanings and Expressions of Citizenship, London: Zed Books, 2005,
pp. 14763.
Notes
1.
Clearly, this state is only selectively minimal: it is minimal regarding

social policies towards the poor, but not with respect to the protection
of capitalist interests, as in the case of government efforts to save banks
from financial failure.
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About the author

Evelina Dagnino is a Professor of Political Science at the State University
of Campinas (Unicamp) in So Paulo and has been a Visiting Professor at
the Universities of Yale and Gteborg. She has published extensively on the
relations between culture and politics, social movements, civil society and
participation, and democracy and citizenship.
CHAPTER 10
Taking the power out of empowerment

an experiential account
Srilatha Batliwala
This chapter traces the centuries-long evolution of the concept and practice of
empowerment, its adoption by radical social movements, especially womens
movements from the 1970s onwards, and its conversion, by the late 1990s, into
a buzzword. Situating the analysis in the context of womens empowerment interventions in India, the chapter describes the dynamic of the depoliticisation and
subversion of a process that challenged the deepest structures of social power. The
downsizing and constriction of the concept within state policy, the de-funding of
genuine empowerment strategies on the ground, and the substitution of microfinance and political quotas for empowerment are examined and analysed.
Of all the buzzwords that have entered the development lexicon in the past 30
years, empowerment is probably the most widely used and abused. Like many
other important terms that were coined to represent a clearly political concept,
it has been mainstreamed in a manner that has virtually robbed it of its original meaning and strategic value. It is one of the best examples of what I have
elsewhere described as the
...distortion of good ideas and innovative practices as they are lifted
out of the political and historical context in which they evolved and
rendered into formulas that are mainstreamed. This usually involves
divesting the idea of its cultural specificity, its political content, and
generalizing it into a series of rituals and steps that simulate its original
elements, but lacking the transformative power of the real thing. Thus
good ideas evolved to address specific development challenges are
altered into universally applicable panaceas. Transferring the correct
rhetoric buzzwords and catch phrases emptied of their original meaning is a vital part of this legerdemain. (Batliwala 2007:89)
A brief history
Both the word itself and the concept of empowerment have a fascinating history.1 According to some recent research into the terms origins and meanings
(Gaventa 2002), it can be traced back as early as the Protestant Reformation in
Europe and it reverberates through the centuries in Europe and North America
through Quakerism, Jeffersonian democracy, early capitalism, and the black
power movement. The concept of empowerment, although expressed in
other linguistic equivalents, was embedded in many other historic struggles for
social justice: in my own state of Karnataka in southern India, for instance,
the twelfth-and thirteenth-century Veerashaiva movement against caste and
gender oppression called for the redistribution of power and access to spiritual
knowledge through the destruction of these forms of social stratification. But
the term became revitalised and acquired a strongly political meaning in the
latter half of the twentieth century, when it was adopted by the liberation
theology, popular education, black power, feminist and other movements engaged in struggles for more equitable, participatory, and democratic forms of
social change and development.
From these historically, politically, and geographically diverse locations,
empowerment was hijacked, in the 1990s, into increasingly bizarre locations, converted from a collective to an individualistic process, and skilfully
co-opted by conservative and even reactionary political ideologies in pursuit
of their agenda of divesting big government (for which read: the welfare
state) of its purported power and control by empowering communities to
look after their own affairs. Management gurus discovered empowerment
and infused it into the human-resource development and motivational practices of the corporate world, turning it to the service of profit making and
competitiveness in the market place. Thus the 1990s witnessed a widespread
co-option of the term by corporate management, neo-con political movements, and consumer-rights advocates.
Whats in a word?
Should we be troubled by what many may consider the inevitable subversion of an attractive term that can successfully traverse such diverse and even
ideologically opposed terrain? I believe we should, because it represents not
some innocent linguistic fad but a more serious and subterranean process of
challenging and subverting the politics that the term was created to symbolise. This political project is most clearly evident in the domain of womens
empowerment, and I shall use the subversion and de-politicisation of the term
within this context, particularly in my country India to demonstrate why
it is a matter of concern.
The concept of womens empowerment emerged from several important critiques and debates generated by the womens movement throughout the world
during the 1980s, when feminists, particularly in the Third World, were increasingly discontent with the largely apolitical and economistic WID, WAD, and
GAD models in prevailing development interventions. There was growing interaction between feminism and the concept and practice of popular education,
based on the conscientisation approach developed by Paulo Freire in Latin
America in the 1970s as part of his liberation theology. The latter, though
TAKING THE POWER OUT OF EMPOWERMENT
113
representing a powerful new framework that contested the more topdown,

paternalistic community development approach that had remained prevalent
until then, nevertheless ignored gender and the subordination of women as
a critical element of liberation. The re-discovery of Gramscis subalterns and
the hegemonic role of dominant ideologies, and the emergence of social construction theory and post-colonial theory were also important influences on
activists and nascent social movements at this time.
The interplay of these powerful new discourses led, by the mid-1980s, to
the spread of womens empowerment as a more political and transformatory
idea for struggles that challenged not only patriarchy, but also the mediating
structures of class, race, ethnicity and, in India, caste and religion which
determined the nature of womens position and condition in developing societies. By introducing a hitherto absent gender dimension to theories of conscientisation and popular education, by recognising women as part of Gramscis
subaltern classes, feminists incorporated gender subordination and the social
construction of gender as a fundamental category of analysis in the practice of
social change and development. Feminist movements in the Third World, but
particularly in Latin America and South Asia, evolved their own distinctive
approach, pushing consciousness-raising into the realm of radical organising
and movement building for gender equality. The influence of these discourses
had led to the widespread adoption of the empowerment concept in many
other development and social-justice arenas, such as education, health care,
rural development, and workers rights. By the beginning of the 1990s, empowerment held pride of place in development jargon. And though it was applied in a broad range of social-change processes, there is little doubt that the
term was most widely used with reference to women and gender equality.
It is not surprising, therefore, that empowerment if not the concepts
that informed it soon became a trendy and widely used buzzword. The
sharp political perspective from which it arose became diffused and diluted.
Development-assistance agencies (multilateral, bilateral, and private), eternally in search of sexier catchphrases and magic bullets that could somehow
fast-track the process of social transformation, took hold of the term and
began to use it to replace their earlier terminology of peoples participation
and womens development. The 1995 Fourth World Conference on Women
in Beijing played a critical role in introducing the e word to state actors,
and governments anxious to demonstrate a progressive approach to gender
quickly adopted the catchphrase of womens empowerment. For instance,
signatories to the Beijing Declaration stated that they would dedicate themselves to enhancing further the advancement and empowerment of women
all over the world ... (United Nations 1995: 7).
The most important point, however, is that all efforts to conceptualise the
term more clearly stressed that empowerment was a socio-political process, that
the critical operating concept within empowerment was power, and that empowerment was about shifts in political, social, and economic power between
and across both individuals and social groups.
How power left empowerment: the Indian experience

Let us now use the Indian case to demonstrate how the once powerful idea
and practice of womens empowerment degenerated into a set of largely apolitical, technocratic, and narrow interventions that create nothing like the
radical transformation envisaged by early womens movement leaders and
how it was brought to serve neo-liberal economic ends.
Borrowing from the usage of the term by feminist popular educators in
other parts of the world, empowerment entered the womens movement
lexicon in India by the mid-1980s. Almost at the same time, it replaced the earlier terminology of womens welfare, womens development, and womens
up-liftment in use by the government and major donor agencies supporting
work with marginalised women. In 1986, for instance, I co-designed a critical new programme template for the Department of Education, Ministry of
Human Resource Development, entitled Education for Womens Equality in
which the empowerment approach (roughly similar to feminist popular education methods) was strongly advocated. Thus, empowerment as a term entered
the gender-equality arena in India through distinctly different political routes:
those of feminists challenging patriarchal gender relations, of progressive government policy, and of aid agencies anxious to do something new. By the
beginning of the 1990s, therefore, everybody concerned with womens issues
and gender equality state actors, aid agencies, development professionals,
and feminist activists and advocates was using the term empowerment. But
in this latter-day development Babel, there was no clarity about what exactly
it meant to its various proponents, since the meanings that they attached to it
were seldom articulated in any clear or specific way. It was common, in those
days, to find the annual reports of NGOs or donor agencies talking about how
their objective was empowerment, but it was impossible to find a comprehensive definition of what it signified to them.
In an attempt to clear the conceptual and strategic cloud, I was invited, in
1992, to undertake an exercise of examining how empowerment was understood and operationalised across South Asia by grassroots womens and development organisations with a stated objective of womens empowerment. Through
a process of wide consultation and discussion with more than 25 organisations
across South Asia and a number of leading feminist activists, a (then) new conceptual and strategic framework was collectively and painstakingly developed
over the course of a year, and presented under the title Womens Empowerment in South Asia: Concepts and Practices (Batliwala 1993). At the time, this
document provided one of the first detailed conceptualisations of empowerment, constructed from the perception and practice of those consciously
engaged in the empowerment of women and in advancing gender equality. This
coincided with Naila Kabeers own research and her influential book Reversed
Realities, which reflected and greatly enhanced the framework in the South Asia
document (Kabeer 1994).
115
The South Asia document defined empowerment as a process, and the results of a process, of transforming the relations of power between individuals
and social groups. Since feminist activists were among the first to use this
word widely, it also had a specific gendered meaning: the transformation of
the relations of power between men and women, within and across social
categories of various kinds. The document defined empowerment as a process
that shifts social power in three critical ways: by challenging the ideologies
that justify social inequality (such as gender or caste), by changing prevailing
patterns of access to and control over economic, natural, and intellectual resources, and by transforming the institutions and structures that reinforce and
sustain existing power structures (such as the family, state, market, education,
and media). The document emphasised that transformatory empowerment
could not be achieved by tackling any one of these elements of social power
even at that early stage, its architects were clear that there was no one-shot
magic-bullet route to womens empowerment, such as providing women with
access to credit, enhanced incomes, or land titles. The framework stressed that
the ideological and institutional change dimensions were critical to sustaining
empowerment and real social transformation.
Through the 1980s and early 1990s, initiatives around the subcontinent,
and particularly in India, were engaged in a diverse range of experiments that
attempted to enact the process of empowerment on the ground with various
marginalised communities, but most often focused on poor rural and urban
women. These approaches tried to depart from past interventions that treated
women either as beneficiaries of services or as producers or workers. Instead
they adopted feminist popular-education strategies that created new spaces for
women to collectivise around shared experiences of poverty, exclusion, and
discrimination, critically analyse the structures and ideologies that sustained
and reinforced their oppression, and raise consciousness of their own sense of
subordination. These spaces and the activists working within them facilitated
women to recognise their own agency and power for change their power
to organise themselves to confront and transform the social and economic
arrangements and cultural systems that subjugated them. The main inputs in
these processes were new ideas and information, not hand-outs or services; an
opportunity for women to locate and articulate the changes that they wanted
to make, and evolve strategies to do so. Grassroots women in different corners
of the country, in cities, towns, and villages, were mobilised into sanghs or
samoohs2 through which they developed a political and personal agenda for
change, and the collective strength and creative power to move their agendas
forward.
These basic strategies found expression in a range of activities across the
country. Womens groups and grassroots womens collectives began to address
their unequal access to economic and natural resources, to education, health
services, to reproductive health and rights, aiming to change the gender
division of labour and access to training, technical skills, and employment.
Micro-credit programmes successfully shifted productive resources into poor
womens hands and they, in turn, were demonstrating how womens enhanced
incomes were applied to raise household nutrition levels and improve the
health and education status of their children. There were struggles to make
visible and redress the pervasive and diverse forms of violence against women
dowry-related violence and murders, rape, female infanticide and foeticide,
domestic violence, caste-based and communal violence that targeted women, and state-sanctioned violence. Major public campaigns were launched
for legislative reform and enforcement for special cells for women in police
stations, for greater representation of women in Panchayat Raj3 institutions,
for changes in the rape law that would shift the burden of proof from the
victim to the perpetrator, for banning or regulating sex-determination and
sex-selection technologies, and for more stringent punishment for dowry
harassment and domestic violence (see Kumar 1993).
Interestingly, during this entire phase, womens movements saw the state
as a critical enabler of the empowerment process, even if their stance was
adversarial. In turn, several arms of the Indian state and especially some
committed senior bureaucrats took the lead in supporting and launching
programmes that were built upon a transformative notion of empowerment,
providing space for the mobilisation and organisation of some of the countrys poorest and most oppressed women to challenge and change their social,
political, and economic conditions, even when this meant confronting other
sections of the state and its policies and programmes.4 This support was not
entirely altruistic, of course, but often sprang from an astute understanding
that these womens empowerment processes might better enable the administration to deliver its schemes and services, outperform other states and provinces in development indicators, and lower the poverty line.
Donor agencies quickly followed suit and abandoned their earlier WID,
WAD, and GAD approaches to adopt the empowerment framework as both
an objective and a methodology. While donors did not play a critical role in
India in defining or advancing the empowerment approach, they quickly promoted it among their development partners, and many NGOs and womens
development organisations were compelled to switch their language, if not
their strategies, to fit the new empowerment mantra. This was a huge factor,
along with government adoption of the term, in spreading the use of the
empowerment terminology and eventually rendering it into a meaningless
buzzword.
In retrospect, it is the early successes of the empowerment approach despite contemporary angst about how difficult it was to measure, or how it took
too long to demonstrate impact, and other anxieties that contributed inadvertently to its subsequent instrumentalisation, and its conversion into not
only a buzzword but a magic bullet for poverty alleviation and rapid economic
development, rather than a multi-faceted process of social transformation,
especially in the arena of gender equality. By the mid-1990s, India had enthusiastically embraced neoliberal economic policies, but it was also an electoral
democracy where the poor particularly the rural poor were the largest vote
117
banks, who routinely threw out regimes that failed their interests and needs.
Opening up rural markets and raising incomes of the poor was thus critical
to political survival. In Indias populist politics, empowerment was a natural
target for co-option by varying political players, most of whom were anxious
to limit its transformatory potential.
Consequently, ruling regimes and political parties of various hues rapidly
adopted and simultaneously constricted the concept and practice of womens
empowerment into two relatively narrow and politically manageable arenas:
(1) the so-called self-help womens groups (SHGs) which were meant to simulate the empowering nature of the sanghs and samoohs mentioned above,
but in reality engage in little else but savings and lending; and (2) reservations for women within local self-government bodies which are deemed to
lead to political empowerment. Both of these are described as womens empowerment approaches, although there is little evidence that either result
in sustained changes in womens position or condition within their families,
communities, or society at large. Indeed, there is a growing body of analysis
that argues that the empowering effects of these interventions are complex,
and that they can consolidate existing power hierarchies as well as create new
problems, including manipulation and co-option by dominant political interests, growing indebtedness, doubling and tripling of womens workloads, and
new forms of gendered violence (Cornwall and Goetz 2005: 783-800; Burra et
al. 2005; Fernando 2006). On the other hand, policies such as rural development, which have the widest sway, have determined that the goals of poverty
alleviation and empowerment will be achieved through self-help groups and
panchayats.5
Although virtually every government policy claims to support womens
empowerment, a deeper scrutiny of both policy and implementation strategies (available on the websites of every ministry concerned with poverty
eradication, marginalised social groups, women and girls) reveals that the
broad-based, multi-faceted, and radical consciousness-raising approaches
fostered in programmes like Mahila Samakhya in the 1980s and early 1990s
have more or less disappeared. Every departments narrow-bandwidth intervention, in the era of increasing divestment and privatisation, is packaged in
the language of empowerment. Indias rural development policy describes its
objectives as poverty alleviation and empowerment, claiming that these will
be achieved through the strategies of self-help groups and strengthening local governments, the twin sites of womens empowerment. The Education
Departments Womens Empowerment Project offers an even better example
of this downsized empowerment strategy:
Since the overall empowerment of women is crucially dependent on
economic empowerment, ... the main purpose of the Women Empowerment Project (WEP) is to organize women into effective Self Help
Groups.6
In the larger political arena, there has been an equally disturbing trend whereby the idea of womens empowerment has been distorted and co-opted into
the ideological frameworks of the religious fundamentalism that has become
deeply entrenched in Indian politics: the status of women in certain minority
groups, and their need for empowerment (in its vernacular equivalents), was
a key component of the Hindu nationalists ideological and political project, as
was the construction of the Hindu woman as the educated, equal, empowered
opposite despite the fact that they remain deeply hostile to the questioning
of the disempowerment and subjugation of millions of women with the spread
of particular regional and upper-caste Hindu practices such as dowry or female
foeticide through sex-selective abortions (Hassan 1998; and Sarkar 1998).
A requiem
In the new millennium, the once-ubiquitous term empowerment has virtually disappeared from the Indian development discourse, including in the
context of gender equality, except in a few niches of government policy.7 I
attribute this to several tendencies that began emerging in the late 1990s:
the overwhelming sway of the micro-credit model and SHGs as substitutes
for the more comprehensive empowerment processes of early feminist activism; the displacement of empowerment by the emergence of the rights-based
approach within critiques and counters to neo-liberal reductionist and instrumentalist strategies for economic development and social justice; and the
management-influenced results-based approach that has been adopted by a
large number of development-assistance programmes and donors, including
those that had remained steadfastly opposed to fast-track strategies.
With donors increasingly abandoning empowerment as a no-longer-fashionable indeed practical methodology, and enthusiastically championing
(with a few exceptions) large-scale micro-finance programmes as the quickest
route to womens empowerment (and overall economic development!), the
old feminist concept and practice of empowerment have been interred without ceremony. Grassroots practitioners and movements find that they can no
longer raise funds with the language and strategies of empowerment, or that
they must disguise these within au courant frameworks or rhetoric (such as
rights, micro-finance, transparency, accountability, and so forth). Some donors have moved resources out of broader-based empowerment approaches,
because they dont show countable results and/or because empowerment
doesnt work fast enough.
Because the process and its effects and impacts was so shaped by the
interests and contexts of those engaged in it, and hence less predictable in its
outcomes, the empowerment approach is not sufficiently results-oriented,
an important priority in current development funding. In such agencies, the
rights-based approach (as though empowerment is about anything but rights!)
finds greater favour, because rights-based interventions greater access to redress, achievements of the Millennium Development Goals, new legislation
119
are more readily quantified. But these approaches often shift agency into the
hands of professional intermediaries (lawyers, NGO activists, policy specialists) and away from marginalised women and communities. They also focus
on formal structures and equality, rather than on the informal institutions
and cultural systems that older empowerment processes attempted to transform (though not always successfully).
Meanwhile, in keeping with the insidious dominance of the neo-liberal
ideology and its consumerist core, we see the transition of empowerment out
of the realm of societal and systemic change and into the individual domain
from a noun signifying shifts in social power to a verb signalling individual
power, achievement, status. Empower yourself screamed a billboard advertisement for jobs in yet another IT company in Bangalore, my home town, last
year. Ironically, the permeation of the concept into corporate management
practices reflected some of the principles that infused it in the world of social
change: reducing hierarchy, decentralisation, greater decision-making power
and autonomy for managers on the ground all essential to efficiency and
competitiveness in the era of global corporations (Morris and Willocks 1995;
Cook and Macaulay 1996). But this journey out of social struggles and into
management practice is deeply disturbing: can the empowerment of the local
manager of a multinational corporation achieve the same social good as the
struggles of impoverished Dalit women with whom I have worked to claim
the right to burn their dead in the upper-caste cremation ground or have their
children seated in the classroom with caste-Hindu classmates, or the efforts of
indigenous women to regain their traditional rights to forest produce, or the
campaigns of pavement dwellers to secure housing in Indias burgeoning metros? Would these women equate their experience to that of the manager who
is advised to hold an exercise on Friday afternoon, with the advice to Present
a daft award for the best bit of empowerment, the most empowered person of
the day (Morris and Willcocks 1995:77, quoted in Gaventa 2002)?
Postscript
I called this chapter an experiential account, because I did not want to pretend
to be presenting an exhaustive, thoroughly researched analysis of the buzzword empowerment and also because I was an unapologetic champion of
the powerful and transformatory concepts and practices that it represented at
the height of feminist grassroots organising in another India. But today, I ask
myself a simple question: if this word, and the idea that it represented, has
been seized and re-defined by populist politics, fundamentalist and neo-con
ideologies, and corporate management, if it has been downsized by microfinance and quota evangelists, and otherwise generally divested of all vestiges
of power and politics, is it worth reclaiming? These very processes signal the
vagueness and lack of political accuracy that its critics always highlighted.
They also warn us that the subversion of powerful political techniques that
organise the marginalised will always first occur through the co-option and
distortion of its language.
Clearly, we need to build a new language in which to frame our vision
and strategies for social transformation at the local, national, or global level.
I for one intend to do so not by re-reading Foucault or Gramsci or other great
political philosophers, but by listening to poor women and their movements,
listening to their values, principles, articulations, and actions, and by trying to
hear how they frame their search for justice. From this, I suspect, will emerge
not only a new discourse, but also new concepts and strategies that have not
yet entered our political or philosophical imaginations.
Notes
1.
2.
3.
4.
5.
6.
7.
I am deeply indebted to John Gaventa (2002) for his masterly overview of

the origins, meanings, and usages of empowerment.
Several sections of this chapter also borrow heavily from my chapter
Womens empowerment in 21st century India changing meanings, contexts and strategies, in Shiva Kumar and Rajani Ved (eds.), The Wellbeing
of Indias Population, forthcoming.
Sanghs and Samoohs are local terms for collectives or informal organisations.
The structures of local self-government at the village and provincial level
based on a pre-colonial Indian units of local government that existed in
some parts of the country.
See section on Rural Development in http://india.gov.in/sectors/
ruraldev1.php, retrieved 6 February 2006.
See http://india.gov.in/outerwin.htm?id=http://education.nic.in/ (retrieved
6 February 2006).
The Womens Development Programme in Rajasthan, the Mahila
Samakhya Programme in several states of the country, are the earliest
examples of this.
References
ASPBAE/FAO (1993) Womens Empowerment in South Asia: Concepts and Practices, New Delhi: ASPBAE (Asia South Pacific Bureau of Adult Education).
Batliwala, Srilatha (2007) When rights go wrong, Seminar 569: 8994.
Burra, Neera, Joy Deshmukh-Ranadive, and K. Murthy, Ranjani (eds.) (2005)
Micro-Credit, Poverty and Empowerment: Linking the Triad, New Delhi: Sage.
Cook, Sarah and Steve Macaulay (1996) Perfect Empowerment: All you need to get
it right first time, Arrow: London, quoted in Gaventa 2002.
Cornwall, Andrea, and Anne Marie Goetz (2005) Democratizing democracy:
feminist perspectives, Democratization 12(5): 783800.
Fernando, Jude L. (2006) Microfinance: Perils and Prospects, London: Routledge.
Gaventa, John (2002) Empowerment: A Briefing Note, unpublished monograph, Brighton: Institute of Development Studies.
121
Government of India, Ministry of Human Resource Development, Dept of Education, 2006, http://india.gov.in/outerwin.htm?id=http://education.nic.in/,
retrieved February 2006.
Hassan, Zoya (1998) Gender politics, legal reform, and the Muslim community in India, in Patricia Jeffery and Amrita Basu (eds.), Appropriating
Gender: Womens Agency, the State, and Politicized Religion in South Asia,
London: Routledge.
Kabeer, Naila (1994) Reversed Realities Gender Hierarchies in Development
Thought, London: Verso.
Kumar, Radha (1993) The History of Doing An Illustrated Account of Movements
for Womens Rights and Feminism in India, 18001990, New Delhi: Kali for
Women.
Morris, Steve and Graham Willcocks (1995) Successful Empowerment in a Week,
London: Hodder & Stoughton for the Institute of Management.
Sarkar, Tanika (1998) Woman, community and nation a historical trajectory for Hindu identity politics, in Patricia Jeffery and Amrita Basu (eds.),
Appropriating Gender: Womens Agency, the State, and Politicized Religion in
South Asia, London: Routledge.
United Nations (1995) Beijing Platform for Action, Annexe 1, para 7, www.
un.org/esa/gopher-data/conf/fwcw/off/a20.en/, retrieved 12 February 2006.
About the author

Srilatha Batliwala is a Civil Society Research Fellow at the Hauser Center
for Nonprofit Organizations at Harvard University, but is based in her home
city of Bangalore. She is widely known for her work on gender equality and
womens empowerment.
CHAPTER 11
Social capital
Ben Fine
In parallel with, and as a complement to, globalisation, social capital has enjoyed a meteoric rise across the social sciences over the last two decades. Not
surprisingly, it has been particularly prominent across development studies, not
least through heavy promotion by the World Bank. As a concept, though, as has
been argued persistently by a minority critical literature, social capital is fundamentally flawed. Although capable of addressing almost anything designated as
social, it has tended to neglect the state, class, power, and conflict. As a buzzword,
it has heavily constrained the currently progressive departure from the extremes of
neo-liberalism and post-modernism at a time of extremely aggressive assault by
economics imperialism. Social capital should not be ignored but contested and
rejected.
Introduction
Social capital as a concept rose to prominence during the 1990s, towards the
latter half as far as development is concerned. Although before then it had
scarcely warranted a mention1, its leading proponent, Robert Putnam, was
acknowledged in the 1990s to be the single most cited author across the social
sciences. As a word, or two, social capital had certainly raised a buzz. What,
how, and why is the subject of this contribution.
This chapter is written from a highly personal point of view: I was heavily
involved, if critically, with social capital from an early stage, and have disseminated my views in a number of publications. I draw on my own writings
extensively in this piece, along with an anecdote or two that might shed some
light on the source and nature of buzzwording. Throughout, I assume at least
a passing knowledge of what social capital is or is about although, as will
become clear, it has far exceeded its initial popularisation as Its not what you
know, its who you know that counts.2
In the next section, I offer a short account of the key features of social capital as it has come to be deployed across the social sciences. This is followed
by a discussion of its role within development studies, and how it came to
acquire it. The final section offers some more general commentary on social
capital as buzzword.
Social capital is as social capital does

My own interest in social capital arose accidentally, although it was possibly
an accident waiting to happen. In the mid-1990s, I had begun to study the
relationship between economics and the other social sciences. I had become
convinced, initially on casual but soon to be cumulative evidence, that economics imperialism (or colonisation of the subject matter of other social sciences) had entered a new, aggressive, wide-ranging, and yet more palatable
and successful phase. Consequently, I was understandably intrigued to find
that two individuals at the opposite extremes of social science, Pierre Bourdieu
and Gary Becker, were both using the term social capital: not least because
Becker was and remains the leading practitioner of an economics imperialism of an older, longer-standing kind. Beckers form of economics treats all
economic and social phenomena as if they could be reduced to optimising
individuals interacting as far as possible as if a market were present. His socalled economic approach to social science has obvious affinities to rational choice, differing only in subject matter (and knowledge of non-economic
literature).3
From the simple question of how the two Bs could be deploying the same
concept, I became embroiled in the meteoric rise of social capital across the
social sciences. My investigation bordered on the obsessive as I meticulously
sought out literature on social capital, ultimately culminating in the writing
of a book (Fine 2001). Since then I have limited myself to a watching brief,
complemented by the occasional assault, with the intention of renewing my
obsession at a later date to assess once more where social capital has got and
where it is going.4 My conclusions, and continuing perspective, on social capital have moved far beyond the two Bs conundrum. In retrospect, it is obvious
that social capital has become a buzzword. As such, it has reflected individual
and collective degradation of scholarship. And it is this that needed to be
addressed.
This is a powerful indictment. It can be justified by laying out the key
features of social capital. First, collectively, users of the concept have developed a gargantuan appetite in terms of what it is, what it does, and how it
is understood. Almost any form of social interaction has the potential to be
understood as social capital. As a positive resource, it is presumed to have the
capacity to facilitate almost any outcome in any walk of life, and to be liquid
or fluid across them to a greater or lesser extent. And it is equally adaptable
across subject matter, disciplines, methods, and techniques, at least within
the social sciences. In short, in principle, and to a large (if selective) degree in
practice, social capital can be anything you like.
Second, this imparts to users of the concept of social capital the property of
being able to reinterpret all previous social science through its prism. Hence,
social capital has been presumed to be a more general approach than that individually attached to notions such as networks, trust, linkages, and so on.
Through its prism, however, these concepts and their lineage lose their force.
SOCIAL CAPITAL
125
Social capital is equally at home as a residual or complementary category, explaining what was previously inexplicable in its absence. Thus, for example,
social inclusion might be a form of social capital, it might be explained by social
capital, or it might reinforce the effects of social capital (with social exclusion as
the corresponding dark side). Inevitably, though, the social-capital prism filters
out more light than it lets through, in drawing simplistically upon basic categories of social analysis, stripped of their rich traditions and contested meanings.
Third, social capital is an oxymoron. It presumes that there can be a capital that is not social. It is rarely made explicit what this asocial capital is, where
the boundary lies between it and social capital, and what role is played by
that other capital in itself and as complement to, or constraint upon, its alter
ego. Social capital might be the counterpart to economic capital (asocial?), the
state, or even personal capital. In what respect it is social and/or capital, and
hence distinctive as such, is under-explored.
Fourth, as a result, the economy, and economic theory, tend to remain
unexamined in the context of social capital. There is some loosely formulated
presumption that markets cannot work at all or cannot work perfectly in the
absence of social capital. This opens the potential for (more) social capital to
enhance the working of the market, just as it enriches non-economic behaviour and outcomes through collectivity.
Fifth, social capital offers a highly attractive analytical fix for economics,
as a residual theoretical and empirical factor. Differences in economic performance had traditionally been seen as the consequence of different quantities of capital and labour. The former had been refined to various types, such
as physical, financial, environmental, and human capital. Social capital, for
economists in their own limited departure from neo-liberalism, could be added to capture anything else that might contribute to performance, with the
non-market such as social capital understood as the path-dependent response
to market imperfections.
Sixth, despite its wide scope of definition in principle, social capital in practice has exhibited a number of taboo aspects, despite these being at the core of
social interaction. Generalising over such an extensive literature is dangerous,
but omissions (apart from the economy other than as something given but to
be enhanced), despite being significant elements in social interaction, include
class, the state, trade unions, and political parties and organisations.5 And, by
the same token, co-operation and collectivity have been emphasised at the
almost absolute expense of power and conflict.
Seventh, the policy perspective induced by uses of the concept of social
capital, although never put in these terms, is self-help raised to the level of
the collective. However good or bad things might be, they could be better if
people interacted more, trusted one another, and co-operated. Social capital
offers the golden opportunity of improving the status quo without challenging
it. Everything from educational outcomes through crime prevention to better
psychological health can be improved if neighbours and communities would
only pull together and trust one another.
Eighth, Bourdieu is acknowledged to have been an early purveyor of social

capital, and he placed considerable emphasis on both its class dimensions
and its contextual content. He offered a much deeper understanding of social
capital than what has followed, but also a narrower definition, as he distinguished it from cultural and symbolic (and economic) capital. These differences have been lost in subsequent literature by subsuming the symbolic and
the cultural into the social, while equally dropping the class and contextual
content for universal notions of any collectivity across time, place, and application. In place of Bourdieu, the rational choice or individualistic foundations
of other renditions of the concept of social capital, drawing on the influence
of the rational-choice sociologist James Coleman, have come to the fore.6 The
most recent literature has begun to bring Bourdieu and context back in and
to stand aloof from rational choice. Yet this renders the concept different in
every application, so that transposability between case studies and analytical
categories relies upon a leap of faith. In this respect, social capital is treated as
if it were capital in money form, along with presumptions of fluidity between
its various components and effects (something of which Bourdieu himself was
guilty).
Ninth, precisely because of its amorphous, all-encompassing nature, social
capital is an ideal category, for want of a more tempered term, for the hack
academic (hackademic?). Apart from a focus for conferences and researchgrant applications, it has given rise to a typical article X and Social Capital. So, whatever has been done before can be done again, with social capital
serving as anything from organising theme to tangential by-line. In this respect,
at least, there are parallels with the ubiquity of studies of X and Globalisation.
Tenth, purveyors of social capital have exhibited a capacity to absorb criticism by continuing to move forward. Opposition is readily perceived as seeking
the addition of an otherwise missing variable or method, so that the remedy
is to incorporate what is otherwise absent. Where criticism is offensive to the
core values of social capital, it is usually simply ignored, especially in relation
to the points already elaborated. This is so much so that those contributions
that do acknowledge criticism do so selectively for the purpose of supporting
their own particular contributions.
Personally, I have found this so frustrating that I began to preface the frequent seminars that I have given on social capital with the explicit challenge
to the audience that they indicate where I am wrong or where there is disagreement. This has rarely solicited a public response. But in private, individuals say they agree with me but were going to use social capital anyway
as a means to further their own contributions (which would, nonetheless,
make correctives in the light of my criticisms). And, it would be claimed, at
least economists are being civilised by bringing non-economic factors into
their considerations. For the latter, however, the problem is less a matter of
persuading economists to be civilised by continuing their colonisation of the
other social sciences and more one of constituting an alternative economics.
In short, social capital has created a cordon sanitaire around itself, through
SOCIAL CAPITAL
127
which criticism is ignored, incorporated, or even serves as a sort of repressive

tolerance, legitimising the idea through acknowledging opposition. In place
of the global, the economic, class, the state, conflict, gender, power and so on,
social capital offers a bland alternative, highly conciliatory in principle and
practice, with more humanely presented forms of neo-liberalism, with token
incorporation on narrower terms of other buzzwords such as empowerment and
participation.
Eleventh, as should be apparent, irrespective of other criticisms, social
capital has become definitionally chaotic, as it is imbued with so many different variables, approaches, and applications. Again, this has frequently been
acknowledged in the literature, only for another definition or approach to
be adopted, compounding rather than resolving the collective conceptual
chaos (the social capital of social capital!).There is a significant, if heavily
outweighed, literature that is critical of social capital and, almost certainly,
a body of social scientists who will have nothing to do with it because of its
conceptual chaos and incoherence. Yet this aversion to social capital inhabits
a parallel universe with limited dialogue with, or response from, the purveyors
of social capital.
Last, social capital thrived in the particular intellectual context peculiar to
the 1990s, in which there was a reaction against the extremes both of neoliberalism and post-modernism. Like its counterpart, globalisation, but as its
complement and opposite in many respects, purveyors of social capital have
rejected the belief that markets work perfectly and have embraced the idea
of getting real about how people go about their (daily) lives. The global,
though, is notable for its absence from the world of social capital; it is more
about communities accepting the world as it is and bettering themselves on
this basis as a form of participation and empowerment.7 Thus, and further,
the dark side of social capital, as in corruption and community or racist violence for example, is often acknowledged only to be ignored. Even so, the
World Banks use of social capital has tended not even to acknowledge criticism, but see below.
Social capital and development

In view of the above, it is hardly surprising that development and social capital should be brought together. But the prominence of social capital within
development has been considerably strengthened by its heavy promotion
from an early stage by the World Bank. Why should this have been so?
In many respects, social capital offered, alongside other complementary
buzzwords like participation and empowerment, the dream concept for the
challenges faced by the World Bank in the 1990s. The decade had brought a
crisis of its (and the IMFs) legitimacy, with mounting criticism of the neoliberal policies attached to loans. The Comprehensive Development Framework (CDF) and post-Washington Consensus (PWC) were designed to restore
that legitimacy (Fine et al. 2001). The rejection of the Washington Consensus
at the rhetorical level was evident. This was even carried through in scholarship to some extent, even if not immediately, for example in the case of privatisation. Yet it is arguable whether these shifts had any impact on policy itself,
as an even wider range of market-supporting interventions than under the
Washington Consensus became legitimised through a rationale of correcting
market and non-market interventions.
These shifts also reflected changes underway within the discipline of economics in general and development economics in particular (Jomo and Fine
2006). The old informal, classical development economics had long given
way to the new, with its emphasis on mathematical techniques, econometrics, the virtues of the market, and the corresponding need not to distort it
through rent-seeking, corruption, and the like. But, in its reaction against neoliberalism, mainstream economics had begun to emphasise the importance
of market imperfections and the need to correct them through non-market
mechanisms. This has fed through into what I have termed the newer development economics, with the PWC to the fore.
In one major respect, the CDF and PWC exhibit a marked difference from
earlier ideologies emanating from the World Bank. Although completely
different, the Keynesian/welfarism/modernisation stance of the McNamara
period and the neo-liberalism of the Washington Consensus had their own
relatively simple message on how to achieve development. In contrast, the
PWC emphasises that the incidence of market and non-market imperfections is uneven and contingent in form, extent, and consequences, so that
not one model fits all, and so on, and everything is micro. Social capital is at
its core the negative mirror-image of rent-seeking, etc., with the same analytical framework but diametrically opposed conclusions that non-market
influences can be beneficial (rather than detrimental) to the market. As such,
it incorporates the non-economic in a way that is consistent with the (non-)
market imperfections approach and is sensitive in principle to difference
from one application to another. I hasten to add that this does not necessarily make a policy difference; rather, it simply offers richer scope in justifying
policy. After all, there are limits to using neo-liberalism as the rationale for
substantial intervention.
In short, social capital offered considerable leverage in the World Banks
dealings with the external world. In addition, it allowed for certain internal
institutional interests to be promoted. The World Bank is dominated by economists, numerically and intellectually, and of the worst type from the perspective of the social scientists under the shadow of the Washington Consensus.
The CDF and PWC offered some opportunity for non-economists to be taken
seriously. Social capital was strategically chosen as a judicious concept for that
purpose. In a paper that is unusual for its information and honesty over the
internal workings of the World Bank (Bebbington et al. 2004), all this is revealed: from Putnams initial invitation to be involved, through the attempts
to engage (successful), but not to be dominated by (unsuccessful) the economists. Not surprisingly, this is not entirely the take of the papers authors.
SOCIAL CAPITAL
129
Rather, they see themselves as the heroes, unrecognised, strategically compromising and so reviled, of a hidden internal battle to civilise the World Banks
economists, and so bring the progressively social to the intellectual and policy
practices of the World Bank (Fine 2007b) for response.
In this respect, for them, criticism of social capital has missed the point
of its inner significance in shifting the Banks thinking and hence policy. Of
course, this leaves aside both the other influences on the thinking and practice of the World Bank and the broader impact of the promotion of social
capital in development thinking and practice elsewhere. Essentially, at least
in retrospective self-justification, these authors are asking us to devolve our
intellectual responsibilities to them, in order that they can promote their own
positions within the World Bank around a concept that they themselves admit to be flawed. The parallels with the never mind the arguments, just do
it stance on privatisation are striking. And they are ironic. For whatever the
impact of social capital on the design and implementation of particular World
Bank projects, the strategy of the organisation in practice has been to shift as
much of its finance as possible from the public to the private sector. This is
so despite a World Bank rethink on privatisation, adjudging it to have been
previously too premature a gamble (Bayliss and Fine 2007).
Polemics aside, the account of Bebbington et al. (2004) is a striking illustration of how strategic thinking within the World Bank is forced, individually
and institutionally, to conform to its shifting needs and practices, and how
limited is the scope to buck its requirements. Such is the case on a grander
scale for the resignations of Joseph Stiglitz, Ravi Kanbur, and others. But where
professional recruitment and careerism prove insufficient to serve the World
Banks scholarship, rhetoric, and policy, the delusion of internal influence and
reform incorporates those who offer a little more by way of free thinking and
altruistic motivation. This is not to say that the scholarship, rhetoric, and
policy of the World Bank are pre-determined in and of themselves and in relation to one another. But they are embedded, to coin a phrase, in an institution
and its practices that are heavily constrained and can be perverse in attaching
intentions to outcomes. The reduction of the impact of social capital to the
activities of a few scholars within the World Bank is at best partial and at worst
misleading.
Given my own interest in social capital for other reasons, I was alert to its
importance for the World Bank from an early stage. I dredged through the
Banks dedicated website, http://worldbank.org/poverty/scapital, and initially
exaggerated its importance as a way of circumventing the idea of the developmental state as an alternative to the Washington Consensus (Fine 1999b),
although that the PWC would circumvent the developmental state proved
correct. But my efforts did prompt a mole within the World Bank to contact
me with three gems of wisdom in terms of the reaction that I was likely to
receive to my criticisms. First, I would be asked to back off, as the World Bank
was changing for the good. Second, none of my criticisms would be addressed.
And, third, I would be offered a job of sorts, to internalise and incorporate

criticism.
I am sorry to say, even moles can get it wrong, and the last of these responses never materialised. Only on one occasion, the exception that proves
the rule, has there been any serious attempt to engage in discussion with me.
This was a seminar organised jointly by the London School of Economics
and the Overseas Development Institute, specifically to provoke debate, and
with Michael Woolcock as opponent.8 To my astonishment, he insisted as precondition for participation that I provide him with three questions to answer,
and he would reciprocate. I offered the following:
1.
2.
3.
Discuss critically the relationship between social capital and

globalisation.
Assess critically what is the social capital of the World Bank and other
IFIs.
Discuss critically what social capital understands as, and adds to the
understanding of, development; with what economic analyses it is
consistent; and how it understands non-social, especially economic,
capital, and capitalism.
These questions were indicative of a wish to explore the relationship between social capital and globalisation, economic development, and the practices of the World Bank itself. I do not have a record of Woolcocks questions,
but one was to ask what I would say to a South African nurse asking me
how I would deal with HIV/AIDS,9 and another was why I did not publish
in respectable journals. The latter is ironic in view of the knowledge Banks
total exclusion of my work from its social-capital website (including its extensive annotated bibliography) and from its overall website altogether (other
than once for a legitimising exercise10). In the event, while I did answer his
questions, he totally ignored mine, preferring to offer a tangential discourse
on some obscure management framework before departing to survey the implementation of the World Banks social-capital toolkit household survey for
Albania. With social-capital surveys having been widely adopted across developed and developing countries, whatever the intentions of the World Banks
social capitalists in moving internal dialogue and practice, the external impact
has been considerable in this respect at least.11
Deconstructing the buzz

In discussing consumer culture, I have argued that it can be characterised by
six Cs (Fine 2002b; 2005). While I hesitate to extrapolate from consumer culture to buzzwords, doing so does offer some insight. The first C is constructed.
Social capital has been constructed through a combination of academic and,
to a much lesser extent, developmental practices that have mutually reinforced one another but to the exclusion of others, especially where critical
(myself) or inconvenient (Bourdieu, power, class, state, etc.).
SOCIAL CAPITAL
131
Second, social capital is contextual, like all concepts, in the more general
sense of itself being a specific product of the material and intellectual circumstances that mark the turn of the millennium. This aspect of social capital is
brought out by Putnams foisting it, as an afterthought, upon his study of regional disparities in Italy from the twelfth century onwards. He then exports it
to the twentieth-century USA as the way to understand the decline of bowling
clubs and the rise of television prior to finding an entre into the World Bank.
Todays context allows this to happen, and for social capital to be accepted
and promoted as a legitimate and legitimised concept. It is the contemporary
phlogiston of social theory.
Third, social capital is chaotic, not least in its multifarious uses and meanings. Far from this resulting in its dismissal from the intellectual arena, this
appears to have promoted its use. It has been subject to hundreds of measures,
or elements that make up a measure, so much so that it has been felt necessary to re-aggregate into intermediate categories such as linking, bonding, and
bridging. These all mutually contradict one another across traditional social
variables (such as class, gender, ethnicity), quite apart from the conundrum of
its perverse, dark, or negative side (mafia and the like).
Fourth, social capital is construed, that is it is not simply passively received
as a well-defined and given concept but is reinterpreted and worked upon
by those who engage with it. One aspect of that reworking, for example, has
been to disassociate social capital both from Bourdieu (too radical) and from
Coleman (too reactionary), unless one or other of these is the intent.
Fifth, social capital is the product of contradictory pressures, as it seeks
to accommodate both material and intellectual developments. How can the
World Bank legitimise itself while pretty much continuing business as usual? How can the economy be ignored when we are deploying social capital?
And how can we set aside power and conflict when we are addressing social
capital?
Last, then, social capital is contested, or subject to conflict over its meaning.
Among social capitalists themselves, this is resolved through chaotic compromise. Otherwise, contestation takes the form of exposing and rejecting social
capital for its sore conceptual inadequacies and corresponding consequences
for practice. Social capital has in part risen to prominence because it has been
allowed to do so by those who have not engaged critically with it. One index
of this is that my polemic in Antipode, according to its editors, has been one
of its most accessed pieces (Fine 2002c). I suspect that this reflects its racy
title, the prominence of social capital, and silent but unengaged opposition
to it. By contrast, while globalisation has been shown to be equally flawed
as a conceptual panacea, it has been universally addressed by its critics and
won away, not only from neo-liberalism but also from the intellectual Third
Wayism characteristic of social capital.
The current intellectual scene is marked by the demise within academia of
the extremes of (attention to) neo-liberalism and post-modernism, and by the
coincidental rise of economics imperialism in the form of market and non-
market imperfections as universal explananda. The consequence is that the

content and dynamic within and between disciplines is extremely open, and
to be determined by the integrity and values that scholars bring to their scholarship. Much the same applies to the more general influence of scholarship on
development thinking and practice. In this light, the point is not so much to
deplore the six Cs and how they characterise social capital, as they must bear
on any concept, whether buzzword or not. Rather, social capital has a content
and dynamic that severely constrain progressive developmental thinking. It
must be more heavily contested, but through argued rejection, in terms of its
own inner weaknesses as well as its strategic consequences irrespective of the
odd individual or case-study advantage that might appear to accrue.
Acknowledgement
Thanks to the editors for comments on an earlier draft.
Notes
1.
For debate about the (absence of) history of social capital, see Fine (2007a)
and Farr (2004, 2007). The latters response, to the effect that there is a
history, reports six million items for social capital on an Internet search.
Yet his own history is more or less forcibly confined to a single source,
John Dewey, with a few other bit players.
2. Key texts include Harriss (2001), Smith and Kulynych (2002), and Bebbington et al. (2004). See also Fabio Sabatinis website www.socialcapitalgateway.
org/. For my own works, and more general context of economics imperialism, see www.soas.ac.uk/departments/departmentinfo.cfm?navid490
3. On Becker and Bourdieu, see Fine (1999a). For a fuller account of economics imperialism, see Fine and Milonakis (2007).
4. See especially Fine (2002a, 2003).
5. Although there is a healthy literature on social capital and political
activity as such.
6. Note that Coleman as individual tends to be acknowledged more than his
rational choice approach, explicit reference to which would deter many
punters.
7. See Moore (2001) for a more general critique of incorporation of such notions in anaesthetised forms.
8. Given the excellent Woolcock (1998), it seems that the moles condition
three is operative on occasion.
9. I cannot resist pointing to the answer that might have been given by a
World Bank lead economist, Bonnel (2000: 849), who, in discussing social capital, argues that Reversing the spread of the HIV/ AIDS epidemics
and mitigating its impact require three sets of measures: (1) sound macroeconomic policies; (2) structural policy reform; and (3) modifying further
the systems of incentives faced by individuals.
10. See Foreword to Fine (2004).
SOCIAL CAPITAL
133
11. Note, though, that Bebbington et al. do at least reference (and essentially
accept) my criticisms of social capital (other than strategically), but in the
context of its having served its purpose within the Bank, which can now,
with its civilised economists, move on to issues of empowerment and the
like. The mind boggles.
References
Arestis, P. and M. Sawyer (eds.) (2004) The Rise of the Market, Camberley:
Edward Elgar.
Bayliss, K. and B. Fine (eds.) (2007) Privatization and Alternative Public Sector
Reform in Sub-Saharan Africa: Delivering on Electricity and Water, Basingstoke:
Palgrave Macmillan.
Bebbington, A., S. Guggenheim, E. Olson and M. Woolcock (2004) Grounding
discourse in practice: exploring social capital debates at the World Bank,
Journal of Development Studies 40(5): 3364.
Bonnel, R. (2000) HIV/AIDS and economic growth: a global perspective,
South African Journal of Economics 68(5): 82055.
Farr, J. (2004) Social capital: a conceptual history, Political Theory 32: 633.
Farr, J. (2007) In search of social capital, Political Theory.
Fine, B. (1999a) From Becker to Bourdieu: economics confronts the social sciences, International Papers in Political Economy 5(3): 143, reproduced with
afterword in Arestis and Sawyer (eds.) (2004).
Fine, B. (1999b) The developmental state is dead long live social capital?,
Development and Change 30(1): 119.
Fine, B. (2001) Social Capital versus Social Theory: Political Economy and Social
Science at the Turn of the Millennium, London: Routledge.
Fine, B. (2002a) It aint social, it aint capital and it aint Africa, Studia
Africana No. 3: 1833.
Fine, B. (2002b) The World of Consumption: The Material and Cultural Revisited,
London: Routledge.
Fine, B. (2002c) They f**k you up those social capitalists, Antipode 34(4):
79699.
Fine, B. (2003) Social capital: the World Banks fungible friend, Journal of
Agrarian Change 3(4): 586603.
Fine, B. (2004) Economics and ethics: Amartya Sen as point of departure,
ABCDE Conference, Oslo, 2426 June, 2002, published in The New School
Economic Review 1(1):15162, available at www.newschool.edu/gf/nser/
articles/0101_fineb_econandethicssen_fall04_final.pdf
Fine, B. (2005) Addressing the consumer, in Trentmann (ed.) (2005).
Fine, B. (2007a) Eleven hypotheses on the conceptual history of social
capital, Political Theory 35(1): 753.
Fine, B. (2007b) Social Capital in Wonderland: the World Bank Behind the
Looking Glass, mimeo available from author.
Fine, B. and D. Milonakis (2007) From Political Economy to Freakonomics:
Method, the Social and the Historical in the Evolution of Economic Theory,
London: Routledge.
Fine, B., C. Lapavitsas and J. Pincus (eds.) (2001) Development Policy in the
Twenty-First Century: Beyond the Post-Washington Consensus, London and
New York: Routledge.
Harriss, J. (2001) Depoliticizing Development: The World Bank and Social Capital,
New Delhi: Leftword Books, revised edition, London: Anthem Press, 2002.
Jomo, K. and B. Fine (eds.) The New Development Economics: After the Washington Consensus, Delhi and London: Tulika and Zed Press.
Moore, M. (2001) Empowerment at last, Journal of International Development
13(3): 32129.
OConnor, J. (1973) The Fiscal Crisis of the State, New York, NY: St Martins
Press.
Oishi, T. (2001) The Unknown Marx: Reconstructing a Unified Perspective,
London: Pluto Press.
Smith, S. and J. Kulynych (2002) It may be social, but why is it capital? The
social construction of social capital and the politics of language, Politics
and Society 30(1): 14986.
Trentmann, F. (ed.) (2005) The Making of the Consumer: Knowledge, Power and
Identity in the Modern World, Oxford: Berg.
Woolcock, M. (1998) Social capital and economic development: toward a theoretical synthesis and policy framework, Theory and Society 27(2): 151208.
About the author

Ben Fine is Professor of Economics at the School of Oriental and African Studies at the University of London. Recent and forthcoming publications include
The New Development Economics: A Critical Introduction (2006), From Political
Economy to Freakonomics: Method, the Social and the Historical in the Evolution of
Economic Theory (2007), and Reinventing the Economic Past: Method and Theory
in the Evolution of Economic History (2008).
CHAPTER 12
Reflections on relationships: the nature

of partnership according to five NGOs in
southern Mexico
Miguel Pickard
This chapter is based on interviews with several staff members of NGOs located
in San Cristbal de Las Casas, Chiapas, Mexico, regarding partnerships between
them and their funding sources, such as foundations or agencies of the North
that do or support development work in the South. The motive behind the interviews was an interest in the word partnerships, in particular strategic ones. Do
partnerships exist now and, if they do, what does it mean for the NGOs to have
a partnership with a funding source? The general conclusion was that strategic
partnerships have indeed existed in the past, and may again emerge in the future,
but that currently they exist only sporadically, given the distinct ways of viewing
and carrying out development work within NGOs on the one hand, and foundations or agencies on the other.
Introduction
Funding organisations have a plethora of terms for the intended targets of
their largesse: recipients, beneficiaries, counterparts, clients, grantees, partners,
etc. But what do these terms mean? Are they equivalents, interchangeable
synonyms? And, specifically, under what circumstances is a partnership said
to exist between development-oriented funding organisations in the global
North and their, well, whatever, in the global South?
What follows is a general reflection on the term partnership, undertaken by
activists working in NGOs in Mexico. We suggest here that partnership denotes
a special relationship between equal participants or, yes, partners, who enjoy
a distinctive bond of trust, a shared analysis of existing conditions in society,
and thus in general a common orientation of what needs to be done to construct a more just, equitable, and democratic world.
This chapter surveys how partnerships are regarded in the eyes of five informants, all of whom are currently working at NGOs in southern Mexico.
The work of these non-profit NGOs centres on specific themes: for example,
economies of solidarity, conflict resolution, human rights, citizens participation in formal electoral politics, and alternative information and analysis for
grassroots organisations. It is worth stating at the outset that these themes are
not the NGOs raisons dtre. Rather, they are means to a greater end, which
might be summarised as a long-term commitment to the empowerment of
social and civil organisations. These NGOs believe in general that such organisations will be the agents of change, or perhaps will combine, mutate,
and permutate into new social actors or agents who will undertake the task of
societal transformation.
For the purposes of this chapter we use two (what we hope are) generic
terms for donor and donee within the development field: agencies in the
North and recipients in the South. The term agency annoys some Northern aid
workers, yet it is our generic term in Mexico for external, non-government,
non-corporate sources of funding, and it is used here and in general with no
derogatory intention.
The NGOs surveyed share one important trait. We are dependent on funding from Northern agencies for our existence and survival. There is no tradition in our area of the global South, or an extremely weak one at best, of
individual donations to good and noble causes. Self-financing schemes cover
at best only a small percentage of the budget. The only in-country sources
of funding in our field are government coffers or corporate profits. To accept
funds from the first would, in the minds of many, convert NGOs to Government Organisations, and corporate funding is seen to be too tainted, especially in a moral or ethical sense, to accept. None of the NGOs interviewed for
this discussion accepts corporate funding. One does accept government funds
within a trilateral (government/NGO/agency) scheme described below.
A word about the word

There is no universal standard definition of partnership within the development world. For our purposes here, we have imbued it with a particular
meaning, as noted above. For this reason, there is no exact translation of
partnership into Spanish. It is a word that must be given meaning within
a specific context, although one informant reports that the Spanish equivalent of strategic relationship is one real-life term for what one agency and
one NGO established at the start of this century. In any event, the word is
generally construed to mean equal standing among participants, with perhaps differentiated responsibilities. And once this was explained, informants
readily accepted that a partnership can, in fact, exist between aid agencies
and recipients in certain situations, as we shall see.
The fact that funding flows from North to South may, however, have important implications for the theoretical equality of standing within a partnership. One informant rejects the proposition that a proper partnership can ever
exist where, at some point in the relationship among agencies and recipients,
financial assets are transferred in a non-commercial transaction from the former to the latter. Only agencies have final judgement in the matter of grants,
while recipients can do little more than wait for the decision on their funding
REFLECTIONS ON PARTNERSHIP
137
request. The power to grant or withhold funding is unequally shared, and

so, for our informant, a true partnership can never be said to exist, since an
unequal power relationship inevitably prevails, at least on the question of
funding.
A historic setting
For two of our informants, chequered relationships between Northern agencies and Southern recipients have been the rule for the past several decades.
After World War II, the relationship was essentially paternalistic, even neocolonial. One part of the world was developed, the other underdeveloped.
One part of the world had solutions to underdevelopment, the other lacked
them, and the received wisdom of the time posited simply transferring knowledge, technology, and resources from the North to jumpstart development in
the South. In this rather linear way of thinking, development was a matter of
inputs.
During the late 1950s and into the 1960s, as the global South gained greater
political independence, the prevailing development paradigm increasingly met
with criticism and rejection. After decades, transfers of millions of dollars had
had no appreciable effect on poverty or underdevelopment. With time, development practitioners and academics agreed: poverty in the developing world
was less a cause, and more an effect, of overarching structural problems. It was
these structures, then, that had to be transformed or eliminated in order for
poverty to be reduced. The focus of attention shifted from poverty to the root
causes of underdevelopment.
In Latin America during the 1970s and 1980s, wars of national liberation,
though often unsuccessful in overthrowing political and economic elites,
nonetheless were important in instilling at the grassroots a sense of nationalism and self-determination. This idea percolated to the development sector, where, over time, it altered the existing paternalistic and neo-colonial
paradigm.
What emerged was the determination of stakeholders in developing countries to be considered social subjects, i.e. actors fully capable of participating
in the development debate and proposing innovative and home-grown solutions to structural problems affecting the majority of the population. These
local social subjects had to be seen as autonomous, in the sense that they had
a particular, perfectly valid understanding of their own reality and could act
to transform it. Thus the global South was more than capable of generating
its own objectives, perspectives, and strategies. The top-to-bottom, North-toSouth chain of command of ideas, methods, and strategies in the development field underwent a radical transformation. Other more horizontal, or
democratic, models appeared. And Northern agencies that resisted changes
found themselves increasingly estranged from their Southern counterparts.
Increasingly, the proper role of development agencies was thought to be
participation with, and strengthening of, local social subjects, to collaborate
in building alternative social and economic paradigms. From a Southern perspective, it was incumbent upon the Northern agencies to join the South. As
participants in an effort to help to eradicate the structural causes of poverty,
Northern agencies were always welcome, but now the relationship with the
South had to be put on a more equal footing.
Some Northern agencies enthusiastically took up the challenge. In this new
context, the idea of a shared commitment between Northern and Southern
organisations to help to create socially based alternatives took hold. One informant says that during this period, which covered roughly the 1970s, 1980s
and into the 1990s, Northern and Southern entities considered themselves
allies. In fact, a wide range of terms came into the development lexicon to
describe this new-found relationship. For some Northern agencies, the Southern allies were counterparts, colleagues even; one agency in Germany coined
the term mutual parts, in an effort to express the commonality of action and
commitment, harkening back to our word partnership. A US agency preferred
to talk of associates. It is at this time that informants agree that something
akin to a partnership existed among the Northern and Southern institutions
working to eliminate the root causes, or structural reasons, behind the lack of
opportunity that characterised the lives of most of the worlds population.
Behind this blossoming spirit of collegiality there was in addition an effort to define what a new society might look like. This was a joint activity
among various actors within the development field, such as Northern agencies, Southern social and civil organisations, and the greater civil society. And,
as such, a new actor (or, to use the Latin American term, social subject) was in
the making. This actor undertook actions in favour of social change, thought
about social change as a strategic goal, and recognised that, in order to create,
change introspection and self-criticism were necessary, as was a willingness
to change established modes of thinking, acting, working, and relating to the
greater community.
In other words, belonging to a partnership required a shared vision; but,
just as important, that vision had to be jointly constructed, never imposed. It
also, in the end, required a shared ideology, though not necessarily one that
arose from any particular political current. It was rather a matter of opposing the status quo where it had proved unjust, undemocratic, discriminatory,
and exclusionary. Structural changes could be brought about through greater
political awareness and mobilisation on the part of the oppressed majority,
not only by resisting and rejecting existing structures and ways of thinking,
but also by building alternatives.
Importantly, within this partnership a common dialect evolved which recognised the role that imperialism, colonialism, racism, capitalism, and (later)
patriarchy had played in forming the current status quo.
Given this search for greater equality and collegiality, most Southern partners sought to ensure that funding from outside sources would not interfere
with their own priorities, objectives, and goals. Suggestions from the North
were of course welcome, and so were technical, methodological, or knowledge
139
inputs, but funding had to be given without attached strings. It was impermissible to use funding to influence a Southern partners activity to conform
to Northern priorities. A new ethics became a part of this new-found partnership: the South gained a greater independence in thought and movement,
and funding requests were granted for overall strategic objectives, rather than
mere specific activities. But likewise, Southern partners were expected to exercise grants with professionalism, with timely and transparent accountability.
Further, mutual commitments were intended to apply to the long term.
Structures were not easily modified, and it was thought quite useless to insist
on deadlines. Northern partners either had to commit support for an undefined future in the South or, if they withdrew earlier, had to be satisfied with
having contributed to modifying the status quo, even if concrete results were
difficult to identify. That was the nature of the beast, or so it appeared at the
time.
The paradigm shifts

The majority of our informants agree that the good times of shared hopes
and visions between Northern and Southern partners began to show signs
of strain in the late 1990s, although one claims to have seen the writing on
Northern walls years before. Several reasons are behind the disaffection.
One is identified as a general conservative political attitude that accompanied the implementation from the mid-1980s of neo-liberal economic policy
virtually throughout the world. Another reason was, surprisingly, the transition to more democratic regimes in many Southern countries, particularly in
Latin America. As governments became more democratic through the exercise
of formal democracy, particularly at the ballot box, their legitimacy increased,
more so in the global North than in the South. People in the South continued to be disenfranchised, disempowered, and mired in a stubbornly resistant
poverty that seemed to deepen and spread, notwithstanding the democratic
veneer of political representation.
Yet an important shift in emphasis occurred: funds and efforts now
poured into the South to support fledgling democracies. The logic was seemingly irrefutable: if impoverished countries were remodelled after European
or North American democracies, diverse stakeholders would be able to push
their particular agendas forward within the political arena and generate an
overall distribution of political power and economic resources. But it did
not take long for reality to trump logic. Entrenched elites learned to play
the democratic game and gain legitimacy on the world stage, while denying
their population real access to power.
One effect of more legitimate Southern governments among Northern
agencies was the willingness of the latter to work with the former to find
supposed new ways of overcoming poverty. Schemes of co-investment were
hatched, whereby local governments equalled or exceeded funds transferred
by Northern agencies. Multilateral organisations, such as specialised agencies
of the United Nations, were often eager to make their own contributions. In
line with the democratic glaze that accompanied this new age, trilateral or
multilateral boards of directors were established over these joint investments,
giving Northern agencies, local governments, and grant recipients voice and
vote to administer funds and decide on specific grant proposals.
These new arrangements pleased some Southern recipients. They took
pains to argue that the boards were indeed representative and non-coercive,
and, perhaps most importantly, afforded innovative means whereby Southern
organisations could legitimately access tax revenues, since part of that money
is ours to begin with. The funding, they argued, could be destined to meeting
the needs of the poor, the disenfranchised, the disempowered. Other Southern
organisations were less than pleased, however, and refused to participate, alleging that involvement in these schemes legitimised governments that still
did not represent majority interests.
Further, in the intervening neo-liberal years, efforts to eliminate poverty
had given way to alleviating poverty and attending to the poor, or rather, to
the losers of the new economic game. And neo-liberal economists were quite
willing to admit that there would be losers. A large amount of government
funding for social causes was admittedly used to prop up the consumption of
the most impoverished. And with token exceptions, governments had little
tolerance for rude questions regarding the status quo or even ruder talk of
changing it.
Yet another reason behind the paradigm shift was the supposed accession of some countries to the status of developed countries. For example,
in the case of Mexico, one presidents decision to join the Organisation for
Economic Co-operation and Development (OECD), and then negotiate a
free-trade agreement with the USA, was sufficient reason for some Northern agencies to channel grants elsewhere. A publicity campaign to convince
world opinion of the countrys arrival in the First World was successful,
but unsubstantiated by basic economic data that pointed to persistent and
widening poverty and unemployment, greater wealth concentration, and
increasing rates of emigration.
Finally, another turning point during the 1990s was the shift of fundraising strategies among Northern agencies. The decades-old practice of appealing to the general public for funds was not entirely forgotten, but certainly
downgraded in importance. Agencies of all sizes chose to accept increasingly
wider slices of their budget pie from their governments. Southern recipients
immediately detected the change. Beholden to government back-funders and
anxious to demonstrate success of resources applied, or required to do so by
management in order to justify renewed grant applications, Northern agencies
now distanced themselves from the previous thinking that associated poverty
reduction with long-term processes.
Unfortunately for all, those processes had been especially difficult to document. They involved qualitative changes that were nothing if not subjective. Since such processes involved inherently slow social evolution, many
141
agencies, as mentioned earlier, had to end their commitments without conclusive proof that their participation had indeed wrought greater empowerment of the people.
By accepting government funding and quickly becoming dependent on it
to sustain programmes, projects, and bureaucracies, Northern agencies began
to turn screws on Southern recipients to show conclusive results. Indicators,
especially quantifiable ones, became important. Certain agencies emphasised
particular themes (gender, AIDS, environmental issues, agro-ecology, fair
trade) in an effort to distinguish their brand of overseas aid, or to hop on to
fashionable development bandwagons in order to please governments in the
North. At times, concern about particular themes was welcomed in the South;
one informant says that, for example, stimulating greater gender awareness
was in itself not a problem, although sometimes the way it was done caused
friction.
But more importantly, there was a dramatic change in the way in which
priorities were determined. Harkening back to the 1950s, once again it was
the North that set priorities, often unilaterally. Conceptual gains of previous
decades were wiped away, as Northern agencies scrambled to satisfy backfunders criteria. For example, the idea that partners in the North and South
had to jointly design priorities and strategies to have an impact on a long-term
process suddenly disappeared. Now, funds were very often conditioned on recipients taking on particular themes, or adjusting on-going programmes and
projects to highlight aspects thought to be important in the North.
Part and parcel of this shift towards quantifiable and supposedly more objective criteria was the emphasis on finding indicators of success. This continues to be an on-going debate (or battle) between Northern funders and
Southern recipients, given the latters frequent insistence on working within
long-term processes of social transformation that are unsuited to easy, shortterm quantification. The main problem, says one informant, is that funders
are asking to see quantitative indicators that come from financial-investment
circles and have nothing to do with social processes. At best, says another
informant, these indicators are an interesting and useful means of looking
at activities but they cannot, and should not, be converted into objectives.
In other words, she adds, Northern funders have begun requesting a logic
of methodological construction that does not respond to the construction of
social subjects.
A consequence of the paradigm shift and the newly imposed emphasis
on quantifiable indicators was that some Northern agencies concluded that
Southern counterparts lacked the basic skills to address basic poverty. This,
once again, was a task to be carried out at the behest and direction of Northern
agencies, which supposedly did have the required skills set. Southerners could
be selected to help with specific inputs, according to demonstrated competencies. What ensued was the contracting-out of these competencies, so that a local NGO could be called in to conduct workshops on specific topics, from bee
keeping to human rights. One informant recounted the unsettling prospect
of being hired to give human-rights workshops to indigenous communities

selected by a Northern agency. Rather than accompanying communities,
establishing long-term relations of confidence and trust, the NGO faced the
prospect of dropping in for the sole purpose of a workshop that would conceivably be entirely disconnected from the local context. Although the option
might be a means of funding this particular human-rights centre, in the end it
was rejected since it ran counter to its logic, strategies, methodology, and raison dtre. But it pointed to disturbing trends within the development field.
In summary, real development, as understood by a great many Southern
organisations, e.g. designed, controlled, and operated by social agents, is being thwarted by a Northern vision too often driven by the need to please backfunders. When these back-funders are governments controlled by parties (of
whatever complexion) with neo-liberal economic worldviews, there is often
a regression to the logic of decades past, when development was thought to
entail a transfer of resources. The current received wisdom emanating from
governments adds new requirements for approval of Northern agencies
funding requests: transparency, accountability, inputoutput methodologies
for tabulating indicators. These are useful tools that should be incorporated as auxiliaries in all processes of transformation. But the essence of socialdevelopment processes lies elsewhere, in the empowerment of social-change
agents, many of which are nascent, or under construction, and by definition
resist quantification.
Real epistemological and ideological barriers currently prevent partnerships
from prospering. In the unanimous opinion of those whose views have contributed to this study, real partnerships within the development world will
again be forged and thrive when Northern and Southern organisations meet
on an equal footing and support social subjects working to construct a new
world order.
About the author

Miguel Pickard is a Mexican economist who has worked with several
NGOs, both local and international. He is currently a researcher at CIEPAC
(Centre for Economic and Political Investigation for Community Action) in
San Cristbal de las Casas, Chiapas, which he co-founded in 1998.
CHAPTER 13
Talking of gender: words and meanings in

development organisations
Ines Smyth
This chapter reflects on the vocabulary commonly used within development
organisations to communicate about gender and development. It argues that
the relevant terminology, though frequently used, remains problematic. Some
terms are almost entirely absent, while others are used loosely and inappropriately with the subtleties of carefully developed and much-debated concepts
often lost. Terms such as empowerment, gender, and gender mainstreaming
which originated in feminist thinking and activism have lost their moorings and
become depoliticised. Despite these problems, there are indications that debates
and language may be taking a more radical turn with the acknowledgement of
the shortcomings of the practices of gender mainstreaming, the deepening of
interest in the notion of empowerment, and the explicit adoption of a humanrights language.
Introduction
Why do so many of us use the language of gender as a camouflage that
fools no one and does none of us any favours? (Cornwall 2006:1)
Several years ago I wrote an article (Smyth 1999) reflecting on how development organisations appeared to be afraid of using feminist language and
concepts, opting instead for safer and less challenging discourses. My reflections focused most directly on Oxfam GB, since as a staff member of that
organisation I inhabited, heard, and spoke its language.
Enough time has gone by to warrant revisiting these thoughts and expanding them. Here I am not attempting to monitor progress in Oxfam
GB, in the manner often required in development work. Even if this was the
intention, changes in knowledge-management systems at different levels of
the organisation would not allow for a methodical review of whether the
language of feminism is any more in favour now than it was in 1999. What I
seek to do here is to consider more broadly the vocabulary that we use in the
development world to communicate about what is often referred to, in its
most common short-hand, as gender and development. Oxfam GB remains
the main subject of this investigation.
This is not an easy piece to write, since it requires using language that has
become densely layered with contradictory meanings and interpretations, and
which, in the rest of the chapter, I challenge and criticise. In so doing I am
chipping away at the very blocks that should be building my argument, or
turning them into traps of my own making.
Gender talk is everywhere

Reflections on and celebrations of the progress made by women and in gender
relations in recent decades are always tempered by the realisation that change
is never linear, and that current circumstances and trends are full of intractable problems and new threats (Kerr 2006).
What is undisputed is that in the past 30 years or so concerns about
gender issues have shifted from being seen as a minor but irritating diversion from the more urgent questions of poverty and globalisation, to being
a lingua franca in which so many actors appear to be fluent. As Gita Sen says:
Across a sweeping range of issues, from macroeconomics to human rights
and political participation, feminist researchers and activists from womens
movements appear to have succeeded in bringing about significant changes
both in discourse and in actual policy (Sen 2006: 128). Thus the fact that,
as Ruth Pearson puts it, gender talk is everywhere (Pearson 2006:157) is a
victory in terms of conveying the pervasive presence of certain concerns in
the field of development.
If words are important, silences are important too and a reflection of what
is excluded from daily exchanges verbal or written among development
practitioners and policy makers. What is also important is the frequency and
clarity with which certain terms are used, the first as a sign of what gets given
priority and air space, the latter because on the clarity of key terms depends
whether and how policies are developed and then implemented.
I would argue, however, that the terminology associated with gender,
though encountered everywhere, remains problematic. Some terms are almost entirely absent, while others are used loosely and inappropriately with
the subtleties and rigour of carefully developed and much-debated concepts
utterly lost, so that words are left empty of meaning. Other terms are connected in what Cornwall and Brock (2006: 48) call chains of equivalence,
where new meanings emerge according to the proximity between chosen
words. This lack of clarity in language and concepts affects Oxfam GB too. In
a review of its use of human-rights instruments, Marsha Freeman concludes:
Lack of clarity as to gender, mainstreaming and the role of human rights
impedes achievement of the goals of equality between women and men,
historically referred to as gender equity (Freeman 2002: 7).
Confusion can thus compromise the entire purpose for which such language is developed. Something more complex is also happening, however:
real women and men, power and conflict all disappear behind bland talk
of gender, while the language of mainstreaming creates the possibility
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145
of orderly tools (an interesting term in itself) and systems through which
profoundly internalised beliefs and solidly entrenched structures are miraculously supposed to dissolve and be transformed. At the root of all this is the
fact that terms that originated in feminist thinking and activism have somehow lost this mooring, although there are indications that the emerging
rights language could be heralding a return to such foundations.
Speech impediments
What are the terms that are being used or deleted from daily spoken and written language in the field of international development?
Silence on feminism
The first thing to note is that there is still a resounding silence around words
such as feminism and feminist (as well as class). This was the subject of my
article of 1999, and nothing seems to have changed much, either in Oxfam
GB or in other organisations. Occasionally the connection with feminism
is acknowledged. This is the case, for example, with various documents in
which ActionAid acknowledges feminism as the inspiration for some of its
thinking.
These remain exceptions, however, and it would seem that the fear of
feminism to which I had earlier attributed the absence of certain terms is still
dominant. While, as I stressed in my earlier article, feminist-inspired work can
take place even in the absence of such explicit language, feminist, feminists,
and feminism are certainly not the kind of warm and reassuring (Cornwall
and Brock 2006: 45) words of which the discourse of development organisations has become redolent. On the contrary, they either evoke the derogatory
and faintly ridiculous notions through which feminists of all eras have been
belittled and demonised, or they instil fear by pointing, accurately, to an arena
of struggle and contestation. For this reason they are avoided.
This absence is perhaps also a consequence of the fact that individuals (the
majority of whom are women) who are engaged in intrinsically feminist work
seem to inhabit two separate domains: that of the womens movement on the
one hand, and that of development bureaucracies (including NGOs) on the
other. This was certainly the consensus expressed at the AWID Forum held
in Bangkok in November 2005, where there was a real sense of the existence
of these two separate worlds, as echoed in the repeated calls for creating new
bridges and connections (see Development 49(1), 2006 for all the key speeches
at the Forum).
Contrary to what happens within the womens movement, those who, for
whatever reasons, choose to inhabit the so-called mainstream development
sector (Win 2006:62) struggle to champion gender equality and womens
rights, in speech and in practice. This has to do with organisational structures and changes, and with the power relations inherent in hierarchies. The
common experience, as House remarks in relation to the water sector, is one

where being a gender activist often mean[s] receiving the negativity that appears to be integral to the raising of this subject (2005: 212). It is thus understandable that many such activists, let alone others whose world views differ
and whose priorities lie elsewhere, choose not to use the explicit language of
feminism, with all its negative associations.
Empowerment
Empowerment perhaps has the richest and most complex history and evolution
of all relevant terms: from the seventeenth-century meaning of delegation
and granting licence (Pieterse 2003) to its reverse meaning in a feminist
sense of self-generated positive change. In this long trajectory, the term has
attracted contributions from the most extreme traditions: feminist scholarship, the Christian right, New Age self-help manuals, and business management (Cornwall and Brock 2006: 50).
When the term empowerment is used, the emphasis is often on the idea of
processes leading to broader outcomes. According to the UK governments
Department for International Development (DFID), empowerment refers to
individuals acquiring the power to think and act freely, exercise choice, and
to fulfil their potential as full and equal members of society (DFID 2000:11).
Oxfam GB has adopted this definition verbatim, adding: This will of course
take different forms and move at different paces according to the particular
social, cultural, economic and political context. It is a critical part of working
toward the attainment of gender equity ... (Oxfam 2001).
There are, however, two common problems with the way the term is used.
one is that it can easily become too broad and generalised, and thus the answer to questions on life, the universe and everything.1 An example is the
DFID definition quoted above, which continues that empowerment is also
about negotiating new kinds of institutions, incorporating new norms and
rules that support egalitarian and just relations between women and men.
The other, more common, problem occurs especially within development
agencies when they attempt to operationalise the term and shift the focus
from empowerment as process to empowerment as end product. The Millennium Development Goals (MDGs) are an example of this, quantifying as they
do womens empowerment in the specific and rather limited fields of education, waged employment, and participation in formal politics.
This focus on outcomes has been amply criticised by feminist analysts, not
least because it predefines what are highly individual experiences and perceptions. As Mosedale (2005a: 244) points out: [E]mpowerment is an on-going
process rather than a product. There is no final goal. One does not arrive at a
stage of being empowered in some absolute sense. People are empowered, or
disempowered, relative to others or, importantly, relative to themselves at a
previous time.
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In some of the NGO literature, the distinct impression is also given that development programmes can empower women, while a feminist perspective
would emphasise that only women themselves can be agents of such a process
of change. The first approach is typical of many microfinance projects. For
example, the US Grameen Foundation states: Our programs are designed to
empower the worlds poorest by providing affordable capital, financial services, appropriate technology, and capacity building resources to those front-line
microfinance institutions (MFIs) that serve them (www.grameenfoundation.
org/programs).
Finally, a feminist tradition understands relevant processes of empowerment as being collective endeavours, versus those that promote individualism and even consumerism (Rowlands 1998), again as appears to be the case
among popular microfinance interventions.
Despite the problems, current research on how womens empowerment can
be achieved in practice through development interventions is allowing different agencies to engage in dialogue on shared concerns, and to link abstract
notions of empowerment to concrete attempts to establish how development
programmes can genuinely contribute to womens empowerment (Mosedale
2005b).
Gender
Perhaps the most confusing of all terms is that of gender itself. We know that
often the word is used to mean women. At a more basic level, words such
as engendering and gendered are usually helpful, for example in titles such as
Engendering Development (World Bank 2001; for Oxfam see Zuckerman 2002).
Other expressions, such as genderising, doing gender, and even you are gender
(though admittedly those are mostly verbal rather than written usages), are
certainly much less so.
The transition that seems to have occurred in this case is one that gradually
has eroded any meaning from the term gender. Emptied of meaning, it pops
up in the most inappropriate places and manners. Clearly gender ...is a widely
used and often misunderstood term (Momsen 2004:2).
I am not suggesting with these comments that the term gender and those
associated with it should be entirely dropped. On the contrary: with increased
clarity and consistency of use, they can provide important bridges between
understandings and practices of feminist activists on the one hand, and those
of feminists and others operating within the confines of development organisations, on the other.
Gender mainstreaming
The most common use of the term gender is in association with mainstreaming.
The notion of gender mainstreaming grew out of the realisation that the concerns for women and gender issues should not remain marginal to the ideas
and practices of development organisations, but should be central to them,

and hence located in their mainstream. How this should happen, whether
by being integrated into them or radically transforming them, has long been
debated.
Most organisations have opted for a language of transformation. For Oxfam
GB, for instance, gender mainstreaming is a process of ensuring that all of our
work, and the way we do it, contributes to gender equality by transforming
the balance of power between women and men (Gell and Motla 2003). This
approach has helped to emphasise that gender issues must be addressed in all
aspects and stages of development work, including the necessity to do the same
internally within development organisations (Mukhopadhyay et al. 2006). But
it is exactly here that organisations appear reluctant to consider fundamental
transformations and are content to tinker at the margins of their structures
and practices. It is for this reason that much feminist-inspired literature has
long concluded that gender mainstreaming has not been successful. As Aruna
Rao puts it: While the intention of gender mainstreaming is transformation,
it has been chewed up and spit out by development bureaucracies in forms
that feminists would barely recognise (Rao 2006:64).
Ironically, at a practical level the dominance of gender mainstreaming has
led to a decline in the resources devoted to programmes and projects explicitly
addressing womens disadvantage, or supporting womens organisations, on
the understanding that there is no need for gender-specific activities because
all concerns have been thoroughly mainstreamed.
In terms of language it can be said that the association between the term
gender on one hand and mainstreaming with its bureaucratic associations on
the other has created a chain of equivalence that hides the element of power
relations so essential to the original feminist understanding of the term. This
terminology also helps to smooth over the fact that doing gender within
development organisations is itself an arena of dissent and struggle (see earlier
discussion on the fate of many feminists inhabiting development agencies).
With gender mainstreaming it is also easier to put real women and men,
and the messy realities of their lives and relations, at a certain distance, and
turn them into the neat categories necessary for log frames, monitoring tools,
and management systems. The experience of Oxfam is interesting here too.
Oxfam Great Britain was one of the first NGOs to have a Gender Policy, and
the very process of developing it let alone the contents was unique in
terms of using consultations through which people could internalise essential
principles. Ten years or more later the Policy still stands, but it is accompanied
by what are called non-negotiables: a very small set of basic rules for management and for humanitarian practices. While clearly it is essential that systems
themselves embody principles of gender equality, these rules suggest that a
commitment to gender equality can be ordered by diktat once and for all,
rather than growing out of sustained and continuous efforts to encourage an
organic transformation of peoples views and actions.
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As Joanna Kerr is reported to have said: All of us were very excited in Beijing, in governments, donor agencies and womens organizations. But something has happened since then: the last few years a terrible gender fatigue has
developed within governments and within donor agencies.... Possibly one of
the explanations is that the use of the concept of gender mainstreaming led
to an overemphasis on instruments and tools, whilst neglecting to look at the
political process (Hivos 2006: 4).
Thus the term gender mainstreaming as a chain of equivalence has become
highly depoliticised, in the sense that it is disconnected from political and
structural realities, and alternative or radical ideas are diluted or neutralised
(Utting 2006: 4).
Conclusions: new words, threats, and promises

Despite the problems discussed so far, new expressions have been finding their
way into development language in recent years. In most cases they are not entirely new: rather they are terms that have been rediscovered and adapted to
new contexts. Diversity is certainly one. However, while this opens the possibility of bringing into development organisations discussions and approaches
typical of debates on intersectionality (a difficult term in itself), it also carries
new threats. One is that of encouraging a belief that gender disparities and
inequalities have been overcome, and that our work therefore needs a new
focus; the other is that gender becomes dissolved into more generic categories of disadvantages, with the associated risk of losing even more institutional
profile and resources (Pearson 2006:159).
A source of innovation and promise is the spread of rights-based language and approaches to development. In ActionAid the move from a core
statement focusing on Fighting Poverty Together to that of Rights to End
Poverty has been accompanied by supplementing the 2000 Gender Policy
with a firm statement to the effect that Womens Rights are to be one of the
main priorities of the organisation (although the original Policy had also made
clear reference to womens rights and their empowerment).
This revision is certainly welcome, as it bases efforts to promote gender
equality on intrinsic rather than instrumental arguments (Kabeer 2003).
Furthermore, an emphasis on womens human rights helps to re-politicise
debates and also practices, by offering opportunities to use human-rights
treaties as tools of advocacy (Freeman 2002).
Oxfam GB has also adopted a Rights-Based Approach, both in its overall analysis of poverty, and as a specific area of intervention (known as the
Right to be Heard). In its approach to gender equality, things are not so clear.
Recent attempts to transfer the emphasis of the organisation from gender
mainstreaming to womens rights have met with the expressed fear that this
is a step backwards to WID [Women in Development] and away from GAD
[Gender and Development], and a sign that we are neglecting men (various
personal communications). These discussions are on-going. It is to be hoped
that they will lead to a consensus on the fact that, given that women continue
to face specific and substantial barriers to the enjoyment of their rights, the
promotion of womens human rights is the logical and necessary aim for a
rights-based development organisation.
In summary, there are major problems associated with the absence of certain terms, the emptying of meaning and depoliticisation of others. At the
same time there are indications that debates and language may be taking a
more radical turn, with the acknowledgement of the shortcomings of gender
mainstreaming, the deepening of interest in the notion of empowerment, and
the explicit adoption of a human-rights language.
Note
1.
The question concerning Life, the Universe, and Everything was posed
and answered by Douglas Adams in his series The Hitchhikers Guide to the
Galaxy.
References
Cornwall, A. (2006) Ten Years After Beijing Time to Bid Farewell to Gender?,
IDS News Archive, www.ids.ac.uk/IDS/news/Archive/BeijingCornwall.html
(retrieved 16 November 2006).
Cornwall, A. and K. Brock (2006) The new buzzwords, in P. Utting (ed.)
Reclaiming Development Agendas, Basingstoke: Palgrave Macmillan and
UNRISD.
DFID (2000) Poverty Elimination and the Empowerment of Women, DFID
Target Strategy Paper, London: Department for International Development.
Freeman, M. (2002) Womens Human Rights Evaluation, unpublished
paper written as part of the Oxfam GB Gender Review, September 2001
May 2002, Oxford: Oxfam GB.
Gell, F. and M. Motla (2002) Gender Mainstreaming Tools, Questions and
Checklists, to Use Across the Programme Management Cycle, unpublished
paper, Oxford: Oxfam GB.
HIVOS (2006) Womens Rights Unfinished Business. What Should International NGOs Be Doing? Report of International NGO Conference,
Amsterdam, 1517 November 2006.
House, S. (2005) Easier to say, harder to do: gender, equity and water, in A.
Coles and T. Wallace (eds.) Gender, Water and Development, Oxford: Berg.
Kabeer, N. (2003) Gender Mainstreaming in Poverty Eradication and the MDGs: A
Handbook for Policy-makers and Other Stakeholders, Ottawa: Commonwealth
Secretariat, IDRC, and CIDA.
Kerr, J. (2006) Womens rights in development, Development 49(1): 611.
Momsen, J. (2004) Gender and Development, London: Routledge.
Mosedale, S. (2005a) Assessing womens empowerment: towards a conceptual
framework, Journal of International Development 17: 24357.
Mosedale, S. (2005b) Strategic Impact Inquiry On Womens Empowerment,
Report of Year 1.
TALKING OF GENDER
151
Mukhopadhyay, M., G. Steerhouwer, and F. Wong (2006) Politics of the Possible:

Gender Mainstreaming and Organisational Change Experiences from the Field,
Amsterdam: KIT and Novib.
Oxfam, GB (2001) Guidelines for Assessing Impact on Gender Equality, unpublished paper available at http://homepage.oxfam.org.uk/sco/gender/
resources/airguide.htm.
Pearson, R. (2006) The rise and rise of gender and development, in U. Kothari
(ed.) A Radical History of Development Studies: Individuals, Institutions and
Ideologies, London: Zed Books.
Pieterse, J. (2003) Empowerment: snakes and ladders, in K. Bhavnami, J.
Foran, and P. A. Kurian (eds.) Feminist Futures: Re-imagining Women, Culture
and Development, London: Zed Books.
Rao, A. (2006) Making institutions work for women, Development 49(1):
637.
Rowlands, J. (1998) A word of the times: but what does it mean? Empowerment
in the discourse and practice of development in H. Afshar (ed.) Women and
Empowerment: Illustrations from the Third World, London: Macmillan.
Sen, G. (2006) The quest for gender equality, in P. Utting (ed.) Reclaiming
Development Agendas: Knowledge, Power and International Policy Making,
Basingstoke: Palgrave Macmillan and UNRISD.
Smyth, I. (1999) A rose by any other name: feminism in development NGOs
in F. Porter, I. Smyth, and
C. Sweetman (eds.) Gender Works: Oxfam Experience in Policy and Practice,
Oxford: Oxfam GB.
Utting, P. (2006) Introduction: reclaiming development agendas, in P. Utting
(ed.) Reclaiming Development Agendas: Knowledge, Power and International
Policy Making, Basingstoke: Palgrave Macmillan and UNRISD.
Win, E. (2006) Building an international feminist space: reflections from
Bangkok, Development 49(1): 6062.
World Bank (2001) Engendering Development: Through Gender Equality in Rights,
Resources, and Voice, Oxford: Oxford University Press.
Zuckerman, E. (2002) Evaluation of Gender Mainstreaming in Advocacy Work
on Poverty Reduction Strategy Papers (PRSPs) Synthesis Report, unpublished paper written as part of the Oxfam GB Gender Review, September
2001May 2002, Oxford: Oxfam GB.
About the author

Ines Smyth is Oxfam GBs Global Gender Policy Adviser. She also worked at
the Asian Development Bank in Manila and for several years at the Institute of
Social Studies in The Hague, the University of Oxford, and the London School
of Economics.
CHAPTER 14
Sustainability
Ian Scoones
As a consummately effective boundary term, able to link disparate groups on
the basis of a broad common agenda, sustainability has moved a long way from
its technical association with forest management in Germany in the eighteenth
century. In the 1980s and 1990s it defined for a particular historical moment
a key debate of global importance, bringing with it a coalition of actors across
governments, civic groups, academia and business in perhaps an unparalleled
fashion. That they did not agree with everything (or even often know anything of
the technical definitions of the term) was not the point. The boundary work done
in the name of sustainability created an important momentum for innovation in
ideas, political mobilisation, and policy change, particularly in connection with
the UN Conference on Environment and Development (UNCED) held in Rio in
1992. All this of course did not result in everything that the advocates at the
centre of such networks had envisaged, and today the debate has moved on, with
different priority issues, and new actors and networks. But, the author argues, this
shift does not undermine the power of sustainability as a buzzword: as a continuingly powerful and influential meeting point of ideas and politics.
Introduction
Sustainability must be one of the most widely used buzzwords of the past two
decades. There is nothing, it seems, that cannot be described as sustainable:
apparently everything can be either hyphenated or paired with it. We have
sustainable cities, economies, resource management, business, livelihoods
and, of course, sustainable development. Sustainability has become, par excellence, what Thomas Gieryn (1999) calls a boundary term: one where science
meets politics, and politics meets science. The boundary work around sustainability of building epistemic communities of shared understanding of
and common commitment to linking environmental and economic development concerns has become a major concern across the world. In the past
two decades, networks of diverse actors have been formed, alliances have been
built, institutions and organisations have been constructed, projects have
been formulated, and money in increasingly large amounts has been spent
in the name of sustainability. It is at this complex intersection between science and politics where boundary work takes place, and where words, with
often ambivalent and contested meanings, have an important political role in

processes of policy making and development.
A (very) short intellectual history

But like all buzzwords, the term sustainability has a history. It has not always
had such significant connotations. The term was first coined several hundred
years ago by a German forester, Hans Carl von Carlowitz, in his 1712 text
Sylvicultura Oeconomica, to prescribe how forests should be managed on a longterm basis. It was, however, not until the 1980s that the term attained much
wider currency. With the birth of the contemporary environment movement
in the late 1960s and 1970s, and debates about the limits to growth, environmentalists were keen to show how environmental issues could be linked
to mainstream questions of development. The commission chaired by Gro
Brundtland, former Prime Minister of Norway, became the focal point for this
debate in the mid-1980s, culminating in the landmark report entitled Our
Common Future in 1987. This report offered the now classic modern definition
of sustainable development:
Sustainable development is development that meets the needs of the
present without compromising the ability of future generations to meet
their own needs. (WCED 1987a: 43)
The terms sustainability, and more particularly sustainable development,
drew on longer intellectual debates across disciplines. From the 1980s there
was a global explosion of academic debate and policy debate on these issues,
particularly in the run-up to the United Nations Conference on Environment
and Development (UNCED), held in Rio in 1992.
Ecologists had long been concerned with the ways in which ecosystems
responded to shocks and stresses; and mathematical ecology had blossomed
through the 1970 and 1980s, with important work from the likes of Buzz
Holling and Bob May on the stability and resilience properties of both model
and real biological systems (Holling 1973; May 1977). Sustainability could
thus be defined in these terms as the ability of a system to bounce back from
such shocks and stresses and adopt stable states.
Neo-classical economists drew on theories of substitutable capital to define (weak) sustainability. And within economics, debates raged over whether
such a weak definition of sustainability was adequate or whether a stronger
definition, highlighting the lack of substitutability of critical natural capital was needed (cf. Pearce and Atkinson 1993). Ecological economics meanwhile traced more tangible links with ecological systems, generating such
fields as life-cycle analysis, ecological footprint assessment, and alternative
national accounting systems (Common and Stagl 2005). Elements of these
debates were picked up by the business community, where notions of the
triple bottom line emerged, in which sustainability was seen as one among
other more conventional business objectives, resulting in a whole plethora of
SUSTAINABILITY
155
new accounting and auditing measures which brought sustainability concerns

into business planning and accounting practice (Elkington 1997). And at Rio,
the World Business Council for Sustainable Development was launched with
much fanfare (Schmidheiny and Timberlake 1992), bringing on board some
big corporate players. Drawing on wider popular political concerns about the
relationships between environment, well-being, and struggles for social justice, political scientists such as Andrew Dobson (1999) delineated political
theories that incorporated a green politics perspective, placing sustainability
concerns at the centre of a normative understanding of social and political
change. Others offered integrative syntheses, linking the economic, environmental, and socio-political dimensions of sustainability into what Bob Kates
and colleagues have dubbed a sustainability science (Kates et al. 2001).
By the 1990s, then, we had multiple versions of sustainability: broad and
narrow, strong and weak, big S and small s sustainability, and more. Different
technical meanings were constructed alongside different visions of how the
wider project of sustainable development should be conceived. Each competed with the others in a vibrant, if confusing, debate. But how would all this
intense debate translate into practical policy? 1992 was the key moment for
this.
Coming of age in Rio

The 1992 Rio conference, convened by the United Nations and attended by
representatives of 178 governments, numerous heads of state, and a veritable
army of more than 1000 NGOs, civil-society, and campaign groups, was perhaps the high point the coming of age of sustainability and sustainable
development. Many people believed that this was the moment when sustainability would find its way to the top of the global political agenda and
would become a permanent feature of the way in which development, both
North and South, would be done (Holmberg et al. 1991).
The Rio conference launched a number of high-level convention processes
on climate change, biodiversity, and desertification all with the aim of
realising sustainable-development ideals on key global environmental issues.
Commissions were established, and national action-planning processes set in
train for a global reporting system against agreed objectives (Young 1999).
At the same time, a more local-level, community-led process was conceived
Agenda 21 which envisaged sustainability being built from the bottom
up through local initiatives by local governments, community groups, and
citizens (Selman 1998).
These were heady days indeed. Environment and development had, it
seemed, finally come of age. Groups such as the London-based International
Institute for Environment and Development (IIED), the Delhi-based Centre for
Science and Environment, the Washington-based World Resources Institute,
and the Manitoba-based International Institute for Sustainable Development
had access to and influence over policy debates that a few years before they
could only dream of. The challenge for such organisations and many others
besides who adopted the creed of sustainable development as central to their
mission was to move from theory to practice, from ideals to real results on
the ground. What did implementing sustainable development mean? The result was an exponential growth in planning approaches, analysis frameworks,
measurement indicators, audit systems, and evaluation protocols designed to
help governments, businesses, communities, and individuals to make sustainability real. This was great business for consultants, trainers, researchers, and
others. But did it make a difference?
Sustainable livelihoods as boundary work

In the late 1990s, particularly in the UK but also more broadly, the term sustainable livelihoods became the signifier of good development. For a period
this word-pairing became enormously influential in UK international development policy, and a quintessential example of how sustainability especially
when connected to another term can be a prime mover in boundary work,
linking science and policy in novel and potentially positive ways.
Originally coined by a committee working on agriculture and food for the
Brundtland Commission during the 1980s (reputedly emerging one evening
over discussion in a Geneva hotel), the term sustainable livelihoods first
appeared in the 1987 Food 2000 report (WCED 1987b). This particular linking of terms was given definitional flesh by Robert Chambers and Gordon
Conway in a discussion paper published by the Institute of Development
Studies in 1992 (Chambers and Conway 1992). For a time it languished out
of the policy limelight, but with the publication of the UK governments
White Paper on international development in 1997 (DFID 1997), it was suddenly centre-stage, and seen as a critical element of development thinking
for the new department (the Department for International Development,
DFID), now with ministerial status and with a dynamic minister Clare
Short in the lead role.
William Solesbury (2003) lucidly documents the policy history of sustainable livelihoods over this period, tracing linkages between researchers, White
Paper drafting teams, advisory committees established by the new department,
and the bureaucratic manoeuvrings of key individuals within government.
Before long a large section of the department, with a substantial spending
budget and a dedicated cadre of staff, had adopted the name sustainable livelihoods. In a few short, if busy, months the old style natural resource department had been transformed, according to the promotional rhetoric, into
something forward-looking, cross-cutting, and dynamic that could meet the
New Labour political demands of doing something effective about poverty
and development.
Government enlisted external experts, including researchers, NGO workers, and others, to think through the implications. A researchers checklist
developed by a team at the Institute of Development Studies (Scoones 1998)
SUSTAINABILITY
157
was adapted and embellished and became a framework, and, later, a whole
suite of approaches (Carney 1998; 2002). And, with this, the acronyms
started to flow, a brand was created, and a whole industry of trainers, consultants, web-based information specialists, and others were commissioned to
make sustainable livelihoods a central thrust of UK development policy.
This flurry of activity and discussion was not confined to the new DFID:
other aid agencies looked with interest at what was happening in London.
NGOs such as Oxfam GB were also developing their own approaches (Neefjes
2000), and even large UN agencies such as the FAO became interested in the
approach as one that transcended narrow sectoral concerns and took a more
integrative approach to development and poverty reduction.1
This was classic boundary work. Scientific concerns, drawing from ecology,
economics, and politics, merged with specific political and bureaucratic agendas in a process of mutual construction of both science and policy. Alliances
were formed, spanning government, NGOs, private consultants, and academia,
linking often unlike organisations and individuals, both North and South. It
seemed that a word (or in this case two) had created a whole network, loosely
affiliated around a set of often rather vague and poorly defined understandings
of a complex and rather ambiguous concept. But at the time and in certain
places, notably DFID it had an important uses, both conceptual and political.
Things fall apart

But all good things must come to an end. While the DFID-centred network
disintegrated for parochial, bureaucraticpolitical reasons, a wider crisis of
confidence overwhelmed the confident, positive members of networks centred on ideas of sustainability by the late 1990s. Why was this?
The 1992 Rio agenda was of course extravagantly ambitious, and high
hopes depended on the processes that arose from it. But not everyone was
playing ball. Commercial interests lobbied hard in the USA, for example, to
dilute the conventions, and, in the end, the USA did not sign up. Beyond the
geopolitics of sustainability and the particularly recalcitrant role of the USA
in its new-found position as sole global superpower, there were other impediments to the realisation of the ambitious aims of Rio. Once the heads of state
had left, the often newly created Environment Ministries had the task of seeking budgets and creating a political space back home for environment and
development agendas. Given other pressing issues, this was usually an up-hill
struggle. For those governments that had signed up to conventions, much
energy was spent on complying with the elaborate consultation, planning,
and reporting requirements. For cash-strapped new ministries in developing
countries, this was not easy. For sure, aid flows helped as agencies re-geared
their funding to accommodate the new enthusiasm for environmental issues,
but this was often not enough to bring sustainable development beyond the
rhetorical gloss and the often half-hearted routinisation of action planning,
indicator monitoring, and sustainable development projects.
Buzzwords and the ambitions with which they are associated that become mainstream and incorporated into routine, bureaucratic procedures often (perhaps always) suffer this fate. For many commentators writing since
2000, the simplistic managerialism of many initiatives labelled sustainable
development left much to be desired (Berkhout et al. 2003). Critiques focused
on the lack of progress on major targets set in 1992, the endless repackaging
of old initiatives as sustainable this or that, and the lack of capacity and commitment within governments and international organisations to make the
ideals of sustainability real in day-to-day practice (Vogler and Jordan 2003).
With the default bureaucratic mode of managerialism dominating and its
focus on action plans, indicators, and the rest the wider political economy of
sustainable development was being neglected, many felt. Its politics, stupid,
commentators argued. And, with mainstreaming and bureaucratisation, the
urgency and political vibrancy is lost, and, with this, comes a dilution and loss
of dynamism in a previously energetic and committed debate.
Long live sustainability

But all was not lost. While the coalitions formed before and after the Rio
conference may have dispersed, fragmented, and turned in on themselves,
since the late 1990s there has been a revival but in different guises of
sustainability debates. And this time politics is more to the fore.
Rather than emerging from a rather ethereal and abstract idea of sustainability derived from theory, debates in recent years have focused on some big
issues that have hit the international headlines. These have resulted in both
public and, usually later, political reactions. For example, the controversy
about genetically modified (GM) crops, which peaked in Europe in the late
1990s and early 2000s, had many political and policy reverberations internationally. This was a debate about, among other things, the sustainability
of farming systems, the future of food, human health, and biodiversity, and
corporate control of the agri-food system (GEC Programme 1999). In the
same way, the debate on climate change did not really begin to be taken seriously until after the year 2000. No longer was this a discussion on the arcane
specifics of global climate models, but a real political and economic issue, to
which people and governments had to pay attention. Concerns about the
environment-and-development drivers of new global diseases and pandemics were also pitched into the public and political realm, first with SARS and
then avian flu.
All of these issues and the list could go on are centred around classic
sustainability questions: they each involve complex and changing environmental dynamics which have an impact on human livelihoods and well-being;
they all have intersecting ecological, economic, and socio-political dimensions;
and, as with an increasing array of environmentdevelopment issues, they have
both local and global dimensions.
SUSTAINABILITY
159
But what is equally sure is that the existing sustainable development institutional and policy machinery is incapable of dealing with them effectively.
The Kyoto Protocol on climate change has all but collapsed, and the options
for a post-Kyoto settlement that involves the USA, China, and India have yet
to be elaborated. Questions of biosafety surrounding GM crops have not been
resolved, and the UN Biosafety Protocol seems far from an effective answer.
And recent disease scares have shown that neither global institutions nor local
health systems are able to deal with the likelihood of a global pandemic.
So how have new coalitions, networks, and affiliations formed around the
concept of sustainability? In contrast to the BrundtlandRio period of the
1980s and 1990s, today there is nothing that can be constructed as a global
consensus. While the post-Rio institutions such as the UN Commission for
Sustainable Development and the secretariats of the different conventions
still exist, they are not necessarily seen as the rallying points for new initiatives. For these we have to look beyond these institutions to new actors and
groupings.
The 2002 Rio-plus-10 conference in Johannesburg was not such a big deal
as its predecessor, but it did attract some interesting groups and some strong
debate and, importantly, much dissent. Conflicts were sparked by the still
very live GM debate, for example, where anti-GM activists and social movements were pitched against corporations that had re-branded themselves as
committed to sustainable agriculture globally. More generally, there was a
heated debate about whether the sustainable development mainstream had
sold out to the needs of business and global capital, or whether such accommodation and dialogue with big business was the only route to getting corporate responsibility on sustainability issues (Wapner 2003).
Debate also flourished around the pros and cons, successes and failures
of the divergent routes of the Rio commitments between local solutions
(around Agenda 21) and international legal processes (around the global conventions). Some groups argued that local solutions had shown more promise, particularly where intransigent governments subject to extreme corporate
lobbying pressure (notably the USA, but perhaps increasingly in Asia) were
unable to realise any sustainable development goals, yet cities and neighbourhoods could make great strides towards, for example, tackling the effects of
climate change, conserving green spaces, or meeting recycling targets. Others,
by contrast, argued that the big sustainability agendas remain global, and, in
an increasingly globalised economy and inter-connected world, seeking some
form of international agreement on such issues perhaps with new institutions such as a World Environmental Organisation remained, despite the pitfalls and obstacles, a key objective for achieving sustainability (Newell 2001).
Thus by 2002, the sustainable development movement, so confidently ambitious at Rio a decade before, was more muted, more fractured, and perhaps a
bit more realistic. The term sustainability has however persisted, and indeed
been given more conceptual depth in explorations of resilience (cf. Folke et al.
2002; Clark and Dickson 2003). As a boundary term, linking diverse groups
even those who violently disagree with each other it remains a useful unifying link. To be effective in this boundary work, it is often essential to remain
contested, ambiguous, and vague. While academics continue to endeavour
to refine its meaning, locating it in ever more precise terms within particular
disciplinary debates, it is the more over-arching, symbolic role of aspiration,
vision, and normative commitment that remains so politically potent.
Where next? Reinventing a buzzword

So what of the future? Will sustainability become the unifying concept of the
twenty-first century, as many so boldly proclaimed just a few years ago? Certainly the managerialism and routinised bureaucratisation of the 1990s have
been shown to have their limits. While sustainability-related commissions,
committees, and processes persist in various guises, they have perhaps less political hold than before. But with climate change in particular and wider risks
associated with environmental change, whether epidemic disease or biodiversity change now being seen as central to economic strategy and planning,
there are clear opportunities for the insertion of sustainability agendas in new
ways into policy discourse and practice.
But can an old buzzword be reinvigorated and reinvented for new challenges, or does it need discarding, with something else put its place? Certainly
terms associated with sustainability such as resilience, robustness, diversity,
and precaution are all seen more frequently in policy debates these days
(Stirling 2007). But they all have direct links to sustainability, both intellectually, institutionally, and politically. So the lineage persists. Future buzzword
archaeologies will no doubt trace transmutations, adaptations, and shifts, but,
in my view at least, sustainability and the wider agenda that it inspires is
here to stay.
Note
1.
See information on the 5m DFID-supported FAO Livelihoods Support

Programme at the IDS-hosted information portal, Livelihoods Connect,
at www.livelihoods.org/lessons/project_summaries/ supp4_projsum.html
References
Berkhout, F., M. Leach, and I. Scoones (eds.) (2003) Negotiating Environmental
Change. New Perspective from Social Science, Cheltenham: Edward Elgar.
Carney, D. (ed.) (1998) Sustainable Rural Livelihoods: What Contribution Can We
Make? London: Department for International Development
Carney, D. (2002) Sustainable Livelihoods Approaches: Progress and Possibilities
for Change, London: Department for International Development.
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161
Chambers, R. and G.R. Conway (1992) Sustainable Rural Livelihoods: Practical Concepts for the 21st Century, Discussion Paper 296, Brighton: Institute
of Development Studies.
Clark, W. and N. Dickson (2003) Sustainability science: the emerging research
program, Proceedings of the National Academy of Sciences 100: 805961.
Common, M. and S. Stagl (2005) Ecological Economics An Introduction,
Cambridge: Cambridge University Press.
DFID (1997) Eliminating World Poverty: A Challenge for the 21st Century,
White Paper on International Development, Cm 3789. London: Stationery
Office.
Dobson, A. (1999) Justice and the Environment: Conceptions of Environmental Sustainability and Dimensions of Social Justice, Oxford: Oxford University Press.
Elkington, J. (1997) Cannibals with Forks: The Triple Bottom Line of 21st Century
Business, London: Capstone.
Folke, C., S. Carpenter, T. Elmqvist, L. Gunderson, C. S. Holling, and B. Walker
(2002) Resilience and sustainable development: building adaptive capacity
in a world of transformations, Ambio: A Journal of the Human Environment,
31(5): 43740.
GEC Programme (1999) The Politics of GM Food: Risk, Science and Public Trust,
University of Sussex: ESRC Global Environmental Change Programme.
Gieryn, T. (1999) Cultural Boundaries of Science: Credibility on the Line, Chicago,
IL: Chicago University Press.
Holling, C.S. (1973) Resilience and stability of ecological systems, Annual
Review of Ecology and Systematics 4: 123.
Holmberg, J., S. Bass, and L. Timberlake (1991) Defending the Future: A Guide to
Sustainable Development, London: Earthscan.
Kates, R.W., W.C. Clark, R. Corell, J.M. Hall, C. Jaeger, I. Lowe et al. (2001)
Environment and development: sustainability science, Science 292: 6412.
May, R. (1977) Thresholds and breakpoints in ecosystems with a multiplicity
of stable states, Nature 269: 4717.
Neefjes, K. (2000) Environments and Livelihoods: Strategies for Sustainability,
Oxford: Oxfam (UK and Ireland).
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Pearce, D. and G. Atkinson (1993) Capital theory and the measurement of
sustainable development: an indicator of weak sustainability, Ecological
Economics, 8: 1038.
Schmidheiny, S. and L. Timberbake (1992) Changing Course: A Global Business
Perspective on Development and the Environment, Cambridge, MA: MIT Press.
Scoones, I. (1998) Sustainable Rural Livelihoods: A Framework for Analysis,
Working Paper 72, Brighton: Institute for Development Studies.
Selman, P. (1998) Local Agenda 21: substance or spin?, Journal of Environmental
Planning and Management 45(5): 553.
Solesbury, W. (2003) Sustainable Livelihoods: A Case Study of the Evolution
of DFID Policy, ODI Working Paper 217, London: Overseas Development
Institute.
Stirling, A. (2007) Resilience, Robustness, Diversity: Dynamic Strategies for
Sustainability, paper submitted for ESEE Conference, Leipzig, 35 June.
Vogler, J. and A. Jordan (2003) Governance and the environment, in

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About the author

Ian Scoones is a Professorial Fellow at the Institute of Development Studies at
the University of Sussex, where he is co-director of the Social, Technological
and Environmental Pathways to Sustainability (STEPS) Centre.
CHAPTER 15
From the right to development to the

rights-based approach: how human rights
entered development
Peter Uvin
This chapter offers an intellectual genealogy of how the concept of human rights
has entered the development discourse from the formulation of a right to development to the rhetorical incorporation of rights within prevailing discourse,
to the articulation of a rights-based approach to development. It concludes with
some propositions about the important role that a focus on rights might play in
the practice of international development.
Introduction
Rights, human rights, and rights-based are relatively recent additions
to the development lexicon (Tomasevski 1993; Sano 2000). For decades,
the development enterprise lived in perfect isolation, if not ignorance, of
the human-rights system and its implications for development. During the
1990s this began to change, for three main reasons. The first was the end of
the Cold War, which opened the door to greater missionary zeal. The second
was the manifest failure of structural adjustment programmes, which came
to be seen as caused by a lack of government accountability and prompted a
major push for good governance and democracy. And thirdly, development
thinkers always seek to redefine development as being about more than economic growth: talking about human rights is one way to construct a more
holistic definition.
By the end of the 1990s, both the PowerPoint presenters and the dirtyfingernails folk had converged around some acceptance that human rights
ought to play a larger role in development. But quite what role, and what
this might mean for the development enterprise itself, has remained both
vague and contested. This chapter offers an intellectual genealogy of rights
in development from the formulation of a right to development to the
rhetorical incorporation of rights within prevailing development discourse,
to the articulation of a rights-based approach to development.1
The right to development

Development as a concept first entered the human-rights edifice through
the debate on the right to development. The idea was launched by the
Senegalese jurist MBaye in 1972 a period of radical debate about the New
International Economic Order (NIEO). During the first half of the 1970s,
Third World countries used their numerical majority in the United Nations
to try to negotiate reforms in the global political economy of trade, finance,
investment, aid, and information flows. This effort was led by well-known
Third World nationalists, emboldened by the success of the OPEC oil embargo, which many believed was the beginning of a fundamental reshuffling
of the worlds economic power cards.
The notion of a right to development provided legal and ethical authority
to the Third Worlds request for the international redistribution of resources.
In addition, it acted as a counter-argument against rich countries exclusive
insistence on political and civil human rights. Acrimonious discussions about
the NIEO persisted for years, but led to no concrete results, apart from the
signing of a few weak international commodity agreements. By 1985, the intellectual and political pendulum had swung dramatically rightwards, and
structural adjustment had replaced international reform as the talk of the day.
The notion of a right to development did not die altogether, partly because
the developing countries had learned that, in the words of Ian Brownlie, it
had become evident that the political futures market was in the area of human
rights and it was therefore prudent to pursue policy goals under that banner
(1989:3, cited in Slinn 1999: 370). After much legal wrangling, in 1986 a right
to development was adopted as a UN General Assembly resolution (i.e., not a
treaty, and thus without binding force), stating as follows:
The right to development is an inalienable human right by virtue of
which every human person and all peoples are entitled to participate in,
contribute to, and enjoy economic, social, cultural and political development, in which all human rights and fundamental freedoms can be
fully realized. (www.unhch.ch/html/menu3/b/74.htm)
This was the kind of rhetorical victory that diplomats cherish: the Third
World got its right to development, while the First World ensured that the
right could never be interpreted as a greater priority than political and civil
rights, that it was totally non-binding, and that it carried no resource-transfer
obligations.
Human rights, once set down on paper, never die, even though no one
may care much about their survival. Rather, they mutate into working groups,
commissions, and expert panels, each of which produces reports that are
occasionally the subject of discussions in low-level meetings. Sometimes,
however, out of this patient work contested or marginal rights obtain a second
lease of life. This is what happened to the right to development. At the 1993
World Conference on Human Rights in Vienna, the right to development was
HOW HUMAN RIGHTS ENTERED DEVELOPMENT
165
re-adopted, this time unanimously, as part of the broader Vienna Declaration

and Programme of Action. Thus it can be claimed that the right to development now reflects a global legal consensus, and as such represents a victory
for its advocates, pyrrhic as it may be. Following this, in 1997 the right to
development was honoured with its very own independent expert, Indian
economist Arjun Sengupta, who has produced a series of fine reports.
From a political, real-world, perspective, the track record of the right to
development is catastrophic. According to most legal scholars, the declaration
was bad law: vague, internally contradictory, duplicating other already codified rights, and devoid of identifiable parties bearing clear obligations (Slinn
1999; Rosas 1995; Obiora 1996). Affirming that all people have the right to
development, and that such development consists of, and is realised through,
the realisation of every existing category of human rights is surely a beautifully worded statement, but it is also operationally meaningless. This quality
is nicely exemplified in the following quote from the UN Working Group on
the Right to Development, which describes the right as being
...multidimensional, integrated, dynamic and progressive. Its realization
observes the full observance of economic, social, cultural, civil, and political rights. It further embraces the different concepts of development of all
development sectors, namely sustainable development, human development, and the concept of indivisibility, interdependence, and universality
of all human rights. (Approvingly quoted in UNDP 1998: 3)
It is little wonder that the right to development has so rarely been invoked
by a social movement or by a major organisation promoting social change.
Rhetorical-formulaic incorporation
During the 1990s, bilateral and multilateral aid agencies published a slew of
policy statements, guidelines, and documents on the incorporation of human
rights in their mandate. An enormous amount of this work was little more than
thinly disguised presentations of old wine in new bottles. A few quotes suffice.
[The World Banks] lending over the past 50 years for education, health care,
nutrition, sanitation, housing, environmental protection and agriculture have
helped turn rights into reality for millions (Lovelace 1999: 27; World Bank
1999: 3, 4). Or UNDP, claiming that it already plays an important role in the
protection and promotion of human rights. Its program is an application of
the right to development (UNDP 1998: 6). What these statements essentially
do is colonise the human-rights discourse, arguing, like Molires character
who discovered that he had always been speaking prose, that human rights
is what these development agencies were doing all along. Case closed; high
moral ground safely established.
A more benign interpretation is that these verbal changes constitute the
first steps towards a true change of vision. Indeed, much scholarship argues
that discourse changes have real-world impacts: they slowly redefine the
margins of acceptable action, create opportunities for redefining reputations

and shaming, change incentive structures and the way in which interests and
preferences are defined, influence expectations, etc. This is, after all, a key
proposition of all international law: that even in the absence of enforcement
mechanisms, international law does matter by affecting actors perceptions,
calculations, reputations, and norms. Hence, rhetorical incorporation, while
it may change little in the immediate term, may make a real difference in the
longer run.
Until now, however, what this approach has produced is not only a simple
sleight-of-hand. It has also overlooked the tensions between the different logics of human rights and of development. As Donnelly (1999: 611) convincingly argues, referring to the UNDPs new work on human development,
Human rights and sustainable human development are inextricably
linked only if development is defined to make this relationship tautological. Sustainable human development simply redefines human rights,
along with democracy, peace, and justice, as subsets of development.
Aside from the fact that neither most ordinary people nor governments
use the term in this way, such a definition fails to address the relationship between economic development and human rights. Tensions
between these objectives cannot be evaded by stipulative definitions.
To work out the relations between development and human rights requires
more than simply stating that one automatically implies, or equals, or subsumes, the other. Michael Windfuhr (2000: 25), founder of FIAN, one of the
worlds foremost human-rights organisations devoted to an economic right
(the right to food), adds:
Besides the general misconceptions related to ESC [economic, social, and
cultural] Rights that they are costly to implement, that implementation
can only be done progressively and that they are therefore not rights at
all but rather political objectives one additional basic misunderstanding often comes up in discussions on how to integrate ESC-Rights into
development cooperation, the concept that development cooperation
automatically implements ESC-Rights because it is oriented to improve
health or food situations of groups of the population. A rights-based
approach means foremost to talk about the relationship between a state
and its citizens.
There is a real danger, then, in this kind of rhetorical discourse. Far from
constituting the first step towards a fundamental re-conceptualisation of the
practice of development co-operation, it seems merely to provide a fig-leaf for
the continuation of the status quo. By postulating that development projects
and programmes by definition constitute an implementation of human rights,
the important difference between a service-based and a rights-based approach
to development is obscured. To have a right to something say, food it not
just about having enough of that: a slave can be well nourished too. It is about
167
having a social guarantee (Shue 1980), which implies that it is about the way
the interactions between citizens, states, and corporations are structured, and
how they affect the most marginal and weakest in society. This is obfuscated
in a lot of the easy and self-serving rhetoric that agencies produce.
Human rights and good governance

Human rights came, in the 1990s, to be harnessed to the good governance
agenda (see Thandika Mkandawires contribution to this volume). Initially
developed by the World Bank as an extension and deepening of the economicconditionality agenda contained in the classical structural adjustment programmes of the 1980s, the terminology of good governance has been taken
over by some bilateral donors and the entire UN system. Governance specialists,
indicators, programmes, and conferences have multiplied like mushrooms after
a rainy night. In Development and Human Rights: The Role of the World Bank, the
Bank declares:
By helping to fight corruption, improve transparency, and accountability in governance, strengthen judicial systems, and modernize financial
sectors, the Bank contributes to building environments in which people
are better able to pursue a broader range of human rights. (World Bank
1998: 3)
As this quote suggests, and as discussed above, much of the conversion to
human rights still amounts to little more than rhetorical repackaging: policies
that were once justified by their potential to improve investor confidence are
now justified for their human-rights potential, at least in brochures destined
for the human-rights community. Nothing else, however, changes. It takes
more than a few ideological leaps to see how strengthening financial systems
is a human-rights activity. One feels sure that the framers of the Universal
Declaration and the two Covenants were not thinking of shoring up bankingreserve requirements, improving accounting standards, or current-account
liberalisation when they were building the human-rights edifice.
In statements like these, the many faces of power, and their associated discourses, come together. Human rights, free trade, or the willingness to let
rich-country multinational corporations (MNCs) buy national assets become
conflated. All amount to re-statements of the good world as the powerful
see it. They are decreed from above, morally self-satisfying, and compatible
with the status quo in the centres of power. A huge range of other rich-country
behaviours remains immune to criticism. Northern over-consumption, a history of colonialism, lopsided environmental degradation, protectionism, the
dumping of arms in the Third World, the history of shoring up past dictators,
the wisdom of structural adjustment, and globalisation all are off the discussion table. No wonder so many people resent the human-rights agenda.
Freedom as development
A new paradigm emerged in the early 2000s. In it, development and rights
become different aspects of the same dynamic, as if different strands of the
same fabric. Development comes to be re-defined in terms that include human rights as a constitutive part: all worthwhile processes of social change are
simultaneously rights-based and economically grounded, and should be conceived of in such terms. Without doubt the most referred-to reflections on this
new paradigm are found in Amartya Sens Development as Freedom, in which
he defines development as the expansion of capabilities or substantive human
freedoms, the capacity to lead the kind of life he or she has reason to value
(Sen 1999: 87). He argues for the removal of major factors that limit freedom,
defining them as poverty as well as tyranny, poor economic opportunities
as well as systematic social deprivation, neglect of public facilities as well as
intolerance or over-activity of repressive states (Sen 1999:1).
Sen treats freedom as simultaneously instrumental, constitutive, and constructive for development, setting out the deep mutually constitutive links
that exist between these two concepts and domains in ways that make their
inseparability clear. With Sen as their champion, these ideas have made great
inroads in international development discourse. But they are not in themselves new: democracy and development have long been linked in political
and development discourse. Take this statement, for example, from the UN
Secretary-Generals Agenda for Development:
Democracy and development are linked in fundamental ways. They are
linked because democracy provides the only long-term basis for managing competing ethnic, religious, and cultural interests in a way that
minimizes the risk of violent internal conflict. They are linked because
democracy is inherently attached to the question of governance, which
has an impact on all aspects of development efforts. They are linked
because democracy is a fundamental human right, the advancement of
which is itself an important measure of development. They are linked
because peoples participation in the decision-making processes which
affect their lives is a basic tenet of development. (United Nations 1994,
para. 120)
This was written five years before Sens book, by an institution that is
not exactly the hotbed of philosophical innovation. We have to acknowledge that these ideas have been around a long time in the development
field. Rather than congratulating ourselves on how smart and perceptive we
have become since reading and discussing Sens work, we ought to ask why
we have not acted on these ideas before. And this is where we encounter
the limits of Amartya Sens major contribution to development. There is no
politically grounded analysis of what stands in the way of his approach.
This is hardly cause for discarding his contribution: no man is obliged to do
everything. What it does mean, though, is that agencies, by signing up to
169
Sens vision, remain committed to little more than improved discourse in

this case in a well-appreciated economic-sounding form.
It is interesting here to consider UNDP, the institution whose discourse has
adopted Sens ideas most enthusiastically. Its milestone 2000 Human Development Report dealt with human rights and human development, and the relations between the two. The section that describes the practical implications of
promoting rights in development (UNDP 2000:112) proposes five concrete
things:
launch independent national assessments of human rights

align national laws with international human-rights standards and
commitments
promote human-rights norms
strengthen a network of human-rights organisations
promote a rights-enabling economic environment.
As we can see, four of the five implications are of the largely meaningless
legalistic and technical kind that will not challenge anyone: ensure that governments make references to human rights in their constitutions and remove
laws that are contrary to human rights; educate, sensitise, or mobilise people
in human rights; create national human-rights commissions, ombudsmen,
and the like. These are all potentially useful activities, but they do not reflect
any mainstreaming of human rights into development practice; they are simply small, technical add-ons, of doubtful operational relevance. Only the fifth
seems to offer the potential of going further. Allow me to quote from it at
some more length:
How to create an enabling environment in which public policy can most
effectively provide resources for advancing human rights? First, the public sector must focus on what it can do and leave for others what it should
not do. Second, with this division of labour, the state can focus on
the direct provision of many economic, social, and civil rights. ...Third,
the major economic ministries, such as finance and planning, need to
integrate rights into the economic policy-making process. Fourth, the
private sector also has responsibilities in creating an enabling economic
environment. Chambers of commerce and other business organizations
should contribute to efforts to further improve human rights (UNDP
2000: 118-19)
This is all that the new approach amounts to: a standard repetition of the
end-of-the-1990s liberal dogma of the sanctity of economic growth combined
with some human-resource development and a few pious recommendations
that ministries and corporations and the Chamber of Commerce? ought to
think about human rights. Vagueness dominates. Note also that none of the
human-rights objectives relates to UNDP, the aid enterprise, or the international community itself. All of them are to be implemented out there, in the
Third World, without requiring a critical look at oneself.
The rights-based approach

Others mainly NGOs have gone much further, erecting a new vision of
their work, the so-called rights-based approach. The rights-based approach to
development is useful not so much because it posits rights as fixed properties
or legal certainties, nor because it somehow leads us to engage in actions or
supply services that we would never have thought of beforehand. Rather, its
use lies in two things that are both important for development specialists: one
about claims, and one about processes in other words, one about ends and
one about means (Sengupta 2000a: 568).
First, the rights-based approach to development encourages a redefinition
of the nature of the problem and the aims of the development enterprise into
claims, duties, and mechanisms that can promote respect and adjudicate the
violation of rights. Typically, this brings about a root cause approach, focusing primarily on matters of state policy and discrimination. The move from
needs to rights, and from charity to duties, also implies an increased focus on
accountability. Indeed, at the heart of any rights-based approach to development are concerns with mechanisms of accountability, for this is precisely
what distinguishes charity from claims (Frankovits and Earle 2000:7; Mukasa
and Butegwa 2001; de Feyter 2001: 285; UNDP 2000; HRCA 2001: 2). If claims
exist, methods for holding to account those who violate claims must exist as
well. If not, the claims lose meaning. Note that this is not the same as saying
that only justiciable legal remedies suing people before courts of law are
suitable remedies: many forms of social counter-power, administrative mechanisms, open discussion, and shared ideological constraints can act as mechanisms of accountability as well. At the end of the day, although they seem to
rest on a clear and fixed legal basis, the nature of the claims and the duties
created by human-rights claims is a deeply political and constantly shifting
matter; for what is socially and legally feasible today is never fixed, but a matter of political struggle.
Second, a rights-based approach brings to development work the realisation that the processes by which development aims are pursued should
themselves respect and fulfil human rights (Sengupta 2000b; UNDP 2000).
The human-rights approach to development argues that any process of
change that is being promoted through development assistance ought to be
participatory, accountable, and transparent, with equity in decision-making
and sharing of the fruits or outcome of the process (Sengupta 2000b: 2122;
see also Frankovits and Earle 2000; Mukasa and Butegwa 2001; DFID 2000).
In other words, it ought to respect the dignity and individual autonomy of
all those whom it claims to help, including the poorest and the most excluded, including minorities and other vulnerable groups, often discriminated
against; it ought to create opportunities for their participation opportunities that are not dependent on the whim of a benevolent outsider, but rooted
in institutions and procedures.
171
Nice as this all sounds, it still poses the so what? question rather acutely.
After all, the insight that all development ought to take place in a participatory manner, with priority given to the poorest and the most excluded, is
hardly revolutionary for the development community. All these issues have
been on the agenda for anywhere between ten and 30 years. Development
practitioners did not need to wait for human-rights lawyers to tell them that
these things are important; rather, what they need is a sense of the extent to
which the human-rights paradigm can constitute the basis for a different practice. And of course that has been much, much harder to achieve, or to implement. The risk always exists that taking up a rights-based approach amounts
to little more than making nice statements of intent regarding things that it
would be nice to achieve, or duties we would like the world to assume one day,
without setting out either the concrete procedures for actually achieving those
rights or methods of avoiding the slow and dirty enterprise of politics. A number of more progressive NGOs are trying to think through what it concretely
means to apply a rights-based approach, but the jury is still out on whether
this makes any difference in either programming or impact on the people for
whom and with whom they work.
Conclusion
As might be expected, there is a lot less in the emerging human-rights-indevelopment regime than meets the eye. Much of it is about the quest for
the moral high ground: draping oneself in the mantle of human rights to
cover the fat belly of the development community, avoiding challenging the
status quo too much, or questioning oneself or the international system. As
a result, one can see power at work here. This is to be expected: most of this
rethinking constitutes a voluntary act by people in New York, Washington,
London, or Geneva smart and well-intended, most of them, but not exactly
those in great need of overthrowing the established order. This stuff has not
been fought for by the masses in whose name it is adopted. It is not part of a
fundamental reshuffling of the cards of power, or a redistribution of resources
worldwide: no such dynamic has occurred. As a result, one could expect little
more, maybe, than fluff, self-congratulation, and more or less hidden transcripts of power.
At the same time, there is no reason to be exclusively cynical. Major
change always starts small, and even rhetorical gains sometimes turn out to
be the snowballs that set in motion fresh avalanches. In addition, there are
organisations and people, in both rich and poor countries, who are courageously rethinking their long-held ideologies and practices in terms of human
rights. And there are many more development practitioners, everywhere, who
debate questions in a new manner and try to add layers of accountability, transparency, and organisation to their own work. Much more can be done with
human rights.
If a rights-based approach to development means empowering marginalised

groups, challenging oppression and exclusion, and changing power relations,
much of this task lies outside the legal arena, falling squarely in the political
realm. Support for the development of international coalitions mobilising
shame; the creation of ideational and normative pressure through the spread of
convergent shared expectations and discourses; the mobilisation of grassroots
and citizen power in favour of certain rights; the certainty that international aid
actors will speak out loudly against violations and will extend support to local
actors opposing these violations; the creation of ombudsmen, whistle-blowers,
and other complaint mechanisms: all these are means not purely legalistic of
promoting human rights.
If the development community is serious about human rights, then the
rights focus cannot be limited to projects. This is an issue of coherence: why
use the approach for one part of life and not for another? If donors, be they
governments, NGOs, or international organisations, profess attachment to
human rights in their development aims, they must be willing to apply the
rights agenda to all of their own actions (the inward focus), and to the global
political economy of inequality within which they occupy such privileged
places (the outward focus). In the absence of such moves, the human-rights
focus is little more than a projection of power, and the world has had enough
of that already (Duffield 2000; Windfuhr 2000). In other words, the promotion of human rights begins with oneself.
As with most ethically desirable aims, organisations seeking to promote
human-rights outcomes through the use of aid have a very easy place from
which to start: themselves. Ensuring that their internal personnel management and decision-making procedures are non-discriminatory, nonexclusionary, transparent, and accountable, for example, especially for field
offices, may well be a minor revolution. Adding to this the application of
the same criteria to an organisations dealings with its closest direct partners
in the field increases the impact: does it hire its employees, or provide its
services, on a non-discriminatory basis? Does it function in a manner that is
accountable and transparent? Does it promote these outcomes through all
means possible: dialogue, support, principled communication?
In addition, the human-rights approach to development clearly implies
an absolute requirement of participation, whose suspension, abrogation, or
limitation is only allowable in the most extreme of circumstances. In practice,
this means that aid agencies should ensure that they provide all relevant information to those concerned, in local languages if necessary; that they strictly monitor and ensure the security of those who do choose to participate;
that they do all that is possible to ensure that under-represented groups are
brought into the process as well; that they meet all the costs that participation
may cause, both to themselves and to the potential participants. Lets face it:
this costs money. Besides money, the strong requirement for participation also
entails a strict duty for donor agencies to be transparent, to ensure that their
173
aims, assessments, resources, and constraints are known (or could be known)
by all those concerned.
The resulting clarity may benefit not only wide participation and frank
discussion among all parties concerned: it may also contribute significantly
to an increase in donor credibility. It also calls for a broad commitment by
aid agencies to give much greater priority to promoting local dialogues, to
stimulate local knowledge-generation and research, to find ways of making
peoples voices heard by those in power both out of respect for the dignity of
people, and because they are the ones who have to live with the consequences
of being wrong.
Acknowledgements
1.
This chapter draws substantially on my earlier piece On moral high

ground: the incorporation of human rights by the development enterprise, Praxis: The Fletcher Journal of Human Security XVII:1926 (2002),
available at http://fletcher.tufts.edu/praxis/xvii/Uvin.pdf/ and also in
Development and Human Rights (Kumarian Press, 2004). I thank Andrea
Cornwall for her excellent editing.
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but partial integration of human rights and development, Human Rights
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About the author

Peter Uvin holds the Henry J. Leir Chair of International Humanitarian Studies at the Fletcher School of Law and Diplomacy at Tufts University in Boston.
He has worked for a range of development agencies in Africa, especially in
the Great Lakes region. His book, Aiding Violence: The Development Enterprise
in Rwanda, won the African Studies Associations Herskowits Award for most
outstanding book on Africa published in 1998.
CHAPTER 16
Civil society
Neera Chandhoke
The idea of civil society has proved very elusive, escaping conceptual grasps and
evading surefooted negotiation of the concept itself. Resurrected in a very definite
historical setting, that of authoritarian states, the concept of civil society came
to signify a set of social and political practices that sought to engage with state
power. The close connection with the re-emergence of the concept and the collapse
of dictatorial states made civil society attractive to a variety of political agents
pursuing different agendas: expanding the market at the expense of the state,
transiting from mass politics to single-issue and localised campaigns, undermining confidence in accepted modes of representation such as political parties, and
in general shrinking the domain of the state and that of accepted modes of politics. That the concept of civil society could suit such a variety of different political
projects is cause for some alarm, for it might well mean that civil society has come
to mean everything to everyone remotely interested in it.
Introduction
The concept of civil society was rediscovered and accorded pre-eminence in
political practices in a very definite political context: in Stalinist states in Eastern and Central Europe, which had denied their citizens basic rights, and in
Latin America, where military regimes had managed to survive by employment of the same methods. In the context of autocratic states, the concept
quickly acquired a subversive edge. It was in civil society that individuals and
groups set out to challenge unresponsive and authoritarian states through
peaceful and non-violent methods: strikes, protest marches, demonstrations,
dissemination of information through informal networks, and the formation
of associational life through the setting up of reading clubs and discussion
forums. The net effect of mobilisation in civil society is well known: some
very powerful states collapsed, in the face of mass protests, like the proverbial
house of cards.1
In retrospect, two aspects of the argument on civil society appear tremendously significant. The first aspect was the sustained demand for political
rights, and more particularly civil rights: the right to freedom of all kinds,
from freedom of expression to freedom to form associations. The second aspect was signified by complete disenchantment with vocabularies that spoke
of taking over state power through revolutionary means, smashing the state,
or transforming the state. Born into a world disenchanted with overbearing

states, with political parties that preferred to follow the impulse to power
rather than representing their constituencies, and with trade unions which
had become bureaucratic and unrepresentative, the concept of civil society highlighted one basic precondition of democracy: state power has to be
monitored, engaged with, and rendered accountable through intentional and
engaged citizen action.
It is clear that civil societies have won their most momentous victories
against authoritarian states. That is why civil society, as the antonym of authoritarianism, is on everyones lips government officials, journalists, funding agencies, writers, and academics, not to mention the millions of people
across the globe who find it an inspiration in their struggles for a better world.
Cited as a solution to social, economic, and political dilemmas by politicians
and thinkers from left, right, and all perspectives in between, civil society is
claimed by every part of the ideological spectrum as its own. But what exactly
is it? (Edwards 2004:2).
From contested concept to consensual hurrah word

There was a time when civil society was interesting, even riveting, for
political theorists, simply because rival and often acrimonious interpretations,
formulations, and theorisations jostled with each other to impart meaning
to the concept. There was a time, in other words, when civil society was an
essentially contested concept. Today it has become a consensual concept, a
hurrah word, and a matter of tiresomely unanimous acclaim. In the process,
civil society has been flattened out.
The reasons for this flattening out are the following. Firstly, the close connection between the civil society argument and the demise of authoritarian
regimes came to be perceived by many multilateral and donor agencies as a
sure recipe for democracy. Secondly, the generalised discontent that political
parties and trade unions as agents of representation had become bureaucratic,
unresponsive, and concerned more with the pursuit of power than with representation of their constituencies led scholars and activists to look to other agents in civil society to deepen democracy. In the process, civil society
came to be interpreted as an alternative to the formal sphere of party politics.
Thirdly, in the wake of the post-Washington Consensus forged by the World
Bank, the state was brought back in: it was expected that the state would
share its functions with civil-society organisations. In other words, the state
came to be pluralised, and a number of NGOs emerged to perform the many
tasks heaped upon the shoulders of civil society.
Closely allied as they are to the agendas of the donor agencies, contemporary versions of civil society have drastically emptied the sphere of any
other agency, such as social movements or political struggles. Civil society
consists only of voluntary agencies, and what is euphemistically termed the
third sector. Witness the tragedy that has befallen the proponents of the
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concept: people struggling against authoritarian regimes had demanded civil

society; what they got instead was NGOs! In the process of being presented as
an alternative to the formal sphere of politics, the state driven by the logic of
power, and also the market driven by the logic of profit, the concept has been
abstracted from all debates and contestations over its meaning, stripped of its
ambiguities, its dark areas, and its oppressions, and presented to us as an area
of solidarity, self-help, and goodwill.
The idea that civil society can provide an alternative to the state and to
the market helps funding organisations to bypass the Third World state and
disburse aid directly to organisations in civil society. The sovereignty of the
Third World state has been compromised by this fact alone. However, the
very idea that civil society can be protected from the reach of the state is
astounding, when the essential conditions of civil society for instance, the
rule of law, which regulates the public sphere and guarantees the rights of its
inhabitants are institutionalised by the state. The belief that civil society can
give us an alternative both to the state and to the market is utopian at best
and dangerous at worst, for it simply messes up our comprehension of what
the sphere is about.
Nowhere in the history of civil society has it been conceptualised as an
alternative to or as independent of the state. For de Tocqueville (1835, 1840),
civil society limits the state; for Hegel (1821), civil society is a necessary stage
in the formation of the state; for Marx, civil society is the source of the power
of the state; and for Gramsci (19291935), civil society is the space where the
state constructs its hegemony in alliance with the dominant classes. Not only
are the state and civil society a precondition each for the other, but the logic
of one actually constitutes the other. Today, however, the two have been uncoupled. Whatever the reason for this uncoupling, the moment that we think
of civil society as a welcome alternative to the state, we conveniently forget
that the concept has always been problematic for political theory. Anxious
questions about the sphere have almost always outstripped the answers to
these questions. Today, however, civil society is readily and smoothly presented as an answer to the malaise of the contemporary world.
If civil society is hailed by almost everyone, from trade unions, social movements, the United Nations, the International Monetary Fund, the World Bank,
NGOs, lending agencies, and borrowing agencies to states both chauvinistic
and democratic as the ideal elixir to counter the ills of the contemporary
world, there must be something wrong. To put it bluntly, if the concept of civil
society can be used by groups of every ideological stripe and hue with equal
dexterity and presumably much profit, civil society must surely prove advantageous for all. Why? Because it has ceased to mean anything? Because it has
been reduced to a project that Western funding agencies seek for their own
reasons to promote in other parts of the world? Because it has been watered
down? Or because this understanding of the concept excludes much more
than it includes? The emergence on our theoretical horizon of a truncated,
flattened out, jaded avatar of civil society, stripped of all contradictions and
tensions, may justifiably give us cause for thought.
The ubiquity of a concept, we can conclude somewhat regretfully, may
prove ultimately to be its undoing. For if it comes on to everyones lips with a
fair amount of readiness, it must have lost both shape and content. Amid all
this acclaim, ritual invocations of civil society as a panacea for the ills of the
modern world simply sound insipid and dreary. Where in all of this are the
grey areas of civil society that Hegel spoke of? Where are the exploitations and
the oppressions of civil society that Marx passionately castigated? Where is
the state-inspired project of hegemony that Gramsci unearthed so brilliantly
and perceptively? What we are left with is a one-dimensional, watered-down
concept that has ceased to have any meaning, least of all for those who are
supposed to benefit from it.
Tracing the emergence of civil society

The concept of civil society swept into prominence in the 1980s for reasons
that are by now well known. Intellectuals in Eastern Europe began to realise
that the two options that had been historically available to people struggling
to emancipate themselves from unbearable political situations were no longer
accessible to them. The first option was reform of state power from above. The
second was that of revolution from below. Both had been ruled out by the
Brezhnev doctrine, namely that the (former) Soviet Union would not hesitate
to intervene in the affairs of Eastern European states, wherever and whenever
the need arose.
Reeling under obdurate state power and imperious bureaucracies, people
found the lack of civil and political liberties, state monopoly over economic
and social transactions, and absence of participative citizenship or representativeness both claustrophobic and intolerable. Some remedy had to be found.
The only option that presented itself as credible in this context was to carve
out a free zone within the existing system. Here people could associate and
express their sentiments without fear amid warm networks of solidarity. The
Eastern Europeans called this free zone, peopled by social associations, selfhelp and self-management organisations, and characterised by mutual solidarity, civil society.
Theorised as a metaphorical space between the household and the state,
the call to civil society served to repopulate the public sphere, which had
been disastrously emptied out by regimes intent on monopolising the nooks
and crannies of social and political life. The slogan of civil society naturally
appeared attractive to people who for long had inhabited politically arid, remorseless, and desolate political spaces. It offered the promise that a rather
tormenting deficit in the lives of people would be filled up by warm and personalised social interaction, even as these very people turned their back on
the state.
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Forged as it was in the historical context of Eastern Europe, three features

of the civil-society argument stand out as significant. First, it announced the
determination of people who had been banished from the political arena to
insert themselves into the political discourse on their own terms. The invocation to civil society conveyed a statement of intent: that ordinary people
have the capability to fashion their own lives. Second, the argument asserted
that the nurturing of self-help and solidarity through thick and overlapping
associations reading clubs, discussion societies, trade unions, self-education
groups was a good thing in itself, for it provided a counterpoint both to the
state and to the atomism of individual life.
Civil society emerged in Eastern Europe as the site where people, organised
into groups, could make and pursue democratic projects of all kinds in freedom from bureaucratic state power. Third, then, the argument sought to institutionalise statesociety relationships, even as it asserted that procedures
such as the rule of law, institutionalisation of political and civil rights, and
accountability should be codified in order to limit the power of the state over
all areas of social life. In the process, the historical pairing of state and civil
society was uncoupled.
The end of politics as social transformation

The argument developed rapidly into a polemical slogan that counter-posed
the sphere of voluntary and purposive collective action to dictatorial state
power. Matters did not rest here, for an activity that had initially concentrated
on carving out a free zone within existing state power was to develop into a
powerful political movement, albeit one that was haphazard, spontaneous,
and unorganised. In 1989, we were to witness the awesome spectacle of so
many powerful states in Eastern Europe literally collapsing before agitating
and agitated crowds assembled in the streets.
Even as a purportedly self-limiting social revolution transformed itself into
a highly charged political revolution, a fourth dimension was added to the
civil-society argument. The civil public, which had initially turned its back on
the state, had dramatically transformed itself into the political public, concerned with the form and content of power. The civil in civil society no
longer signified non-political; it meant that people inhabiting the sphere outside the state had the right to debate about the nature of the state and the
politics that it pursued.
In retrospect, two aspects of the civil-society argument in Eastern Europe
give us cause for thought. Firstly, if we look closely at the details of the argument the demand for civil liberties, especially the right to freedom of
expression and the right to associate, rule of law, limited state power, political accountability and the freeing of the market it is clear that the Eastern
Europeans were practically re-enacting the bourgeois revolution that had
taken place in England in the seventeenth century against absolutist state
power. John Locke, the quintessential liberal thinker, may well have authored
the civil-society script for and in Eastern Europe in the 1980s.
Secondly, the message conveyed by the experience of Eastern Europe was
to validate precisely what Antonio Gramsci had conceptualised in the 1930s:
that wherever and whenever states whether absolutist or socialist deny
their people political and civil rights, we can expect the eruption of discontent
against exclusions from structures of citizenship and representation. Gramscis
dictum that states that do not possess civil societies are more vulnerable than
those that do possess them was to prove more than prescient in this case. The
tragedy here was that because people in Eastern Europe were deprived of civil
rights, and because the civil-society argument concentrated on resuscitating
those rights, the Eastern Europeans, through and by the civil-society argument, proclaimed a final end to the revolutionary imagination. The argument
effectively killed off the idea of politics as social transformation. From the
1980s onwards, civil society replaced revolution as the prime locus of passions
and imaginations. It is not surprising that scholars and political commentators wedded to bourgeois liberalism hastened in the aftermath of the velvet
revolutions to proclaim an end to ideology and an end to history.
The rise of the civil-society argument in development

The civil-society argument, fashioned in the historical context of Eastern
Europe, was to have a powerful influence on the way that scholars and activists conceptualised the human condition in other parts of the world. It was to
prove extraordinarily influential. The reasons had partly to do with the bourgeois liberal acclaim of the end of ideology, its insistence on the bankruptcy of
the socialist tradition, and its emphasis on the viability of liberal democracy
as the sole option for politics. The attraction of civil society in such instances
had less to do with the intrinsic value of the concept and more to do with its
ideological association with the end of socialist societies. It was this sentiment
that was hijacked by donor agencies, which sought to posit the construction
or expansion of civil society as the answer to all kinds of historically specific
problems.
The civil-society argument was also enthusiastically embraced by activists
and scholars, for reasons that were relatively independent of the end of ideology thesis. These had largely to do with the failure of the state, especially
in developing countries, to deliver a minimum standard of life to its people.
Powerful bureaucracies and political elites, consolidating their power in the
interstices of post-independence states, had simply turned their backs on the
very same masses who had put them there in the first place. Scholars in India
were to speak of corrupt bureaucracies and of even more amoral and powerhungry political leaders, who were completely impervious to the fact that
state-led development had failed miserably. These scholars were to castigate
the bankruptcy of the political vision; they were to bemoan the loss of hope,
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181
and express a lack of confidence in the capacity, or indeed the willingness, of

the state to be responsive to the needs of the people.
It is not as if authoritarian state policies had not been resisted earlier. Since
the late 1960s, militant struggles against state power had been launched by
the Naxalite movement. The early 1970s saw the formation and consolidation
of a number of social movements challenging the agenda of the state, such
as the anti-caste movement, the farmers movement, and the womens movement. After the lifting of the Emergency in 1977, two of the most important
movements in contemporary India in the 1980s the civil liberties movement
and the environmental movement appeared as dominant actors on the
political scene. The public sphere of Indias civil society became noisy, untidy,
vibrant, and creative.
Still, what was needed was a concept, a vocabulary, and an agenda that
would (a) locate these struggles; (b) emphasise the legitimate rights of a people
in a democracy to make demands on the state; (c) insist on state accountability; and (d) stress the importance of an autonomous site where people
could engage in democratic projects for their own sake. This vocabulary and
this concept were found in civil society. Oddly enough, the language of civil
society, which, as the product of specific historical processes in England and
France, is arguably an alien import, proved peculiarly apt for societies that
were struggling to consolidate fledgling democracies.
It was in the midst of disenchantment with the overreach of the state
in Africa as well as Asia that the concept of civil society took hold of the
imaginations of both the left and the right. It promised an exit from bureaucratic inefficiency and political indifference. The state could no longer be
relief upon; it had failed miserably, despite having exercised untrammelled
power for decades. People looked for an alternative to state-led projects and
state-inspired developments. The wave of protest movements that overtook
Africa in the early 1990s, movements that were popularly hailed as the second
liberation of the continent, were accordingly conceptualised as civil society
versus the state.
The inhabitants of Western European societies were to make roughly the
same complaint: that of the unresponsiveness of the state and the indifference of the bureaucracy. If socialism had failed in the eastern part of Europe,
liberal democracy was not doing too well in the western part of the continent. Civil societies had been rendered passive and quiescent, even as statedominated strategies had colonised what Habermas (1987) felicitously termed
the life world. In the USA, theorists complained about the disappearance
of civic virtue among the inhabitants of civil society. Robert Putnam (1994,
2000) remonstrated about the lack of associational life, and Francis Fukuyama
(1995) complained about the absence of what he called trust. A vibrant and
politicised civil society, as the Eastern European case had shown, promised the
rebuilding of both political activism and civic virtue.
Civil society as a project

The moment we perceive civil society from the vantage point of marginalised
groups, we may be forced to accept that there is a deep and perhaps irresolvable tension between the acknowledged virtues of the sphere and its actual
functioning. Yet social movements can, through struggle, expand and even
transform the sphere of civil society. They can do this by demanding that civil
society deliver what it promises in theory: freedom from domination, freedom
to achieve self-realisation, freedom to assert selfhood. Far from being a given,
civil society is a project whereby individuals can realise their self through
engagement, contestation, and affirmation.
Civil society is a project in another sense. Theorists as eminent as Adam
Smith (1776) and Georg Hegel (1821), who were to conceptualise civil society
in the first instance, saw it as a deeply troublesome sphere. They were perfectly
aware of the many incivilities that civil society was capable of; and for neither
could the sphere reproduce itself without deliberate intervention to tame it.
We only need to look at post-velvet revolution Eastern Europe in order to
insert a word of caution into the celebratory notes on civil society: for, once
civil society had been resurrected in this context, people found that they
really did not want it.
The dismantling of state institutions and the opening out of markets has
inevitably led to uncompromising austerity, massive unemployment, discrimination against ethnic minorities, and resultant ethnic explosions. The rolling
back of the state from any kind of responsibility for the people has left those
who cannot fend for themselves at the mercy of those who are in a position
to profit from new arrangements. People in this part of the world, it is obvious, have been as quickly disenchanted with civil society as they had been
enchanted by the invocation of the concept.
Yet for all the hubris associated with civil society, it remains a valuable
term. This is not because it is a precondition for democracy, or democratisation as political conditionalities would have it, but because it is a site where
various groups can engage with each other in projects of all kinds. Its absence
would mean the absence of democracy, and of the freedom that is necessary
for democratic engagement. By asserting civil society, people demand that regimes recognise the competence of the political public to chart out a discourse
on the content and the limits of what is politically desirable and democratically permissible. In the heady days when theorists brought Civil Society Back
In, the domain came to be increasingly conceptualised without reference
to the state. Now any self-respecting scholar knows that civil society can be
conceptualised only in relation to the state, and vice versa.
The de-linking of the state and civil society has greatly impoverished our
understanding of both concepts. Those theorists who waxed eloquent on the
need for people to connect were to stray away from the shadowy peripheries
of actually existing civil societies and underplay the ambiguous relationship of
this sphere with democracy. Such formulations obfuscate the conflict within,
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and the general incivility of much of civil society, because they are completely
indifferent to the notion of power.
Taking a long hard look within civil society itself focuses our attention on
power equations of all kinds: on material deprivation, unevenly shared conceptual understanding, dominant and marginal languages, and the many oppressions, the many incivilities, the many banishments of civil society. Some
groups possess overlapping political, material, symbolic, and social power;
others possess nothing, not even access to the means of life. The former find
a space in civil society, and civil society finds a place for them; the latter are
banished to the dark periphery of the sphere. The irony is that even though
most countries of the developing world are primarily rural, it is the urban
middle-class agenda that is best secured by the invocation of civil society. The
agenda of oppressed and marginal peasants, or of the tribals who are struggling for freedom, remain unrepresented either in the theory or in the practice
of civil society. Therefore, in order to find a voice, marginal groups may well
have to storm the ramparts of civil society, to break down the gates, and make
a forcible entry into the sphere.
Beyond normativity
Like other domains of collective interaction, civil society too is a contested
site. That is why dreams of a democratic civil society are also a project of civil
society. But for this, we have to accept that it is not enough that there be a
civil society, or even a civil society that is independent of the state. It is not
something that, once constructed, can be left to fend for itself; nor is it an
institution. Civil societies are what their inhabitants make of them. They can
easily become hostages to formal democracy at best, and undemocratic trends
at worst. There is nothing in civil society that automatically ensures the victory of democratic projects. All that civil society does is to provide actors with
the values, the space, and the inspiration to battle for democracy.
It is critical to go beyond the buzzword that civil society has become if it
is to regain the vitality that it once had as an essentially contested concept.
In this chapter, I suggest that it is vital to disentangle normative expectations
from the analysis of actually existing civil societies, and to see what civil society actually does or does not do for different people who inhabit the sphere.
If we want to see what kind of civil society is feasible and possible for our
historical agendas, then we cannot allow our political passions and normative
concerns to obfuscate our understanding of this sphere.
Note
1.
This chapter draws substantially on Chandhoke (2003).
References
Chandhoke, Neera (2003) The Conceits of Civil Society, New Delhi: Oxford
University Press.
Fukuyama, Francis (1995) Trust: The Social Virtues and Creation of Prosperity,
New York, NY: Free Press.
Gramsci, Antonio (1971) [19291935] Selections from Prison Notebooks of
A. Gramsci (Q. Hoare and G.N. Smith eds.), New York, NY: International
Publishers.
Habermas, Jrgen (1987) Theory of Communicative Action, Vol. 2. Lifeworld and
System: A Critique of Functionalist Reason, Boston, MA: Beacon Press.
Hegel, Georg Wilhelm Fredrik (1942) [1821] The Philosophy of Right (trans. T.M
Knox), Oxford: Oxford University Press.
Putnam, Robert D. (2000) Bowling Alone: The Collapse and Revival of American
Community, New York, NY: Simon & Schuster.
Putnam, Robert with Robert Leonardi and Raffaelle Y. Nanetti (1994) Making
Democracy Work: Civic Traditions in Modern Italy, Princeton, NJ: Princeton
University Press.
Smith, Adam (1952) [1776] An Inquiry into the Nature and Causes of the Wealth of
Nations, in Robert Maynard Hutchin (ed.) Great Books of the Western World,
Chicago, IL: William Benton.
Tocqueville, Alexis de (1955) [1835 and 1840] The Old Regime and the French
Revolution (trans. Stuart Gilbert), Garden City, NY, Doubleday Press.
About the author

Neera Chandhoke is Professor of Political Science and Director of the Developing Countries Research Centre at the University of Delhi. Her most recent
works include The Conceits of Civil Society (2003) and Beyond Secularism: The
Rights of Religious Minorities (1999).
CHAPTER 17
Public advocacy and people-centred

advocacy: mobilising for social change
John Samuel
Public and people-centred advocacy are shaped by the political culture, social
systems, and constitutional framework of the country in which they are practised.
It is the practice of advocacy that determines the theory, and not vice versa. If
advocacy is not rooted in grassroots realities and is practised only at the macro
level, the voice of the marginalised is increasingly likely to be appropriated by
professional elites. However, the very credibility of advocacy practitioners depends
on their relationship with mass-based movements and grassroots perceptions of
what constitutes desirable social change.
Introduction
Public advocacy has become a bandwagon that everyone is clambering on to.
But hardly anyone seems to know what it really is. The bandwagon is certainly
very appealing. The fast-food toolkits on the streets of the development market find a ready-made clientele. But they turn the ideas and action required for
long-term social change into trivial, quick-fix tools for scaling up impacts. In
the process, public advocacy becomes a victim of the bandwagon syndrome.
Many people claim that they are promoting or doing advocacy without really
thinking about what they mean by this. How many of its proponents know
that it is about actions that are rooted in the history of socio-political and
cultural reform? Few seem to go beyond the bandwagon syndrome to redefine
the concept and practice of advocacy in promoting social change.
As a form of social action, the nature and character of both public and peoplecentred advocacy are very much shaped by the political culture, social systems,
and constitutional framework of the country in which they are practised. And
they are influenced by the ways in which decision making and public policies
are influenced by public-interest or social-action groups in different contexts. It
is the practice of advocacy that determines the theory, and not vice versa. The
trouble is that public advocacy is used to signify a broad sweep of practices,
ranging from public relations, market research, and report-writing to lobbying,
public-interest litigation, and civil disobedience.
Public advocacy can be considered from three perspectives: political, managerial, or technical. While effective public advocacy integrates all three, the
emphasis will depend on the beliefs and background of the proponent. For
instance, a social or political activist will perceive public advocacy basically
as a political process, which may involve some professional skills or technical
understanding of the appropriate methods. But someone with a managerial
background may see it as the effective use of technical devices, skills, and professional practices, with or without much of a political component. Hence the
need for a long-term political and historical perspective on the concept and
practice of public advocacy and people-centred advocacy, and their relevance
for advancing a more humane, just, and equal world.
Understanding advocacy: a political perspective

Public advocacy is a set of deliberate actions designed to influence public
policies or public attitudes in order to empower the marginalised. The main
difference between it and people-centred advocacy is that such actions are
undertaken in ways that empower people, particularly the marginalised. In
a liberal democratic culture, public advocacy uses the instruments of democracy and adopts non-violent and constitutional means. It is perceived as a
value-driven political process, because it seeks to question and change existing unequal power relations in favour of those who are socially, politically,
and economically marginalised. In the Indian context, grassroots organisation
and mobilisation are used to generate an awareness of and assert ones rights
as a citizen, and lend credibility, legitimacy, and crucial bargaining power to
public advocacy.
Advocacy therefore involves the following:
Resisting unequal power relations (such as patriarchy) at every level,

from the personal to public, from family to governance.
Engaging institutions of governance to empower the marginalised.
Creating and using spaces within the system, in order to change it.
Strategising the use of knowledge, skills, and opportunities to influence public policies.
Bridging micro-level activism and macro-level policy initiatives.
In India, one of the major thrusts of public advocacy is the implementation

of existing social-justice legislation and social-security programmes. Progressive legislation such as the Equal Remuneration Act, the Dowry Prohibition
Act, the Bonded Labour Prohibition Act, and the Prevention of Atrocities
against Scheduled Caste and Scheduled Tribe Act is often honoured more in
the breach than in the observance. This is principally because we lack the
political will and administrative efficiency to put the legislation into practice,
but also because of the incompatibility between libertarian or liberal constitutional values and traditional socio-cultural practices (like caste) and religious
values (like fatalism).
Since, in a liberal democratic framework, public policies play a vital role in
determining the directions of social justice, political and civil liberties, and the
PUBLIC ADVOCACY AND PEOPLE-CENTRED ADVOCACY
187
long-term interests of the environment and the general public, the primary
focus of advocacy is to influence policy formulation, change, and implementation. But public policies are a function of the dominant political equation
at a given time. Hence, in order to influence public policies, it is necessary to
influence the prevailing power relations in favour of the marginalised.
Influencing power relations is a complex process involving confrontation
and negotiation among different interest. To do this effectively depends on
having other sources of power. In the context of public advocacy, there are six
major sources of power:
the power of people, or citizens mobilisation

the power of information and knowledge
the power of constitutional guarantees
the power of direct grassroots experience and linkages
the power of networking alliances and solidarity
the power of moral convictions.
Advocacy does not depend only on having information, but on being able
to transform such information into knowledge by interpreting it with reference to specific values.
Advocacy in India
India has seen public advocacy on issues such as environmental degradation,
the rights of dalits and tribal peoples, womens rights, civil rights, and many
others. While voluntary organisations and activist groups have focused on
social, developmental, and political interventions at the micro level, their efforts to influence the formulation or implementation of public policies have
tended to be fragmented, with little national impact. Even so, successful advocacy campaigns like the Silent Valley Movement in Kerala (described below)
and the amniocentesis campaign in Maharashtra illustrate the potential of
organised advocacy in exerting pressure to enact progressive legislation.
As the lives of ordinary Indians are increasingly affected by economic liberalisation, so there is a growing realisation among social-action groups of the
need to empower the people to influence public policies. The isolated murmurs of dissent can be amplified and channelled through advocacy efforts.
Clearly the methods and approaches that are adopted must be grounded in the
Indian context. It is also necessary to understand the limitations of public advocacy, as well as its potential for achieving social change in India. In many of
the more effective advocacy campaigns, mass mobilisation, improvised forms
of non-violent protest and persuasion, public-interest litigation, pressure for
legislative change, lobbying of public officials, and media work were strategically and simultaneously used to build up an effective public argument.
Advocacy without mobilisation is unlikely to achieve much. The credibility and socio-political legitimacy of advocacy efforts largely depend on the
means and the ends being consistent and compatible. In the Indian context,
grassroots support rather than professional background is what most determines a lobbyists credibility. A major challenge is therefore to safeguard and
extend the political space in which to advocate for the cause of the marginalised, resisting the agendas set by others, whether the multinational corporations or various kinds of fundamentalism.
For practical as well as ethical reasons, then, public advocacy needs to go
beyond public policy to the larger arena of influencing societal attitudes and
practices so as to transform an oppressive value system into a more just and
humane one. Public advocacy cannot be undertaken in a vacuum. Issues of
deprivation, injustice, and rights violation are its impetus. Without an issue,
what would one advocate for? The second part of this chapter therefore considers the question of communication in creating the momentum for peoplecentred advocacy for social change.
People-centred advocacy
People-centred advocacy seeks to challenge and change unjust power relations at all levels: people are the alpha and omega. Though focused on public
policies, the larger purpose of people-centred advocacy is social transformation such that all people realise their human rights, including civil, political,
economic, and social rights. It seeks to promote social and economic justice,
equitable social change, and sustainable development. Public-policy change is
one means of achieving these goals.
Social-change communication is central to people-centred advocacy, seeking to inform and educate a large number of people in such a way that they
are enabled to change or redefine their attitudes and values and become more
socially responsible and empowered citizens. In the past 20 years, there have
been concerted efforts to build effective communication strategies on issues
such as human rights, womens rights, development, and ecology. While these
strategies helped to increase the outreach and efficiency of information dissemination, a big question mark hangs over their effectiveness in terms of
bringing about attitudinal change.
Communication is ideally a sort of communion or sharing or exchanging
the same set of thoughts, feelings, and attitudes. Creativity, communication,
and community are what distinguish human beings from other living species.
Language and symbols make for an organic and dynamic interplay between
human creativity, a primordial urge to communicate, and the need for community living. One of the crises of the post-modern condition is that these
organic linkages have broken down. Language and symbols have become
subservient to highly mechanised tools for disseminating information. Hence
MTV, Star New, Zee TV, BBC, Doordarshan, the Internet, etc. all have their own
language and symbols. When the content is determined by the medium, the
act of communication becomes increasingly alienated from real communities.
Even if such media do give rise to imagined or virtual communities who feel
189
connected through them, these individuals are not organically connected to

each other.
When communication ceases to be grounded in communities, it is reduced to
a dehumanised form of conveying information or entertainment. The absence
of dynamic symbols and language that connect communities and communication has a negative effect on human creativity, particularly aesthetic creativity.
The bewildering perplexity and anarchy of many of the music albums disseminated through MTV or V channels illustrate the phenomenon. Fragmented
and frozen images stare and laugh at you in the cacophony of sound and fury.
Where does this leave us? How do social-change communicators locate themselves in this jangle? Why is it that we can inform people but somehow fail to
change their attitudes and beliefs?
A recent example of this mal-communication is the AIDS-awareness campaigns intended to educate people and to change their attitudes and behaviour. The international aid agencies imported sophisticated communication
frameworks and mandarins to develop communication strategies and implementation channels. Millions of dollars were spent on five-star workshops
and five-star consultants. But at the end of the day, the exercise had created
more buzz about AIDS than actual changes in peoples attitudes about the
socio-political implications of being HIV-positive, or more informed attitudes
towards sexual choices. Even among the better-run campaigns on environmental protection or womens rights, information was transmitted and received, but without producing much change in attitudes. Partly, this is due
to the inability of dehumanised forms of communication to touch peoples
hearts. In the proliferation of methods to disseminate information, values,
feelings, and cultural ethos get marginalised or completely lost.
Furthermore, even the best of modern communication strategies generally
fail to get beyond a middle-class audience; even if the information does reach
relatively marginalised people in urban slums or rural areas, the message is
often received without being digested. In the case of India, this means that
the vast majority of people are either alienated from or simply not reached by
post-modern communication tools and strategies. The lack of ethical clarity or
political positions tends to produce ambiguous messages. So on the question
of people who are HIV-positive, WHO has one stand and UNDP has a different one, though both of them are in the business of popular communication
about the issue. The result is that ambiguous messages get lost in the labyrinth
of tools and strategies.
Medium in search of a message

Many social-change organisations are like a medium in search of a message.
This is further complicated when the communication process is guided by
institutional interests or by project priorities, rather than by conviction in
the message. In the enthusiasm to create new methods, the conviction in and
clarity of the message for social change somehow get lost. One of the major
obstacles to changing peoples attitudes is the gap between communication

that is mediated through media such as television or the Internet, and socially
mediated communication. The former tends to treat people as targets and
objects that can be influenced or acted upon.
By contrast, in socially mediated or community-oriented communication,
people participate in the process. Hence, they themselves become the medium
and own the process. This makes it impossible to remain indifferent to what is
being communicated. In the formal or technically driven media, the message
is treated like a product to be delivered to a target audience. Indeed, focused
information dissemination is almost like shooting at a target, so its communication strategies tend to emphasise packaging the product to make it more
saleable. In socially mediated and community-oriented communication, it is
the interaction that matters, and involves either the entire community or its
opinion formers.
Interactive communication not only helps to ensure that a message is delivered, but enables the recipients to analyse and interpret it in the language
and cultural ethos that define their collective identity. In other words, it
leads to an interpretative process that is capable of changing attitudes. Modern communication tools are highly efficient for broadcasting or for mass
dissemination, but remain relatively dehumanised. Hence, they are unlikely
to change peoples attitudes. The socially mediated communication methods
are rather slower and best suited for narrow-cast or community-based communication. The advantage of folk communication is that it is a creative and
humanising community-based process.
The medium is the message

I myself experienced the effectiveness of community-oriented communication in the social-change campaigns initiated by Kerala Sasthra Sahitya
Parishat (KSSP) in the early 1980s. Through a series of low-cost, communityoriented communications, involving thousands of young people, KSSP was
able to change peoples attitudes in a very significant way. The best example
is that of the Campaign against the Hydroelectric Project in the Silent Valley,
popularly known as the Silent Valley Campaign. In the late 1970s when the
campaign began, almost all the political parties, trade unions, and newspapers
were either against it or indifferent to the cause. People were by and large indifferent to environment issues. But the situation dramatically changed over
a period of two years, as large numbers of ordinary people began to support
the campaign. There were processions and popular participation in almost
all parts of Kerala. The campaign triggered off a debate on the effectiveness
of the development models and paradigms. It emerged as one of the most effective people-centred advocacy campaigns for environmental protection and
sustainable development.
There was no imported framework, no communication mandarins, no
swadeshi (local) or videshi (foreign) funding, no big institution. What made the
191
difference was peoples participation in a communicative process and communicative action: the community-oriented folk methods clicked; they drew
people into debates and discussions. This did not give people much space
for indifference. Communication took the form of grounded debates at the
grassroots. The issue was discussed and debated in the local teashops with
the morning cup of tea and newspaper. The press could not afford to ignore
an issue that had become the focus of such interest. As student activists, we
made posters, wrote songs, and performed street plays to build up a public
debate and discourse. No one told us what the strategy was, but we knew
what the message was. We were emotionally and intellectually involved. We
had a language and a song on our tongues. We had grown up with the symbols of folklore. We were from the people. Many of us were at our creative
best. We were the grassroots. Without learning any theory of communication,
I instantly realised the organic linkages between creativity, community, and
communication.
Fifteen years later, when I studied the Silent Valley Campaign from the
perspective of public advocacy, I was keen to know what exactly had changed
public perceptions. Then I realised it was the active involvement of four
poets and five poems that played a major role in drawing young people to
the campaign. Poetry, Sanmskarika Jathas (cultural processions), street plays,
indigenous and spontaneous poster campaigns, village-level debates, and
pamphlets were all extensively used. But the major factor was the conviction in and clarity of the main message. The message preceded the medium,
tools, and strategies. There were no institutional interests or communication
framework to mediate between the people and the message. People became
the medium, and the message travelled across drawing rooms to back yards,
to tea shops, to schools and colleges, to the countryside and city streets.
There was no television or newspaper advertising. But there was a lot of
poetry and lots of people. It played a major role in my own and many others
formative years of convictions and activism.
I have also experienced the power of socially mediated communication in
the villages of Mizoram. Mizoram has a unique press culture, hosting scores
of newspapers of different shapes and sizes. There is a culture of discussion
and debate on issues of social importance. The Young Mizo Association (YMA)
makes use of songs and community-level discussions. When communication
gives rise to action, it creates a social momentum with the power to influence
peoples attitudes. The key is in the organic linkages between the process of
communication with popular collective action. Communication without potential action is a passive exercise. The best examples of such linkages can be
seen in the ways that religious leaders such as Buddha or Christ and reformers like Thukkaram and Kabir communicated. Parables were powerful ways
for communicating with the people. The messages were clear, simple, and
straightforward. Messages were for action. That linkage changed peoples attitudes, and it changed history. The songs of Kabir do not need any extra
music; they go straight to the heart.
Reclaiming public advocacy

There is a time for everything: a time to make words and tools, a time to
market them, a time to consume them, and a time to discard them in the
development garbage bin. Those who would promote and defend the use of
public advocacy to bring about social change need to go back to the people
to (re-)learn their language, symbols, and ethos. We need to be clear about
the message before we define the strategies or reach for the tools. We need to
become equal participants in social communication, rather than playing the
role of highly paid experts travelling around with our ready-made toolkits and
frameworks for prescribing the best communication medicine. A real danger
of professional advocacy is that the real issues become diluted or marginalised
in the labyrinth of strategies, tactics, and skills.
If public advocacy is not rooted in grassroots realities and is practised only
at the macro level, the voice of the marginalised is increasingly likely to be
appropriated by urban (or international) elites who have the necessary information and skills. Conversely, the credibility of advocacy practitioners is
on the line if they become alienated from mass-based movements, seduced
by their own influence and co-opted by the power structure, lost in a maze
of vested interest politics. We need therefore to reclaim the organic linkages
between creativity, communication, and communities, bridging the vast gap
between technical communications and social communication. We need to be
more clear and convinced about the message of social change. If we ourselves
dont believe in what we say, people are not going to listen, even if we use the
very latest strategies and tools. Let us create the message, and let us become a
medium for inspiring and rejuvenating the barren lands of imagination and
social action.
About the author

John Samuel is International Director of ActionAid International Asia as well
as a human-rights activist and co-editor of Infochange News and Features.
CHAPTER 18
NGOs: between buzzwords and social

movements
Islah Jad
The associations that the term NGO has acquired in development discourse
need to be critically analysed in relation to practice on the ground. Drawing on
an analysis of the rise of NGOs in Palestine, the author suggests that the development of the NGO movement served to demobilise Palestinian civil society
in a phase of national struggle. Through professionalisation and projectisation
brought about by donor-funded attempts to promote civil society, a process of
NGOisation has taken place. The progressive de-politicisation of the womens
movement that NGOisation has brought about has created a vacuum that has
been increasingly filled by the militancy of the Islamic Movement (Hamas). As
this case shows, NGOs may be a development buzzword, but they are no magic
bullet. Rather than taking for granted the positive, democratising effects of the
growth and spread of NGOs as if they represented civil society itself, this chapter
contends, a more critical approach is needed, one that takes greater account of the
politics of specific contexts and of the dynamics of institutionalisation.
Introduction
The growth of NGOs is a worldwide phenomenon. It is commonly seen as
evidence of the weakening of ideological political parties and the retreat
of the state from providing social entitlements and services, in response to
structural adjustment policies imposed on most Third World countries by
the World Bank and the IMF, and under the pressure of neo-liberal reforms
(Hann 1996; Edwards and Hume 1995; Omvedt 1994). Some see NGOs as
the product of neo-liberal policies, as financially dependent on neo-liberal
sources, and as directly involved in competing with socio-political movements for the allegiance of local leaders and activist communities (Petras
1997). Others see them as mechanisms deployed for the creation of civil
society by external intervention (Sampson 1996:12142), noting the problematic conflation of NGOs with civil society itself. A number of studies
emphasise the negative impact of NGOs on social movements (Petras 1997;
Hann 1996) and explore the impact of what Sonia Alvarez (1998) has termed
NGOisation on mobilisation and social action.
Many scholars view the proliferation of NGOs in the Middle East as evidence of a vibrant civil society (Ibrahim 1995; Norton 1995; Moghadam
1997). NGOs are conflated not only with the democratising features of civil
society but with social mobilisation itself: an association which this chapter
seeks to bring into question. Little has been done to evaluate the impact of
the proliferation of NGOs on the empowerment of the various social groups
that NGOs claim to represent in the Middle East. Nor has their claim to success in mobilising such groups to assert their rights been verified. Equally, few
studies on the Middle East focus on how NGOs affect and interlink with other
forms of social organisation, whether in the form of unions, political parties,
or social movements involving students, women, or workers.
In this chapter, I draw on research in Palestine to explore the consequences
of the mushrooming of NGOs, and, in particular, the NGOisation of Palestinian social movements. I suggest that empowering consequences have not
been brought about by NGOisation as the process through which issues of
collective concern are transformed into projects in isolation from the general
context in which they are applied and without due consideration of the economic, social, and political factors affecting these projects. On balance, my
research has found that the rights-based agenda of womens NGOs has had a
negative impact on the mobilising potential of mass-based womens organisations; and that this impact, in turn, created a space that has helped Islamist
groups to establish themselves as a powerful and hegemonic force in Palestinian civil society.
Palestinian NGOs: a brief history

The role played by Palestinian NGOs before the 1993 Oslo Agreement differs significantly from their role in the post-Oslo phase. Before the formation
of the Palestinian Authority (PA), Palestinian society was organised in and
around political parties and mass grassroots organisations. NGOs were linked
to these parties under the umbrella of the Palestine Liberation Organization
(PLO), which encouraged and financially supported the parties and their satellite organisations. While the PLO and its political parties were banned by
Israel, their satellite organisations were to some extent allowed to work, since
they were seen as service-providing organisations. Between the end of the
1987 intifada and the signing of the Oslo Agreement, the NGO sector was the
main channel of foreign aid aimed at providing services at the grassroots level.
This included clinics, schools, kindergartens, and income-generating projects.
The result was that these NGO actors became important and acquired even
more power than their parent parties.
The role of NGOs in the West Bank and Gaza shifted under the influence
of the state-building process initiated by the 1991 Madrid Conference. The
dynamics of state building and their impact on different forms of organisation
in civil society are important in understanding the process through which the
Palestinian womens movement was demobilised. The dual dynamics of state
NGOS: BETWEEN BUZZWORDS AND SOCIAL MOVEMENTS
195
building and NGOisation led to more fragmentation and demobilisation of all

social movements. The limited life-cycle of projects induced fragmentation,
rather than bringing about what Tarrow (1994) called sustainable networking, whereby ties made with members and organisations are maintained on
a regular basis.
Womens NGOs in the Arab world are considered by some to be important agents for development and democratisation and consequently modernisation (Kandil 1995). Yet, along with being regarded as donor driven,
reflecting a Western agenda and representing elite women (Shalabi 2001;
Hammami 1995; Hanafi and Tabar 2002), in terms of culture (and social
change), these NGOs are seen as reproducing rather than seeking to transform patriarchal and kin-based social structures (Joseph 1997). Not only may
NGOs serve to reinforce the less participatory elements of existing social
and political culture, but NGOisation itself has cultural dimensions, spreading values that favour dependency, lack of self-reliance, and new modes of
consumption. In Palestinian newspaper advertisements, it is common to
read about collective community actions organised by groups of youth, such
as cleaning the streets, planting trees, painting walls, and so on, followed by
a little icon indicating the name of the donor who funded these projects. It
is also noticeable that many NGO activities are held in fancy hotels, serving
fancy food, distributing glossy materials, hiring presentable young people
to help to organise the event or the activity. This phenomenon has led to the
gradual disappearance of the traditional image of the casual activist with a
peasant accent and appearance.
It is, however, with the political dimensions of NGOisation that this
chapter is more concerned: as a process that also introduces changes in the
composition of the womens movement elites (Goetz 1997). In the case of
Palestine, the rise of NGOs and the process of NGOisation can be seen to
have resulted in a shift in power relations: from power to women at the
grassroots to power over them by the new elite (Jad 2004). While NGO
may be a synonym for progressive and participatory among the wellmeaning supporters of well-known international NGOs, such associations
are wishful thinking at best and illusory at worst.
The creation of a new Palestinian civil society

The new NGOs that mushroomed in the post-Oslo period distinguish themselves from the older forms that are categorised as either charitable societies
or popular mass organisations (uttor jamaheryya), which had an entirely different structure, discourse, leaders, projects, and networks (Taraki 1989; Shalabi
2001). The older mass organisations were open-access structures with public
agendas, aiming to mobilise the largest number of students, workers, women,
and youth into organisations serving each of these sectors. The newer ones, in
contrast, are active in cities, run by an urban middle-class elite, and are smaller
entities, dependent upon foreign funding.
The decline of popular grassroots organisations started in the early 1990s

and was related to the decline of what Vivian (1994) calls institutional
politics: politics practised through institutions such as unions and parties.
The peace process triggered a process of state building in which the gender
agenda became a pawn, claimed by those seeking a new basis for legitimacy
after the split of their party, those who wanted to build a new constituency,
and those who wanted to forge a new public space by claiming the state for
citizens and womens rights. By the mid-1990s, Hamas was yet to formulate
a coherent gender vision. However, by concentrating on discrediting any
group or organisation that might claim to change the sharia, they managed
to mount an orchestrated campaign to discredit and de-legitimise the womens organisations that followed a rights-based approach, and with them all
other womens organisations. Meanwhile the new NGOs triggered conflicts
with the earlier forms of mass-based organisation over legitimacy, resources,
and space in public arenas.
The move from the gender agenda to a renewed interest in the national
agenda was not based on continuing linkages with Palestinian constituencies
or any involvement in national activism. Rather, it was brought about by international NGOs and other international players with a key role in choosing
their Palestinian counterparts, whom they handpicked to speak on behalf of the
Palestinian national interest. The national agenda, after the second intifada, was
effectively hijacked by international NGOs and foreign states and donors, and
concentrated on a particular set of issues concerning peace building, conflict
resolution, and related issues. This created a constituency of entire groups that
became the interlocutors of international agencies.
The need for professionals or, in local parlance, motakhassissin (specialists) came alongside the growing activities of womens organisations.
Womens activists were in need of people with specialist skills to push our
work forward. The inclusion of professionals, on boards or in administration, introduced different interests and an alternative vision. The period
from 1988 to 1994 witnessed a proliferation of feminist womens organisations. These new organisations propagated a new discourse on women
and womens status, but within the context of a steady decline in womens
mobilisation. The dichotomy between professional and political was
one of the factors that undermined the kinds of initiative found previously
among womens organisations in Palestine. Professionalisation produces upward rather than downward accountability, exclusion rather than inclusion;
and scaling up brings with it bureaucratisation. As Friedman notes, the result is that power tends to drift upward, professionalisation (which is almost
always dis-empowering) takes over (1992: 142).
There was, at this period, an increased demand by the international
womens and human rights organisations to include a Palestinian voice in
their activities. This led to what Palestinians call the militant with a suitcase
monadel bel hakiba or jet-setting militants. If the first intifada witnessed
the de-linking of many womens leaders from the mass-based organisations in
197
favour of their linkages to the international community (through participation in many activities and conferences), the second intifada witnessed a shift
to NGO leaders representing the voice of Palestinian civil society. Analysing
this shift, Tabar and Hanafi refer to what they call the emergence of a Palestinian globalised elite, tied more closely to the global actors in other words
international NGOs and donors than to local constituencies. They were
characterised by being informed by a global agenda, supporting the peace process, and being urban and professional (Hanafi and Tabar 2002). It was noted
that the globalised elite had overturned the old elite (charitable societies and
womens grassroots groups), through a process of competition and through
vying for organisational continuity.
The NGOisation of the national agenda

Womens activists were heavily involved in the Palestinian national movement from the outset. They sought to mobilise public opinion, whether in the
Arab world or in the world at large, in supporting their national rights to independence and self-determination. That role was recuperated later on by the
General Union of Palestinian Women (GUPW), mainly outside the Occupied
Territories. In the course of the first Palestinian uprising and the move of the
centre of the struggle to the Occupied Territories, that role was largely taken
over by the Palestinian womens movements in the Occupied Territories, who
were better equipped to express their suffering and their daily realities under
the policies practised by the Israeli Occupation Forces.
From the 1990s onwards, however, the effects of NGOisation started to be
felt within the formulation of the national agenda. This position is credible,
since some of the main donors for Palestinian NGOs insisted upon correct
political conditions in an attempt to separate these organisations from politics. But, again, it would be an oversimplification to perceive NGOs as passive recipients, and donors as simply following or executing their government
policies. It was argued that local NGOs, as well as international actors, have
a space to negotiate their mutual relationships. Cohen and Comaroff, for example, state that NGOs do not respond to a need, but negotiate relationships
by convincing the other parties of the meaning of organisations, events and
processes [] they act as brokers of meanings (Cohen and Comaroff 1976: 88,
cited in Hilhorst 2003: 191).
In order to carve out a new basis for legitimacy, distinct from that gained
by the participation of grassroots womens leaders in the national struggle, the
new activists (NGO leaders) made excessive use of the language of expertise
and emphasised their links with international donors. It was common, in these
meetings, to hear how many important state representatives and news agencies had met with these new womens leaders, and how many international
prizes they had been granted for their efforts in the peace process and womens advancement. However, this language failed to convince the old leaders
and was sometimes even met with derision, as one of the old leaders put it:
When we organise demonstrations, they stop their cars in front of the

demonstrations, get their banners out and stand in the first row to be
photographed. They can sell this to the outside, but nobody buys this
internally.
The transformation of a cause for social change into a project with a plan,
timetable, and fixed budget needs to be owned for reporting and to secure
further funding. This is exacerbated by the magic bullet syndrome (Vivian
1994): the view among NGO staff members responsible for designing, implementing, and reporting on projects that they must demonstrate success if
they are to maintain their funding. A corollary of the syndrome is a tendency to gloss over mistakes and to present the project as an unqualified success
story. An explanation that relies exclusively on donor pressure is insufficient,
however, since NGOs can also be seen to be complicit in the donors success
stories. If donors are driven by the logic of efficacy of their funds, then NGOs
are driven by the imperatives of professionalism and delivery. It is therefore
the project logic, the NGOisation of issues related to social change and popular participation, that should be better scrutinised. Nowhere is this more
true than in relation to activities associated with peace in this region.
Projectising peace
The visual display of the peace process (the handshake between Rabin and
Arafat in the lounge of the White House in 1993) was accompanied by an
abundance of internationally funded projects on conflict resolution, peacebuilding measures, building trust, engendering the peace process, and parallel negotiations. These projects, written in highly technical English, usually
involved womens activists in conferences in Europe or in the USA where they
could meet with their Israeli counterparts, in order to dismantle psychological
barriers, push women into decision making, and enhance gendered parallel
negotiations. In most cases, it was the international actors who chose their
local interlocutors.
Many political positions concerning vital issues related to refugees,
Jerusalem, forms of resistance, and the formation of the future state are adopted by the participants of international conferences without consulting
anyone back home. One might argue that there is no single interlocutor to
consult with. This may be true, and indeed many male actors in the international arena do not consult back home. The difference for Palestinian NGO
activists is that they lack the backing of any legitimate political actors in
the PA or civil society, since they have no constituency or political party or
organisations to belong to. Claiming feminist credentials and professionalism are the main criteria to qualify as participants in these forums. In this
context, professionally written reports and easy and efficacious channels of
communications are important. However, their lack of political training as
activist leaders weighs heavily on the legitimacy back home of some of these
NGO elites.
199
The prevalence of particular kinds of project is usually linked to the power of

the donor community to dictate or influence local NGO agendas (Kunibert and
Singer 1996; Pinto-Duschinsky 1991). Some claim that this flow of projects does
not necessarily reflect a well-orchestrated policy by international NGOs and
donors. The international donor community is not monolithic, but is driven by
different interests, visions, and politics. Chabbott (1999), for example, suggests
that there are some international development professionals who have used
their concerns, which are distinct from those of their own donors, to carve out
a larger role for international NGOs in the world polity over time. She suggests
that these international actors have developed a discourse of development,
which placed increasing emphasis on the role of external factors in national
development, simultaneously constraining nation-state autonomy and creating
space for non-state actors in development (1999: 238).
I would argue that, besides their ability to convince international donors of
the vitality of their work, peace activists are driven in this process by their own
interests. The involvement in peace process activities by many NGOs, aside
from getting funding, supports their claim to acquire more power and legitimacy. Peace process activism might after all come to constitute a power base for
the NGO elite to reach decision-making positions, whether in the PA or in the
leadership of the Palestinian womens movements and other social movements.
The new professionals

A combination of schooling and work experience has produced a specialised
cadre of international development professionals who spend the bulk of their
working lives on a series of assignments in global metropolises and the capitals of low-income countries. Carapico suggests that these professionals become somewhat detached from their countries of origin; their perspectives
and concerns may be quite different from those of legislators and ordinary
citizens who fund international development organisations. Given their distance from the funders, they face significant opportunities and temptations
to exercise personal and professional prerogatives. It is these professionals,
rather than national politicians or diplomats, who have generated the international development discourse, written the UN reports, drafted conference
statements, designed conference follow-up strategies, and helped new nationstates to draft national development policies (Carapico 2000). An industry of
funding and projects has developed around issues related to democracy, peace
building, and womens rights; democracy-brokers in Europe, North America,
and Australia are kept busy writing proposals and bids to public bureaucracies
for their projects in the Arab world (Carapico 2002).
Given the power of the international NGOs, one might imagine that some
of this power might trickle down and give more leverage to local professionals
in doing the professional job, i.e. the implementation of the project plan, and
reporting and evaluation, on the ground. The better the quality of the professional work, the better and stronger the relations with the donor. The more that
local professionals can meet expectations, the better their chance of being part
of the virtual community (Castells 1996), which creates a common career path
set out by those humanitarian-oriented organisations that shape their common
culture and belief system. This system includes a belief in the centrality of development to human progress, in the responsibility of governments to promote
it, in the imperative for international development assistance to support it, in
the definition of development in human rather than strictly economic (or political) terms (Chabbott 1999). Thus, the link with international donors is not a
one-way relationship, but donors and local actors interlink in a web of relations
that is far more complicated than one party imposing its will on the other. This
is not to say that both parties have equal power, but simply to problematise the
links between them to include the personal interests of both donors and recipients that give them the power to decide what to take and what to leave.
Concluding remarks
In the above analysis, I argue that professionalisation, as part of an NGO-isation process, might not lead to more participation for the target groups or the
grassroots. Project logic pushes towards upward vertical participation and not
downward horizontal participation, and can lead to further concentration of
power in the hands of administrators or technocrats. NGOisation leads to the
transformation of a cause for social change into a project with a plan, a timetable, and a limited budget, which is owned for reporting and used for the
purposes of accountability vis--vis the funders. This concentration of power
might impede the spread of a social movement in continuous need of networking, deliberation, and mobilisation, based on daily contact and personal connections. This process of dissemination is time-consuming and hard to frame
in timetables, especially in the constantly changing situation in Palestine. In
this context, professionalism and the project logic also provided a new power
base for NGO elites to determine which womens issues should be brought to
public attention. Lack of awareness by NGO professionals of the forces active
in civil society and the public sphere risks weakening calls for more equitable
gender relations and empowering more conservative actors in civil society.
NGOs are often presented as passive recipients of external influence, at the
mercy of the whims of donors: yet analysis of the Do[nor]-NGOs in Palestine
shows the extent to which NGO representatives also have the power to manipulate, re-negotiate, and legitimise donor agendas, using funds earmarked
for peace to further their own agendas. They are part of a globalised elite, in
that they are tied to international players and informed by global agendas.
These links proved instrumental to the NGOisation of the national agenda
in Palestine, transforming it from a struggle to realise self-determination and
sovereign statehood into projects for donor funding, in which donors play a
vital role in choosing their local interlocutors.
What we see as a result of the rise of NGO as a development buzzword is
the mistaken tendency to assume that any and all of the organisations who
201
adopt this term are thereby describing themselves as progressive and democratic. In the case of Palestine, the discourse of NGOs was used to forge a space
in the public arena at the expense of old mass-based organisations. It recast
the old basis for legitimacy founded on resistance and sacrifice as a basis for
womens subordination and isolation. And it spoke less to the overall social,
economic, and political context than to the desires of the donors and elites
who were to propel the rapid growth of these organisations in this setting.
Against this background, I believe that womens NGOs and the new discourses
that they brought to the public sphere might however inadvertently have
acted to disempower, de-legitimise, and fragment civil-society secular actors
and their movements in Palestine.
For all the assumptions that circulate in international development circles
about NGOs being closer to the people, able to speak for the grassroots, and
a motor of democratisation and development, the Palestinian case is a vivid
reminder of the need to get beyond the buzzword itself and take a long, hard
look at what is actually going on. That, as I suggest here, the NGOisation of
Palestinian womens movements and the use by womens NGOs of the currency of rights talk promoted by international NGOs has contributed to the
growing power and legitimacy of the Islamists is consequence enough for such
circumspection to be necessary.
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Joseph, Suad (1997) The reproduction of political process among women
activists in Lebanon: shopkeepers and feminists, in Dawn Chatty and
Annika Rabo (eds.), Organizing Women: Formal and Informal Womens Groups
in the Middle East, Oxford: Berg.
Kandil, Amani (1995) Civil Society in the Arab World, Washington, DC: Civicus.
Kunibert, Raffer and H.W. Singer (1996) The Foreign Aid Business: Economic Assistance and Development Co-Operation. Cheltenham and Brookfield: Edward Elgar.
Moghadam, Valentine (1997) Women, Work and Economic Reform in the Middle
East and North Africa, Boulder, CO: Lynne Rienner.
Norton, Augustus Richard (ed.) (1995) Civil Society in the Middle East, Vols. I
and II, Leiden: E.J. Brill.
Omvedt, Gail (1994) Peasants, dalits and women: democracy and Indias new
social movements, Journal of Contemporary Asia 24.1: 3548.
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15 April 2007).
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foundations and their US counterparts, International Affairs 67(1): 3366.
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Albania, in Chris Hann and Elizabeth Dunn (eds.), Civil Society: Challenging
Western Models, London: Routledge.
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ghayr al-hokomeyya alfelastineyya wa-adwareha [International and Local
Impacts on the Visions and Roles of Palestinian NGOs], unpublished MA
thesis, Palestine: Bir Zeit University.
Taraki, Lisa (1989) Mass organizations in the West Bank, in N. Aruri (ed.),
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About the author

Islah Jad is Assistant Professor of Gender and Development at Bir Zeit
University in Palestine, where she co-founded the Institute of Womens
Studies. She has published widely on Palestinian and Arab womens political
participation and is co-author of the 2005 Arab Human Development Report.
CHAPTER 19
Capacity building: who builds whose

capacity?
Deborah Eade
This chapter focuses on the role that development NGOs play in capacity building, arguing that many conventional NGO practices are ultimately about retaining power, rather than empowering their partners. This leads to tunnel vision
and to upward rather than downward or horizontal accountability, based on the
assumption that the transfer of resources is a one-way process. At worst, this undermines rather than strengthens the capacities of the organisations that NGOs
are attempting to assist. Sharing responsibilities and risks, mutual accountability,
and committing to the long term rather than to short-term projects are more likely
to create partnerships that can withstand vicissitudes and contribute to lasting
change.
Building or undermining capacities?

The danger of working in any kind of aid agency is that one begins to see the
world through its eyes; and, as identities gradually merge, it is increasingly
difficult to look at the world afresh, or to see ourselves as others see us.
This is particularly so in the case of international aid agencies, where the
reality-checks of working up-close and personal are muted in unfamiliar cultural settings, as well as being distorted by asymmetries of power, and by complex insideroutsider dynamics (Eyben 2006). Too easily, development and
aid are used synonymously; and both are assumed to be good. Too readily,
aid agencies assume that their priorities (which are necessarily shaped by their
upward accountability, and fed by their own public-relations priorities) will
naturally coincide with those of the people on the receiving end, or can be
bolted on without too much problem. When they become fashion accessories,
or mere buzzwords invoked in order to negotiate bureaucratic mazes, the use
of concepts such as gender, or empowerment, or capacity building is not
only drained of any remaining political content, but may actually end up
crushing local capacities rather than releasing their potential.1
But if capacity building means anything, it is surely about enabling those
out on the margins to represent and defend their interests more effectively,
not only within their own immediate contexts but also globally. Unless one
believes that the Development Industry in all its expressions is inherently
self-serving, the good cop of international aid vis vis the bad cop of international capitalism, then it follows that hindering social transformation is not
the intended outcome. So what is it that goes so wrong?
There are no easy answers, as every context presents its own specific challenges: the sustained political violence that wracks Colombia is not the same
as the gang violence throughout much of Central America, though doubtless
they share some of the same roots in drug trafficking. And regions that seem
quite calm, at least to an outsider, can erupt apparently overnight. Witness
the Zapatista uprising in Chiapas, which burst into life on 1 January 1994, the
very day that the North American Free Trade Agreement (NAFTA) came into
effect.
My focus here is on the role that development NGOs might play in the
areas of capacity building. This is partly because I have worked mainly in the
development NGO sector for almost 30 years, but more importantly because
it is often assumed that NGOs have some unique ability or role to play in this
arena.2
In time-honoured feminist tradition, I shall start with a thumbnail sketch
of where I am coming from in order to locate myself in this analysis. For most
of my professional career I have worked in the international NGO sector. For
ten years I was on the spending side, based in a regional office for Mexico
and Central America. Though at pains to establish relationships that were
not predicated only on money, we and our partners were under no illusions
about the fact that it was our job to decide who should be funded to do what,
for how long, and on what conditions; and to defend these decisions within
our own regional team and to our managers and oversight committees in the
UK. We saw our role as twofold: on the one hand to provide critical accompaniment to our counterparts, and on the other to marry these to the NGOs
values and criteria in a way that allowed everyone to feel comfortable in the
relationship.
Then followed a wretched time spent working as a bureaucrat in the UK.
Now my job was not to relate to our counterparts, but to police the money.
Counting beans offers no food for the soul, so it was a relief to take on the
editorship of Development in Practice. But as a result, I found my job security
depending initially on a trickle of one-year grants (with the plug likely to
be pulled at short notice), being evaluated by managers with no particular
expertise in journals publishing, chasing funding applications that had languished in someones in-tray for months, having to meet reporting requirements that bore no relation to the needs and rhythms of the project, and so
on. In short, this experience was the same as that of hundreds of thousands of
organisations worldwide that depend on Northern NGO partners. (The contribution to this volume by my former colleague in Mexico, Miguel Pickard,
addresses this problem in greater depth.)
Having been on both sides of the partnership fence has given me some
insight into what constitutes good capacity-building practice, and into how
CAPACITY BUILDING: WHO BUILDS WHOSE CAPACITY?
205
many NGO practices are ultimately about holding on to their own power,
rather than empowering others. This leads me to pose three questions:
What do we understand by capacity building in the context of development, and specifically of development aid?
How central are NGOs in taking forward a capacity-building agenda?
What is their track record in this? Do they really make a difference?
How can the South engage with the North in capacity building?
A background to capacity building

A glance through the development literature from scholarly articles to
agency PR confirms the buzzword status of capacity building. Some dismiss
it for this reason as a sloppy piece of aid jargon. For others, it is a synonym
for institutional or organisational development. Often it is no more than
a serious-sounding alternative to training. After all, no NGO could admit
to funding one-off training workshops whose impact may be short-lived,
or that risk serving mainly as social events for the same old bunch of tired
aid junkies. But simply changing the name does not change the practice,
and adopting a narrow view of capacity building as in-service or vocational
training is just as unhelpful as using it as a catch-all to mean everything and
nothing.
The intellectual and political roots of capacity building lie partly in the
rights-centred capacitacin of Liberation Theology and the conscientizao
work of Paulo Freire. Southern feminists and gender and development policy makers and activists have also deepened the understanding of empowerment and social exclusion (see, for instance, Srilatha Batliwalas contribution
to this volume). Amartya K. Sens work on entitlements and capabilities provides insights into the dynamic nature of the exclusion that capacity building
seeks to address. This has influenced the pivotal work of UNDP on human
development in articulating an alternative to the economic view of human
capital associated with the international financial institutions (see also Ben
Fines contribution to this volume on the subject of social capital). However,
these institutions most notably the World Bank (now re-cast as the Global
Knowledge Bank) have also adopted the language of capacity building and
participation, relating this to the neo-liberal agenda of rolling back the state,
privatising public services (the marketisation of social welfare), good governance, and democratisation. (Evelina Dagninos contribution to this volume
develops this theme in relation to the co-option of the popular democratisation project in Brazil.) In the post-Washington Consensus era, the role of civil
society (another woolly and contested term) is crucial. And, within the international development context, NGOs are considered and often consider
themselves to occupy pride of place as civil society. The list of NGOs with
consultative status at the United Nations runs to 60 pages, each with about
40 entries thats one NGO a day for six and a half years or, if you dont have
that much time, roughly one per minute for an entire 24-hour day. And they
are only the ones at the tip of the iceberg.
My point here is that capacity building originally drew on a generally leftleaning range of intellectual and political traditions, but is today commonly
used to further a neo-liberal pull-yourself-up-by-your-bootstraps kind of
economic and political agenda. If NGOs are not aware of these competing
agendas, their role in capacity building will be at best insignificant, at worst
damaging.
Engaging with the wider context

Capacity building is not a thing or a commodity that can be reduced to a set
of ingredients for a universal recipe on how to do it. Recognising that there
are many diverse and competing actors in development, we can nevertheless
state that its early origins lay in the belief that the role of an engaged outsider
is to support the capacity of local people to determine their own values and
priorities, to organise themselves to act upon and sustain these for the common good, and to shape the moral and physical universe that we all share.
Because aid agencies exist to channel resources from one part of the world
to another, and because the currency of aid remains the Project, despite the
growing Northern NGO focus on advocacy and one-programme frameworks,
it is tempting to take short cuts in order to get things done. This leads to NGOs
taking too little time to understand the local political and cultural environment as well as the international policy context within which people, their
organisations, and their governments are functioning. Aid agencies, particularly but not exclusively NGOs, characteristically see the aspect of peoples
lives that relates to their project-defined target groups, but often fail to see
the cats cradle of shifting inter-relationships in which these same people are
embedded (Eade and Williams 1995: 1719). If NGOs live in a kind of Project
World theme park, they will fail to see the less visible processes that will undermine the impact of their projects. A case in point is the belated discovery
that providing micro-credit to women in Bangladesh, notwithstanding the
remarkable achievements of Mohammad Yunus and the Grameen Bank, does
not always benefit them. Why? Because men use women as a means to get
credit for themselves (Rahman Khan 1995), or because their fathers, brothers,
and husbands feel threatened by womens greater financial independence, and
so literally beat them back into submission (Schuler et al. 1998). Taking more
time to understand the non-project realities and underlying gender-power
dynamics may pre-empt these unintended impacts.
And what are the capacities that NGOs seek to build? They may be intellectual, organisational, social, political, cultural, representational, material,
technical, practical, or financial and most likely a shifting combination of
all of these. The ability to articulate and mobilise around specific interests
or demands is intimately linked to the development of a civil society in
which divergent interests can be represented, and which has appropriate
207
mechanisms for adjudicating among these. Civil society flourishes best

when the state is capable of balancing competing claims in the interests
of the common good. Good governance is not served if a state is encouraged to abandon its responsibilities to its citizens, or when it transfers these
piece-meal to institutions (including NGOs) that see this as a great capacitybuilding opportunity, but are not themselves accountable to those who use
their services a point to which I shall return.
A capacity-building approach therefore means getting out of Project World,
focusing less on supporting scores of projects and more on seeing any intervention within the wider context of social and other kinds of change local,
national, regional, and global. Training may be successful in its own terms,
but contribute very little to enabling participants to change their realities.
International NGOs may claim spectacular campaigning achievements, but
translating these successes into sustainable changes in peoples lives means
a long-term commitment and listening to what they themselves say. Rather
than viewing support for this or that organisation or activity in a fragmented
or insular fashion, it is necessary to look intelligently at the whole web of
social relations within which these organisations and their activities are embedded. A change in one bit of the system may have many repercussions on
another part, not necessarily positive. For instance, if public services are put
out to tender, NGOs that previously co-operated with each other may start to
compete for a lucrative contract. An opportunity for one quickly becomes a
threat to others.
Development NGOs
How relevant are development NGOs to capacity building? Reading some of
the literature, one could be forgiven for thinking both that capacity building
is an exclusively Southern need, and that international NGOs are among
those best placed to meet it.
The sad reality is that most development aid has precious little to do with
building the capacities of The Poor to transform their societies. Not even the
best-intentioned NGOs are exempt from the tendency of the Development
Industry to ignore, misinterpret, displace, supplant, or undermine the capacities that people already have. Recognition of this danger is precisely what lies
behind NGO initiatives to establish standards of behaviour and accountability
in the humanitarian field: initiatives such as the Sphere Project, ALNAP (Active Learning Network for Accountability in Humanitarian Action), or HAP
(Humanitarian Accountability Partnership). Even so, how often do end-users
or clients get to shop around to choose their service provider? The Salvadoran refugees who withdrew their co-operation with the European NGO charged
with providing medical assistance remain an exception that proves the rule.3
There are two points to be made here. The first is that while NGOs may be no
worse than other development actors, they do not have any inherent capacity
to build the capacities of The Poor. Some are of course better equipped than
others to do so: the local faith-based NGO that replaced the ousted European
agency in the Salvadoran case was committed to training the refugee community alongside its provision of health-care services, although this came hand in
hand with what many regarded as a conservative and authoritarian theology.
Conventional wisdom holds that operational NGOs tend to replace rather
than build local capacities, but even here it is difficult to generalise. One British co-operant-sending organisation, for example, has moved away from exporting experts to work overseas for a couple of years towards employing
local experts who can commit to a longer period, building up new social relationships in the process. Similarly, it is often thought that material inputs and
capacity building are at opposite ends of the aid spectrum. Capacity building
is about people and therefore not about things, so training and education are
all right, while bricks and mortar are not. The reality is seldom so stark. I well
recall spending a Sunday morning helping a network of health workers in the
outskirts of San Salvador to build a small clinic, while the afternoon heat was
spent under the mango trees in more conventional health education activities. For them, both were essential: they needed a place to meet and to attend
to patients, particularly in the rainy season, and building a joint community
clinic was critical to establishing mutual trust; they also, of course, needed to
acquire new skills and knowledge. They saw both activities as being on the
same capacity-building spectrum. I learned a lot about building techniques
that day. And I learned a lot more about building a shared vision based on
trust and co-operation.
To take a slightly different example, a Northern NGO that advocates energetically on behalf of its partners in the South may be experienced by them
as diminishing their own voices and knowledge, rather than helping them
to acquire the skills needed to undertake their own lobbying, in their own
time and in their own way arguments reminiscent of the nothing about us
without us slogan that originated in the South African disability-rights movement.4 What this means is that we cannot look at an input in isolation and say
a priori that X represents capacity building while Y doesnt. It is much more
a question of understanding the subtleties of the context and direction; an
approach, rather than a thing.
The second point is that a capacity-building approach hinges on the capacity for self-criticism. We have heard a thousand times that if you give a man
a fish, you feed him for a day, and if you teach him to fish, you feed him for
a lifetime. But, as a friend in El Salvador once asked: What if that fisher is not
a man but a woman? And what if she doesnt own the water in which she is
fishing? Or her customary fishing rights have been taken away from her? An
NGO in South Africa takes the question a step further: what if the NGO does
not even know how to fish? For NGOs to make a lasting difference means that
they must reflect hard on their own role(s) and be alert to changes in the environment in which they operate. It also means a commitment to learning as
intrinsic to their interventions to build the capacities of others.
209
Simply invoking concepts like partnership is not enough to steer NGOs

through these issues. The re-defined role of the state is a case in point. An
NGO may have been doing commendable education with village health workers for many years, complementing government services. However, if the government privatises its health services, or charges user-fees that place health
care out of the reach of those most in need, then that same NGO may find
itself performing a de facto gap-filling role within a quite different political
agenda, one that is bent on reducing the role of the state and privatising public services. My point here is not whether neo-liberalism is good or bad, but
how easily NGOs with a narrow project focus can become unwitting pawns in
others chess games.
What does the North have to learn?

This brings me to my third question. What are the kinds of skill that Northern
NGOs need if they are to adopt a capacity-building approach to their work?
Some have been identified already: self-awareness, self-criticism, and a degree of modesty. Then the ability to distinguish between different agendas
and fads, rather than spinning around like a weathervane in a windstorm. It
also calls for a wide repertoire of engagement. By and large, Northern NGOs
engage with the South via the transfer of financial and technical resources:
in other words, through money-driven partnerships. Although this donor
recipient relationship has been extended in recent years, notably in the area
of advocacy, it essentially remains what it always was. Hard resources are
transferred from North to South in return for soft resources in the form of
information, stories, and New Internationalist-cum-Benetton photos that in
turn feed into the Northern NGOs capacity to raise funds or recruit campaign
supporters. Soft resources may also be used in policy- or issue-focused lobbying and campaigning. But again, the agendas and timetables are almost
invariably set by Northern NGOs and not by their Southern partners even
though the principal policy targets may be global institutions, global processes,
and respect for universal rights.
But, you might say, if this division of labour works, what does it matter? If
you espouse a capacity-building approach, it matters quite a lot. First, because
if a relationship is only as sustainable as its money supply, then power games
and dependency lie at its heart. All power corrupts, but absolute dependency
undermines absolutely. The Northern NGO depends on getting money from
its domestic public, or (increasingly) from governments (and this has its own
implications in relation to the too close for comfort arguments presented by
Hulme and Edwards 1996); the Southern partner can function only by virtue
of a dripfeed administered by philanthropic outsiders. If the dosage changes,
or runs out, the life of the Southern partner is threatened.
Second, a partnership that is based on a one-way transfer of resources
(whether these are financial or intellectual) is profoundly asymmetrical, a fact
which will tend to distort the functioning and dignity of the weaker partner,
as well as fostering the hubris of the stronger one. Organisations that have priorities projected on to them, however subtly, are almost bound to shift their
agendas to match those of their donors. Few Southern organisations have the
capacity to generate no strings funds from the general public. In-country
fundraising is beginning to happen in nations with large and wealthy middleclasses such as Brazil, India, Mexico, or South Africa while remittances from
migrant workers may be more important in weaker economies or in particular
regions of stronger ones (Jennings and Clarke 2005). Southern organisations
that depend on Northern funding are thereby compromised in their role as
civil-society organisations. Obviously, it makes no sense for Southern organisations to do less local advocacy and mobilising because of the constraints
imposed by financial dependency. But it is also dangerous for any NGO to
assume functions for which it is not equipped or not accountable, simply
because it has the financial muscle to do so. Jenny Pearce (1993) has shown
how, by taking on more political roles in public life roles for which they were
not politically accountable Chilean NGOs effectively depoliticised the social
movements that they set out to serve, and which had given them their legitimacy in the first place: something that Sonia Alvarez (1998) has called the
NGOization of social movements, a phenomenon that she attributes to their
professionalization and recasting as gender experts rather than as citizens
groups (Alvarez 1999). And all thanks to Northern NGO support.
Because administrative accountability has been fashioned around money,
the systems have tended to move upwards from recipient to donor, not the
other way around. Yet, as we have seen, the intended beneficiaries seldom
get to choose which NGO is going to provide services or advocate on their
behalf. The victims of floods and mudslides in Manila or Tegucigalpa or,
come to that, New Orleans may not much care whether they are helped to
safety by Catholic Relief Services, by any or all of the Oxfams, by a local Red
Cross volunteer, or (most likely) by their next-door neighbour. But when it
comes to the longer-term reconstruction effort, it may make a great difference
whether the work is designed and financed by the World Bank as opposed to,
say, World Neighbors. The Bank is likely to promote small-enterprise development, the fostering of the spirit and capacity to compete in the marketplace
(Moxham 2005); the NGO on organisational skills and on healing social divisions. The intended beneficiaries of international development assistance may
be consulted about this or that, but they rarely have the opportunity to tell an
aid agency to just leave them alone (although there are countless examples of
ways in which people express their displeasure by deliberately subverting aid
projects). NGOs, on the other hand, insist on their right to choose whom to
help and how, and what they want in return.
Dont get me wrong here. The relative autonomy of NGOs can be vital. In
the 1980s, for instance, it is what permitted Northern (mainly European and
Canadian) NGOs in Central America to work with local organisations and
informal structures that enjoyed the trust of people working for social change,
and not to be sucked into the brutal counter-insurgency effort. It is what made
211
it possible to claim the right to humanitarian space to assist civilians living in

the conflict zones in El Salvador and Guatemala. The same held true of NGOs
that supported clandestine opposition to Apartheid in South Africa, or to the
Marcos regime in the Philippines.
But there is another side to the autonomy coin. NGOs can, and do, pick
up and then abandon their Southern partners without being called to account. NGOs that are concerned to help to build capacity, in full recognition
of the social, political, and ethical responsibilities that this entails, should first
scrutinise their downward and horizontal accountability. They need to look
at the impacts of their support on the webs of relationships in which their
chosen partners function. They need to look at how they learn from their
partners, not just gathering stories and pictures, but in terms of their values, their perceptions, their analyses, concerns, and aspirations. They need to
check their feedback and communication mechanisms, because without these
there is no mutual accountability. Consultation is not just a question of asking, but of accounting back for decisions taken. The list could go on. But the
basic message is that if NGOs want to take capacity building seriously, then
they must be prepared to change their own structures and practices in order
to reflect this commitment to partnership, reciprocity, shared risk-taking, and
inter-dependence.
Finally, all this takes time. Aid agencies are always in a hurry. They feel
the need to spend in order to justify their existence to their constituencies
and to their donors. But there are no prizes for coming first, and a lot of collateral damage can be done by taking things too fast or indeed by packing
up as soon as the funded activity is over. The workshops have been held, the
participants gave positive feedback on their evaluation forms, and so capacity
has been built. A year later, there is nothing to show for it. A more sustained
relationship may not yield spectacular results, but these results may well be
more lasting. An example from Honduras illustrates this. In the mid-1980s we
began funding an incipient social-education programme run by a campesina
whose goal was to create a peasant womens movement. However, the selfesteem of most of the women who came along to the meetings was so low
that they would simply wait for her to tell them what to do. She did not want
to reproduce the static topdown structure found in all the other popular
organisations and local NGOs, whatever their professed radicalism. I put her
in touch with a feminist social worker and former nun in Mexico who had
worked for many years with non-literate women. She visited the programme
and, with them, developed a self-help manual that would help them, and
women like them, to tackle the deep sources of their oppression. Given their
Christian faith, she drew on positive images of women in the Bible to help get
the message across. Imagine my delight nearly 10 years later when I was sent a
copy of the manual, by then a best-selling publication; and a video showing
women who had been too shy even to say their names addressing mass rallies
calling for womens right to own land. And when, more than 20 years later,
I was invited to the inaugural meeting of the peasant womens movement
that had grown out of such humble beginnings. If we had expected concrete
results after the three-year grant came to an end, we would have been sorely
disappointed. But how genuinely interested are NGOs in what happens after
their project has finished? While they might adopt a more programme- based
approach to grant making, with the aim of scaling up or at least ensuring
that the whole is more than the sum of the parts, seldom does this extend
beyond the final report on how the funds were used. More often than not, the
grant is disbursed, the project does what is expected, accountability for the
use of funds is assured, and the final report ends up gathering dust deep in the
organisational archives.5
Conclusion
Capacity building is an approach to solidarity-based partnerships with an infinite variety of expressions. While some of the ingredients can be identified,
there is no global recipe, no quick fix. Partnership entails mutual accountability, and you cannot have one without the other. This includes accounting back
honestly for decisions that affect others. This approach is demanding, and it
calls for time, flexibility, shared risk taking, open dialogue, and a willingness
on both sides to respond to feedback. Co-development is also far more rewarding than trying to be a catalyst, which exerts an impact or change on another
component within a system without itself changing (Eyben 2006: 48).
NGOs can foster the capacities of those Southern organisations whose aspirations they support. Partnership is not about accepting anything and everything that each other does, but for Northern NGOs it almost certainly means
getting out of the driving seat and learning to trust their chosen partners
navigational skills. Just because they paid to fill up the tank does not give
NGOs the right to determine the route. What is abundantly clear is that you
cant build capacities in others that you dont have yourself. And if you cant
learn, you cant teach either.
That said, disengagement is not an option. The gulf between rich and poor
diminishes our humanity. Another world is possible, but only by building on
the capacity of the most oppressed to repudiate injustice, and work for mutual
respect and solidarity.
Notes
1.
2.
This essay draws on my earlier work, in particular Eade 1997; Eade and
Williams 1995.
The focus on development NGOs is certainly not limited to international
or Northern NGOs; nor are the issues peculiar to the NGO sector. The
NGO world does not divide into neat NorthSouth, goodbad, powerful
powerless categories. Nor should one deny the real contests and divergences that exist between and often within them. Rather, my concern is
3.
4.
5.
213
with NGOs as holders and brokers of power vis--vis those who have more
or less power than they do.
The reasons for this vote of no confidence have of course been variously interpreted, but they revolve essentially around political agency.
The refugees argued that the NGO imposed a doctor knows best philosophy, while they wanted to develop skills as community health workers
in preparation for their return to El Salvador. The NGO claimed that it
was vital to keep medical supplies under firm control, in order to prevent
them leaking out to the FMLN fighters, and that the refugees were either
FMLN sympathisers, or were the victims of political manipulation and
threats (Terry 2002).
Space does not permit discussion on the vexed issue of advocacy by Northern NGOs; suffice it to say that Southern activists and academics alike
complain that all too often the role assigned to them is that of providing
local evidence to fuel Northern advocacy on their behalf, or case studies
to illustrate Northern analyses of the problems facing the Global South.
See Eade 2002, in particular the chapters by Maria Teresa Diokno-Pascual,
Dot Keet, Paul Nelson, and Warren Nyamugasira; and Olukoshi, cited in
Utting 2006:121.
Staff turnover seriously impedes long-term Northern NGO engagement
with Southern organisations beyond the grant period. The director of a
small agency that receives funds from various Northern NGOs once commented to me that he usually knew far more about each NGOs history
in Chiapas than did the successive new brooms sent down to sweep
through his agencys funding requests. A curious reversal of roles indeed
when Southern partners end up safeguarding the histories of their Northern NGO benefactors! Central Americans interviewed in 1997 made similar points: The international aid agencies, particularly the NGOs, lived
through the process with us and often identified deeply with it. Suddenly it was all change. The new emphasis was on technical issues, efficiency,
efficacy, and so on but without recognising and taking into account the
more subjective elements (Ardn 1999:63); Many of the international
aid workers are new. They did not live through the war years, and do not
have a detailed knowledge of the context. This has made working with
them far harder, since it is like having to start all over again which takes
up a lot of time (ibid.: 66).
References
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Westview Press.
Alvarez, Sonia (1999) Advocating feminism: the Latin American Feminist
NGO boom, International Feminist Journal of Politics 1(2): 181209.
Ardn, Patricia (1999) Post-war Reconstruction in Central America: Lessons from
El Salvador, Guatemala, and Nicaragua, Oxfam Working Papers, Oxford:
Oxfam GB.
Eade, Deborah (1997) Capacity-Building: An Approach to People-Centred

Development, Oxford: Oxfam (UK and Ireland).
Eade, Deborah (ed.) (2002) Development and Advocacy, A Development in Practice Reader, Oxford: Oxfam GB.
Eade, Deborah and Suzanne Williams (1995) The Oxfam Handbook of
Development and Relief (3 vols.), Oxford: Oxfam (UK and Ireland).
Eyben, Rosalind (2006) Relationships for Aid, London: Earthscan.
Hulme, David and Michael Edwards (eds.) (1996) NGOs, States and Donors: Too
Close for Comfort?, Basingstoke: Palgrave Macmillan.
Jennings, Allen and Matthew Clarke (2005) The development impact of
remittances to Nicaragua, Development in Practice 15(5): 68591.
Moxham, Ben (2005) The World Banks land of kiosks: community driven
development in Timor-Leste, Development in Practice 15(3&4): 5228.
Pearce, Jenny (1993) NGOs and social change: agents or facilitators?,
Development in Practice 3(3): 2227.
Rahman Khan, Mahmuda (1995) Women entrepreneurs in the Bangladeshi
restaurant business, Development in Practice 5(2): 2404.
Schuler, Sidney Ruth, Syed M Hashemi, Shamsul Huda Badal (1998) Mens
violence against women in rural Bangladesh: undermined or exacerbated
by microcredit programmes?, Development in Practice 8(2): 14857.
Terry, Fiona (2002) Condemned to Repeat? The Paradox of Humanitarian Action,
Ithaca, NY: Cornell University Press.
Utting, Peter (ed.) (2006) Reclaiming Development Agendas: Knowledge, Power and
International Policy Making, Basingstoke: Palgrave Macmillan and UNRISD.
About the author

Deborah Eade was Editor of Development in Practice from 1991 to 2010, and
had previously worked for 10 years for a number of national and international
agencies in Mexico and Central America. She has published extensively on international development and humanitarian issues. She is now an independent
writer and editor based in the Geneva area.
CHAPTER 20
Harmonisation: how is the orchestra

conducted?
Rosalind Eyben
Harmonisation of donor efforts is one of the current buzzwords in the world of
official aid. However, while it is an attractive idea in theory, as long as donors do
not recognise and address the operations of power in the aid relationship, harmonisation is likely to be counterproductive in promoting locally initiated responses to
development challenges.
In response to the Governments well-orchestrated preparation process
for a high quality Poverty Reduction Strategy Paper (PRSP) for Bangladesh DFID, the World Bank, the Asian Development Bank (ADB), and
the Government of Japan, Bangladeshs major development partners
(accounting for over 80% of development assistance) joined the orchestra to harmonise their support for the PRSP. (DFID 2006)
Harmonisation in the language of Aidland means donors trying to have common programmes and procedures, so that the recipient need communicate
with only one single set of financing agencies. Harmonisation is judged to be
especially important in highly aid-dependent countries such as Mozambique,
where 50 per cent of the public capital-expenditure budget is donor-financed,
and there are 49 official donors.1
Aid co-ordination failures have become legendary. According to a Government of Cameroon representative, in 2004 his government received 400
project missions, and there were 60 co-ordination/management units among
the 14 donors.2 Such stories support the case for empowering recipient
governments through better donor co-ordination.
The OECD Development Assistance Committee (DAC) was established
in 1960 to co-ordinate the policies and practices of governments aid programmes. Ever since, donors have been trying to be part of the same orchestra,
if not necessarily playing from the same score. Harmonisation, co-ordination,
and alignment are major pillars in todays aid-effectiveness agenda. Identified
as important at the 2002 Monterrey Conference on Financing for Development, in 2003 they became the subject of a High-Level Forum in Rome; two
years later in Paris, along with country ownership and managing for results,
they became elements in the 2005 Paris Declaration on Aid Effectiveness.3 The
signatories to the Rome Declaration make clear their understanding of how

disharmony impedes aid effectiveness: it is through efficiency losses:
The totality and wide variety of donor requirements and processes for
preparing, delivering, and monitoring development assistance are generating unproductive transaction costs for, and drawing down the limited capacity of, partner countries. (Rome Declaration paragraph 2)4
In what follows, I consider how harmonisation, co-ordination, and alignment sometimes known as HAC, but which henceforth I shall refer to simply
as harmonisation are a good idea in principle and sometimes in practice, yet
become an additional distraction from the really serious issues donors should
be tackling.
The virtues of harmonisation

The case for harmonisation is that it reduces transaction costs for the recipient
organisation because it has to deal with only a single interlocutor. Instead of
having to report separately to many different donors, the recipient need send
only one report against an agreed plan and performance indicators that it has
developed previously.
I have always been a supporter of harmonisation or at least co-ordination
when it means empowering the recipient, reducing donor rivalry, and ensuring that resources are used optimally. I took a lead in the DAC Women in Development (WID) working groups initiative to co-ordinate donor support of
participation by civil-society organisations (CSOs) at the 1995 Fourth World
Conference on Women held in Beijing. This was largely successful, despite the
enormous challenges posed by each donors different funding and accountability procedures. It may have worked because it was run by a group of feminists, conscious of issues of power and competition, and more committed to
Beijings objectives than to the requirements of their respective employers. It
was us against them. We bent and sometimes broke the rules. I carried this
experience with me when moving to Bolivia in 2000 as head of the country
office of DFID (the UK governments Department for International Development), but I failed to reflect sufficiently that what matters is the way in which
harmonisation is implemented.
Bolivia was a pilot in the World Banks Comprehensive Development
Framework (CDF) initiative, which included a harmonisation agenda. The
eventual aim was to put all donor money directly into the governments budget in support of a national poverty-reduction strategy.
As an interim step, the donors learned to work together by constructing
basket funds at sector or programme level. A basket fund is when several
donors put their money into a single fund that is managed by the recipient,
without each donors contribution being projectised or earmarked for specific activities. An easy pilot initiative was carried out with the Office of the
Ombudsperson (Defensora del Pueblo), because of the strong leadership of the
HARMONISATION: HOW IS THE ORCHESTRA CONDUCTED?
217
person in charge and the belief that corruption in the Office was minimal.
About eight bilateral donors had been supporting the Office previously, with
each cherry-picking aspects of its work that resonated with its own interests
or even offering the Office money for doing something that otherwise it
would not have done. Getting rid of all these separately funded projects was
empowering for the recipient.5
My recommendation to London that we contribute to this basket fund was
well received. Senior management already saw DFID as being in the vanguard
of harmonisation efforts. However, those responsible for financial procedures
thought otherwise. I was told that it was procedurally not possible. To my
humiliation, even unlike-minded donors such as Belgium were finding this
easier to do than DFID. Still fired up by the experience from the DAC WID
group, I saw harmonisation as a challenge to the status quo. I engaged in a
six-month battle with much behind-the-scenes lobbying to persuade the
finance people eventually to change their procedures. This struggle is reflected
in an OECD-commissioned report that studied donor practices in relation to
harmonisation and alignment in four countries, including Bolivia:
Donors have their own procedures and policy directions, which are often adapted from their domestic procedures. For example, donors have
a mechanism through which the expenditure of public funds is made
accountable to their own taxpayers. This accountability is often the
responsibility of an intermediary audit authority or reporting to a democratic assembly. The different traditions, mechanisms and arrangements determine the way donors operate in practice and constitute a
key factor in the harmonisation process. This is particularly the case
with multi-donor initiatives and budget support. (OECD 2003:113)
The resistance to harmonisation by donors procedural units led to the
OECD commissioning another report into how to change incentives in aid
agencies. The study concluded:
Organisations with management cultures which promote and reward innovation in all fields including harmonisation, and welcome challenges
to the status quo and suggestions for improvements, are more likely to
engage in harmonisation than organisations which mostly reward compliance with existing rules and procedures. (de Renzio et al. 2005: vi)
Yet, meanwhile, harmonisation has become the new orthodoxy in Aidland,
where its practice reveals several vices.
Harmonisation: the new orthodoxy and its vices

The first vice of harmonisation is that of donors ganging together and thus
exerting greater power over the recipient (Edgren 2003). Even when Ministries
of Finance appear to be conducting the donor orchestra, as was the case when
I was in Bolivia, we donors used to meet behind closed doors to agree what
we were going to play before going to the official co-ordination meeting. It

is noteworthy that recipient countries that are not aid-dependent, such as
China and India, are not at all interested in donor harmonisation and successfully object to its practice. Harmonisation as it is currently practised in highly
aid-dependent countries becomes a problem. It turns donors into a cartel or
monopolistic supplier.
Some find it a strange irony that the economists-turned-managers who govern Aidland advocate co-operation among themselves on efficiency grounds,
while on exactly the same grounds they impose polices based on principles of
competition on their recipients (Severino and Charnoz 2003). Easterly (2002)
argues that aid agencies have always colluded when it was to their advantage
to do so, collectively hiding bad outcomes while advertising good outputs. If a
smaller aid agency tried to step out of line, it would be vulnerable to public relations attacks by the others. At a recent meeting at one of the smaller European
aid agencies, staff told of harassment by a bigger donor for declining to join a
programme of harmonised support for the education sector in a certain African
country because of their misgivings about government corruption.
The second vice is that harmonisation reflects an underlying view of the
world in which poverty reduction is achieved through broad-based consensus, whereby everyone in a recipient country can agree to a national poverty
strategy behind which donors can line up. This is a bland, apolitical view of
the world and frankly bizarre, given that donors know that back home in their
own countries, generally more stable and orderly than those to which they are
giving aid, such harmonious political consensus would be rarely achievable. In
countries where strategies are owned by the few, donors are co-ordinating to reinforce the power of a non-democratic ruling elite (see Buiter, in this volume).
The Paris Declaration emphasises the importance of a single diagnosis of
the problems of poverty in any aid-recipient country. This tends to mean a
diagnosis by the larger donors in consultation with the recipient governments
Ministry of Finance. An alternative would be for different donors deliberately
to support diagnoses by diverse local actors (in or outside government) who are
likely to have varied understandings of the causes and consequences of poverty.
This would mean donors playing a role in encouraging rather than suppressing
different perspectives, helping to provide space for democratic dialogue, and
recognising that optimal solutions often emerge through on-going, often confused, and highly politicised debate and argument (Bond 2006).
The third vice relates more specifically to the Paris Declarations emphasis
on providing all aid through the government, to the detriment of supporting
the development of autonomous civil society (INTRAC 2006). Anecdotal information from DFID staff confirms a reduction in the number of projects for
civil-society organisations (CSOs).
To sum up, harmonisation becomes a vice when it strengthens longstanding donor habits of pretending that poverty is not political. It is a new
orthodoxy that reinforces, on the grounds of efficiency, the tendency for
donor bureaucracies to talk only with their counterparts in the recipient
219
government. By largely ignoring civil society and parliaments, they put at

risk their stated commitment to broad-based country ownership of aid.
What is happening to the harmonisation effort?

As I discovered in Bolivia, negotiating a shared diagnosis, approach, and set of
procedures means donors spending a great deal of time talking to each other.
One solution is to form an inner cartel of just a few donors who agree what is
to be done, and then invite others to join the process. This is what happened
in Bangladesh:
Government was initially worried about the four big ones ganging up
on conditionality, but is now strongly in favour as the partnership is
supportive of its harmonisation action plan. The wider donor community would ideally have liked a more inclusive process but the four partners were initially concerned to keep the venture manageableWith
these basic foundations in place for a harmonised support by the four
partners for the Government led PRSP, the outcome matrix was shared
with the wider donor community on 22 February 2006, inviting them to
join the process. (DFID 2006)
Another solution is to establish a division of labour so that just a few donors work in each sector. This is agreed through a Joint Assistance Strategy.
Some sectors are more popular than others and are referred to as donor
darlings. Others, such as gender, become donor orphans.6
Some donors would like to avoid supporting sectors completely and provide general budget support. This means they need speak to only a limited
number of staff in the Ministry of Finance and leave it to Finance to talk to the
line ministries such as Education or Roads. This is appropriate, because country ownership points to this conversation being their job, not the donors. An
evaluation of Burkina Fasos General Framework Agreement for Organizing
Budgetary Assistance to Support the PRSP hints, however, that such conversations within the recipient government do not always take place:
Ownership has taken place and is reflected in the leadership role played
by the Government, represented by the Minister of Finance and Budget
(MFB). This is evidenced by the fact that the MFB is assuming all its responsibilities and is effectively co-ordinating discussions related to budgetary assistance and public finance. However, there is some uncertainty
as to whether the other departmental offices have assumed ownership of
the process to the same degree.7
Doubts concerning the increasingly predominant role of ministries of
finance within recipient governments emerged in the 2005 Joint Review
of aid to Mozambique, with line ministries expressing disquiet about the
higher proportion of aid going to general budget support (Government of
Mozambique 2005).
Along with the World Bank under Wolfensohn, DFID has been the most
enthusiastic champion of harmonisation. The ideal for DFID is to co-finance
the Banks Poverty Reduction Support Credit, which is negotiated with the
Ministry of Finance. This enthusiasm stems from DFIDs wanting to spend
more money with fewer people, as the result of a Treasury decision to cut the
number of civil servants while increasing the quantity of aid (Gershon 2004).
The 2006 DAC peer review of UK aid criticises DFID for pushing too hard its
own interpretation of harmonisation as meaning general budget support:
DFID enthusiasm for certain initiatives is not always shared by other
partners and British advocacy can be perceived as promoting DFIDs
own model rather than leading and encouraging complementary donor
action. (OECD 2006)
While these murmurs from the bilateral community concerning DFID are
becoming stronger, collectively the donors are undermining the principles of
harmonisation and country ownership by increasingly putting much of their
money through global programme funds that bilaterals have set up with the
World Bank and United Nations agencies. A recent evaluation notes that these
programmes are largely donor-driven, with insufficient alignment between
global and country objectives and priorities (Lele et al. 2005).
Interestingly, the harmonisation agenda recently seemed to be unravelling
for another reason. Those bilaterals close to the World Bank were worried that
its then President, Paul Wolfowitz, was refusing to approve Bank loans in circumstances where there was evidence of major government corruption. By so
doing he was blocking harmonised spending by other donors such as DFID,
including its co-financing of a major loan to India. If harmonisation leads to
slower disbursement, donors will become disenchanted.
Meanwhile, the harmonisation agenda has resulted in a very large number
of papers, management tools, consultancies, training workshops, and international conferences, which surprisingly no one seems to have identified as
transaction costs. At the same time, as noted in the DAC Review of UK aid,
Country office staff should spend more time out of capital cities. Greater effort should be made in getting key staff closer to the development realities
they support (OECD 2006:7). This comment would apply to many other aid
agencies. A staff member of a bilateral agency recently told me: Joint Assistance Strategies are the thing Donor country heads now earn their spurs
by being seen to deliver the Paris Declaration. Not quite sure where country
ownership appears in all this (personal communication 2006).
Conclusion
Harmonising donor expenditures to achieve greater efficiency is an attractive
idea in theory. In practice, however, as long as donors do not recognise and
address the operations of power in the aid relationship, it is likely to be subject
to the following problems:
221
Harmonisation enables the major donors to exert undue influence on

the recipient and on minor donors to accept a development agenda
pre-determined by the major donors.
The agenda determined by the major donors prioritises budget support, which has lower administrative costs, over civil-society projects
which are more expensive to administer but likely to achieve greater
and longer-term progressive social change.
Curiously, while the major donors prescribe competition to recipient
countries as the way to achieve efficiency, they prescribe to themselves
co-operation (read: cartelisation) to achieve this same result.
Harmonisation tends to suppress trying out different approaches to
local problems. The harmonisation agenda is politically nave in assuming that there is a national development strategy that all can
agree to disregarding the internal (including gender-related) power
relations in the recipient country.
While trumpeting harmonisation, the major donors are undermining country ownership by increasingly spending aid monies through
global programme funds, whose agenda is largely donor-driven.
Notes
1.
2.
3.
4.
5.
6.
7.
I am grateful to Sarah Ladbury for these figures, as well as for her overall
feedback on an earlier draft of this chapter.
Report of workshop on the Paris Declaration: implications and implementation, Bamako, 2729 March 2006, page 5. The document was retrieved
on 24 June 2006 at www.aidharmonization.org/, but Google provides a
clue, revealing that the websites former address was www.worldbank.org/
harmonization/
The High-Level Forum took place in Paris, 28 February-2 March 2005. The
Paris Declaration on Aid Effectiveness is available at www.worldbank.org/
harmonization/Paris/FINALPARISDECLARATION.pdf (retrieved 12 October 2006).
The High-Level Forum took place in Rome, 2425 February 2003. The
Rome Declaration on Harmonization is available at www.aidharmonization.org/ah-wh/secondary-pages/why-RomeDeclaration (retrieved 12
October 2006).
The same applies to funding local NGOs. Harmonised support from international NGOs can give recipients space to become learning organisations when they no longer have to spend so much time learning the
various procedures of the organisations funding them (Shutt 2006).
From a discussion at the DAC GenderNet meeting in July 2006 on the
implications of the Paris Declaration for gender equality.
Burkina Faso: General Framework Agreement for Organizing Budgetary
Assistance to Support the PRSP, independent evaluation mission April
2006, page 3, available at www.aidharmonization.org retrieved 30 June
2006.
References
Bond, P. (2006) A review of progression and regression in debt, aid, trade, relations, global governance and the MDGs, AFRODAD Occasional Papers No.
3, Harare: AFRODAD.
de Renzio, P., with David Booth, Andrew Rogerson, and Zaza Curran (2005)
Incentives for Harmonisation and Alignment in Aid Agencies, ODI Working
Paper No. 248 London: Overseas Development Institute.
Department for International Development (DFID) (2006) Aid Effectiveness
Network News, www.dfid.gov.uk/mdg/aid-effectiveness/newsletters/jointstrategy-bangladesh.asp (retrieved 30 June 2006).
Easterly, W. (2002) The cartel of good intentions: the problem of bureaucracy
in foreign aid, The Journal of Policy Reform 5(4): 22350.
Edgren, G. (2003) Donorship, ownership and partnership: issues arising from
four Sida studies of donor recipient relationships, Sida Studies in Evaluation No. 3, Stockholm: Sida.
Gershon, P. (2004) Releasing Funds to the Front Line, Independent Review of
Public Sector Efficiency, London: HMSO.
Government of Mozambique (2005) Joint Review 2005 Aide-Memoire
(Final version), 12 May 2005, www.dfid.gov.uk/pubs/files/mozambiqueaide-memoire.pdf (retrieved 12 October 2006).
INTRAC (2006) Aid harmonisation: challenges for civil society Ontrac 33,
May.
Lele, U., N. Sadik, and L. Simmons (2005) The changing aid architecture:
can global initiatives eradicate poverty?, DAC News, www.oecd.org/
dataoecd/48/6/37046754.htm.
OECD (2003) Harmonising Donor Practices for Effective Aid Delivery,
Development Assistance Committee, Paris: OECD.
OECD (2006) Summary of DAC Peer Review of UK Aid, Paris: OECD, www.
oecd.org
Severino, J.-M. and O. Charnoz (2003) A paradox of development, Revue
dconomie du Dveloppement 17(4): 7797.
Shutt, C. (2006) Money matters in aid relationships, in R. Eyben (ed.)
Relationships for Aid, London: Earthscan.
About the author

Rosalind Eyben is a Fellow at the Institute of Development Studies at the
University of Sussex, following a long career in the world of aid policy and
practice. Her recent publications include the edited volume Relationships for
Aid (2006).
CHAPTER 21
Country ownership: a term whose time

has gone
Willem H. Buiter
The term country ownership refers to a property of the conditionality attached
to programmes, processes, plans, or strategies involving both a domestic party
(generally a nation state) and a foreign party (generally the IMF, the World Bank,
the Regional Development Banks, and other multilateral and bilateral institutions). Under what circumstances and how can the concept of country ownership
be relevant to a country with a myriad heterogeneous and often conflicting views
and interests? Or to a country whose governments representational legitimacy or
democratic credentials are in question? The author argues that the term has been
abused to such an extent that it is at best unhelpful and at worst pernicious: a
term whose time has gone.
Words matter. They can enlighten or obscure. Jargon is an example of the
destructive use of words. It creates artificial barriers to understanding and
participation and thus generates obscurity rents that the insiders can appropriate. Scientific disciplines, professions, and institutions all have their own
jargon. So do the international financial institutions (IFIs) and multilateral
development banks (MDBs). The term country ownership and the associated adjective country-owned have become particularly pernicious examples
of politically correct IFI-speak. Country ownership may have been a useful
term at some point. Regrettably, it has been used and abused in so many ways
to gloss over realities deemed uncomfortable, and to create a pleasant buzz
to distract the uninformed and unwary, that it now needs to be put out of its
misery.
Country ownership is a property of programmes, processes, plans, or strategies involving both a domestic party (generally a nation state) and a foreign
party. More specifically, it is a property of the conditionality attached to these
programmes. The foreign parties I have in mind are the international financial
institutions (IFIs): the IMF, the World Bank, the Regional Development Banks,
and other multilateral institutions. However, most of what I have to say applies
equally to bilateral relations between a developing country and a donor country
and to the relationship between the EU and developing countries and emerging
markets. The programmes/processes in question include the Poverty Reduction
Strategy Papers (PRSPs) and Interim Poverty Reduction Strategy Papers (I-PRSPs)
and the consultative processes associated with them, co-managed by the World
Bank and the IMF, the IMFs Poverty Reduction and Growth Facility (PRGF),
the World Banks and IMFs Highly Indebted Poor Country Initiative (HIPC),
The World Banks Country Assistance Strategies (CAS), the World Banks Low
Income Countries Under Stress Initiative (LICUS), IMF Standby Arrangements,
World Bank Structural Adjustment Facilities (SAFs), Structural Adjustment Loans
and Sector Adjustment Loans (SALs), and a range of similar stabilisation, structural adjustment, and reform programmes.
Country ownership can refer to a number of dimensions of the multidimensional relationship of the domestic party to the programme/process and
its conditionality. Specifically, it can mean one or more of the following:
The country has designed and drafted the programme; or its weaker
siblings, ranging from The country has had a significant involvement
in the drafting and design of the programme to The authorities of the
country were informed of the programme after it had been drawn up by
other parties, typically the World Bank and the IMF.
The country agrees with the objectives of the programme.
The country believes that the implementation of the programme as
envisaged will achieve the programmes objectives.
The country implements the programme, or its weaker siblings, ranging from The country plays a significant role in the implementation of
the programme to The authorities of the country are kept informed of
how and when the programme has been implemented.
Until this point I have gone along with the sloppy usage of the word country as referring to a single purposefully acting agent. This anthropomorphic approach obscures reality and confuses the argument. Who or what is or are the
country that owns the programme, in any of the four senses just referred to?
A country is made up of populations ranging from the tens of thousands
to the billion plus. All countries, even the smallest and most homogeneous
racially, ethnically, culturally, religiously etc. contain many individuals and
groups with diverse, often divergent and conflicting views, interests, policy
objectives, and programmes. Under what circumstances and how can the concept of country ownership be relevant to a country with a myriad heterogeneous
and often conflicting views and interests?
If the country has institutions for political and economic governance that
are representative and legitimate, there may be a limited number of national
representative voices that can claim with some validity to speak for the country or to represent the interests of the country. The range of views and interests in the country may be so wide, however, that not even the representatives
of the legitimate government and of the worlds of work and business can claim
to speak for the country whose ownership is being sought for a programme.
In the case of the PRSPs, recognition of this reality has led to the development
of ad hoc consultative processes of ever-increasing complexity and duration.
Not only representatives of the government (central, state, and municipal)
COUNTRY OWNERSHIP: A TERM WHOSE TIME HAS GONE
225
and of parliament are now involved, but also representatives of many other
groups, associations, agencies, institutions, and organisations. Increasingly,
the PRSP process tries to involve a wide range of special interests and lobby
groups, including political, environmental, cultural, and religious NGOs (both
local and international) and other representatives of civil society.
Quite how the views and voices of such a range of sectional and special interests are aggregated into an operative concept of country ownership remains
a mystery. Also, despite the large number of NGOs and civil-society groups,
organisations, and factions involved in some of the PRSP consultative processes, the representativeness of the consultations remains an open issue. For
instance, the spectacular under-representation of the enterprise sector, and
especially the private-enterprise sector, in most PRSP consultative processes
represents a serious dent in its claim to be representative of all the parties
whose efforts are essential to a successful attack on poverty or who are affected
by it.
Moreover, it is only in a limited number of cases that there is a realistic
prospect for putting together a consultative process (let alone a process that
actually drafts the programme and designs the conditionality) that can make
any claim to being representative of the interests, wishes, and views of the
majority of the countrys population. Unrepresentative and often repressive
governments frequently preclude representative PRSP processes. This should
come as no surprise.
Why do countries become candidates for stabilisation, structural adjustment, or reform programmes? Why do countries take part in the HIPC initiative or the PRSP process? It is because they need and seek external assistance
of three kinds:
They need external financial resources and cannot access these through
the markets, because they are not creditworthy.
They need external expertise and do not have the resources to pay for
this on market terms.
They need an external commitment device because of weak domestic
political institutions.
Countries that need one or more of these external desiderata finance, expertise, commitment are countries that are in trouble, countries that cannot
help themselves, countries that are in a mess.
It is possible for a country with good institutions, good political leadership,
and good policies nevertheless to be in a mess. The cause(s) could be exogenous bad luck: bad neighbours preventing trade and transit and restricting the countrys ability to participate effectively in the regional and global
economy; armed conflict inflicted on a peaceful nation; natural disasters and
public-health disasters such as tsunamis, earthquakes, or the AIDS pandemic;
bad initial conditions, such as those encountered by many of the new CIS
countries following the collapse of the Soviet Union. History can be a curse.
Most of the time, however, bad luck does not explain why a country is
confronted with the programmes and conditionality associated with external assistance. The most frequent reasons are bad institutions, bad political
leadership, and bad policies. Countries subject to IFI programmes and the
associated conditionality often have political systems that are unrepresentative and repressive, ranging from mildly authoritarian to brutally totalitarian.
The political leadership and the elites supporting it are often corrupt and economically illiterate. Rent-seeking and cronyism offer higher returns to effort
than socially productive labour and entrepreneurship. Public administration
is weak, corrupt, and has very limited implementation capacity. Moreover,
the countries with the most unrepresentative and repressive governments do
not permit a representative cross-section of civil society to participate. Indeed,
civil society tends to be weakest precisely in those countries where it is most
needed.
What would country ownership mean in Zimbabwe, in the Democratic
Republic of the Congo (a HIPC-initiative country), and in Sudan? These are
extreme examples, and neither Zimbabwe nor Sudan currently has a World
Bank or IMF programme, but there are many others. What does country ownership mean in Algeria, in Egypt, or in the Peoples Republic of China? In Iraq
after the fall of Saddam Hussain, and in Afghanistan? Closer to my operational home, we have the CIS-7 poor countries: Moldova, Georgia, Armenia,
Azerbaijan, Tajikistan, the Kyrgyz Republic, and Uzbekistan. All but Uzbekistan have produced PRSPs. In Uzbekistan the World Bank Group has a modest
programme of lending, technical assistance, and analytical and policy advice.
There is no IMF programme, although an Article 4 Consultation was completed in June 2004. What would country ownership mean in Uzbekistan? That
the agreement of President Karimov has been obtained?
The term country ownership is used to describe both positive and normative features of IFI programmes. These alternative uses are exemplified by the
following two statements, both of which are commonly heard. First, Unless an
IMF programme and the conditionality it embodies are country-owned, the programme
will fail. Second, Unless an IMF programme and the conditionality it embodies are
country-owned, the program deserves to fail. I take the first statement to mean that
for an IMF programme to be successful certain actions are required of local
agents. Unless these agents are willing and able to implement these actions, the
programme will fail. This statement is true, but not very enlightening. A programme and the plan of action that it involves have to be incentive-compatible
to be credible and to succeed.
The local agents whose actions are necessary for the programme to succeed
are, however, not necessarily those who speak for the country in the meetings or consultative processes where these programmes are drafted and the
conditionality is designed. And those on whom the success of the programme
depends may not include all those affected by it. Often the majority of those
affected by a programme have had no voice in the design of the conditionality, and the programme may not serve their interests, regardless of whether
227
their efforts are essential to its success, and regardless of whether they can be
cajoled or induced to implement it and make it successful. If this is the reality
in a country that is a candidate for a programme, it is beyond the ability of the
IMF, World Bank, and other IFIs to remedy it. The effective choice for the IFIs
is then between not having a programme and having one that is not country
owned in the sense of not in the interest of and supported by the majority of
the population. There can be little doubt that at times programmes have been
designed and implemented that served the interests of an unrepresentative
few at the expense of the unrepresented many. Such illegitimate programmes
do not deserve to be implemented. In many other cases, however, the case is
less clear-cut.
Even legitimate programmes (that is programmes that are widely viewed as
fair and desirable) are constrained by the requirement that their implementation must be incentive-compatible. If they depend for their success on the
adoption of rules or on actions that are not incentive-compatible, they are not
credible. Conditionality (sticks or carrots conditional on outcomes, processes,
performance, or actions) is a means of enhancing the incentive compatibility
and thus the credibility of programmes. In practice, ensuring post-implementation irreversibility of reforms, policies, and actions is the hardest part of programme design. Most incentives (for example, the disbursement of a tranche
of a loan or grant) have a natural expiry date. Good conditionality creates
effective and lasting or irreversible incentives to take certain actions.
Conditionality can apply to actions, outcomes, or processes. Ideally, incentives should be designed to increase the likelihood of actions that contribute to desirable outcomes. In practice, key outcomes may lag far behind
actions, and the contribution of the action to the eventual outcome may be
hard to identify, measure, and verify. The effect of privatisation on economic
performance is an obvious example. Process conditionality does not directly
target specific actions, policies, or outcomes. Instead it focuses on promoting
good governance, in the hope that more accountable, transparent, responsive,
representative, and democratic government institutions will produce better
actions, policies, and outcomes. Process conditionality focuses on capacity
building broadly defined, and requires that a process (like the consultative
PRSP process) be implemented, or that certain institutions be in place to enhance the transparency and representativeness of governance at different levels. Making aid available to countries whose governments and institutions for
political and economic governance are most effective (or at least meet certain
minimum thresholds, defined, say, by international standards and codes) is an
example of process or institutional conditionality. The US Millennium Challenge Account embodies this process approach to conditionality.
If process conditionality and country ownership are to be taken seriously,
we would need international standards and codes to benchmark acceptable
practice. Failure to meet these benchmarks would mean that the country
would not have access to the external funds, expertise, and credibility brought
by an IFI-mediated programme. Sources of benchmarks could be initiatives or
reports like the Extractive Industries Transparency Initiative; the Publish What You
Pay, Publish What You Receive initiative; the FATF for anti-money-laundering
benchmarks; the Corruption Perceptions Index of Transparency International;
and the reports of the Organization for Security and Co-operation in Europe
(OSCE) and of the Council of Europe on electoral and political performance.
Standards for other key aspects of the accountability of the government to the
domestic population could be set by defining benchmarks or minimum standards for freedom of the media, independence of the courts, freedom to organise and register independent political parties and labour unions, the right
of peaceful assembly and protest, and the right to strike.
Process conditionality is political or governance conditionality. The European Bank for Reconstruction and Development (EBRD) has long practised
this form of conditionality because of the political nature of its mandate,
which in that regard is unlike that of the other IFIs.1 The requirement that
we operate only in countries committed to and applying the principles of multiparty democracy, pluralism and market economics has meant that the Bank no
longer engages in new public-sector projects in Turkmenistan and in Belarus,
and that similar constraints have been imposed on the Banks ability to work
with the sovereign in Uzbekistan.
While process conditionality and political benchmarks may give one a
warm glow inside, an unavoidable implication of their adoption is that a
number of potential countries of operation will fail to qualify. The EBRD still
operates, albeit at a low level of activity, in Turkmenistan, Belarus, and Uzbekistan, because the primary mandate of the Bank is in the private sector. The
World Bank and IMF would be out of business altogether if they could no longer operate in and with the public sector. More generally, if the IFIs were to get
serious about country ownership, there would be many fewer programmes.
In conclusion, the concept of country ownership has been used and
abused in so many ways that it now is at best unhelpful and at worst misleading and obfuscating. When the statement this programme is country-owned
means no more than this programme is supported by the people who own
the country, it is time to purge it from our vocabulary.
Acknowledgements
This chapter is based on remarks prepared for the Development Policy Forum
Conditionality Revisited, organised by the World Bank at the World Bank
Conference Center in Paris on 5 July 2004. The views expressed are those of
the author, who was then Chief Economist at the European Bank for Reconstruction and Development (EBRD). They do not represent the views of the
EBRD. The paper is reproduced here with the kind permission of the author,
who holds copyright.
229
Note
1.
The preamble to the Agreement Establishing the European Bank for Reconstruction and Development states:
The contracting parties, Committed to the fundamental principles of
multiparty democracy, the rule of law, respect for human rights and
market economics; Recalling the Final Act of the Helsinki Conference
on Security and Co-operation in Europe, and in particular its Declaration on Principles; Welcoming the intent of central and eastern European countries to further the practical implementation of multiparty
democracy, strengthening democratic institutions, the rule of law and
respect for human rights and their willingness to implement reforms
in order to evolve towards market-oriented economies;
Article 1 of the Agreement states:
Purpose In contributing to economic progress and reconstruction,
the purpose of the Bank shall be to foster the transition towards
open market-oriented economies and to promote private and entrepreneurial initiative in the central and eastern European countries
committed to and applying the principles of multiparty democracy,
pluralism and market economics.
About the author

Willem H. Buiter is Professor of European Political Economy at the London
School of Economics and Professor of Economics at the University of Amsterdam.
He has held professorships at the Universities of Bristol, Cambridge, and Yale,
and advisory roles to government ministries in several countries in Latin
America and the Caribbean.
CHAPTER 22
Best of practices?
Warren Feek
In this brief critique of the idea of best practice, the author argues that good practice is not replicable or uniform; it cannot be reduced to its component parts for replication elsewhere. Furthermore, the criteria for what constitutes best practice are
at best unscientific and tend to discourage diversity and local experimentation.
OK, lets start with a little quiz. Picture yourself in a meeting or just chatting
with a colleague. Is there a particular word or phrase which when used by
participants in the meeting or by this colleague in an informal chat gets you
just a little agitated? Maybe very agitated? I am sure you know the feeling. The
blood moves a little quicker. You feel a little more edgy and itchy. You wish
you could ban that word or phrase being used or at least restrict it to, lets
say, five times a meeting or conversation. Ironically, though internally agitated, externally you may show contradictory signs. You slump a little in your
chair. Shoulders droop a little. A here we go again feeling gently inhabits you.
And it is even worse when you find yourself uttering that very word or phrase
that agitates you!
The word or phrase will be different for different people. Some have mentioned empowerment, capacity building, developing countries, or any
word that has the root particip participation, participatory, participative among their I get agitated prompts. It can have a theme: for example,
any phrase related to American sports (which are a mystery to most of us!),
such as who will quarterback this programme?, we are in a full-count situation, that came out of left field, this needs a full-court press, and many others. The word can be an everyday one: culture, context, and community
have been cited. It might be one of our own little inventions: results-based
management gets a number of votes. I witnessed a whole meeting actually
demonstrate open agitation when someone tried to use Mr Potato Head as
a metaphor. Sorry, no time to explain to the uninitiated what is Mr Potato
Head!1
I have avoided telling you but can delay no longer. The phrase that really
gets me going is best practice. And this makes my life difficult, as best practice seems to be everywhere. Most organisations I know have a person or a
team of people trying to identify and/or describe best practice related to their
field, and there are all manner of best practice publications in existence and
being produced regularly.
Can someone please tell me what is best practice, and why do we spend
so much time trying to identify it? I understand good practice, innovative
practice, excellent practice, and creative practice. But how do you decide
what is best when all practice all development action, including communication interventions, addressing priority development issues takes place
in different contexts, with different purposes, different population groups,
and significantly different opportunities, involving challenges within widely
varying cultural, political, and resource environments. Compounding this
problem is the implication of judging something the best: that we all need to
think about also doing what that practice is doing because it is the best. The
best practice highlighted after an exhaustive international search may work
in the poor barrio on the outskirts of Cali, Colombia, but may be completely
inappropriate perhaps even bad practice if replicated in Blantyre, Malawi;
Puna, India; Kuala Trenggannu, Malaysia; and even the town in which I was
raised: New Plymouth, New Zealand. Probably even Barranquilla, Colombia
would not do what they do in Cali, because it just would not work in Barranquilla. Things are different in Barranquilla! And, if the point of labelling something the best is not that others replicate it, then why label it the best?
As can be seen from the above paragraph, I got a little agitated although I
must say, it does feel good to get it out there (I am sure therapy has a word for
this). As a result, the calming-down process has now kicked in!
Why are best practice and its natural extensions of replication and going
to scale bad for progress on development issues? I would suggest the following reasons.
They imply uniformity, when we need greater diversity: diversity

matching the number of contexts an almost infinite number.
They have the strong possibility of disempowering people and organisations: those who are doing great stuff in their contexts see something
rated as the best which they know will not work in their situations,
and they wonder why they do not get the recognition they feel they
deserve.
They bias the suggested required action towards the large agencies,
international agencies, and away from the small, local organisations.
They send the wrong message, namely that what really matters is the
detailed programme itself, rather than the principles to which that
programme works or the lessons learned from their experience not
as the best lessons learned, but as an overall contribution to building a
body of knowledge for the work.
Finally, they are not exactly the result of a scientific decisionmaking process. How is one piece of practice best and not another?
Who decides, and on what basis?
Now before anyone says Aha! But the whole of The Communication Initiative process is based on sharing best practice, let me try to clarify! We are not.
We try to share everything. There are now over 35,000 pages of summarised
BEST OF PRACTICES?
233
practice, thinking, and initiatives (so that you can quickly review if information and ideas on a page are useful to you and your work). The experiences,
ideas, and information on those pages come from you within the network. We
put them up without favour or qualification. Why? Because you will all have
different interests and demands. So, we try to put the power in your hands.
You can decide in your setting what is the best practice for you to learn
from. And, by using the review forms at the bottom of each page, you can provide your view of the idea, experience, and information on any page a peerreview process providing a practitioners and network view on practice.
So if you are in a meeting with me and someone says best practice, please
do not all look my way. I will not know what to do. Probably just shrink a
little in my chair!
Thanks for considering this.
Acknowledgement
This piece was originally placed on The Communication Initiative website on 3 March 2005, and is reprinted here with kind permission of The
Communication Initiative.
Note
1.
According to the Wikipedia entry of 14 November 2006, Mr Potato Head

is a popular childrens doll, consisting of a plastic model of a potato. Originally, the potato is blank; however, it can be decorated with numerous
attachable plastic parts to make a face, including a moustache, hat, nose,
and other features.
About the author

Warren Feek is Executive Director of The Communication Initiative (www.
comminit.com) and is based in Canada.
CHAPTER 23
Peacebuilding does not build peace

Tobias Denskus
The concept of peacebuilding is a buzzword of the development policy and practice mainstream. The recent introduction of managerial tools and the focus on
measuring the effectiveness of peacebuilding have marginalised and depoliticised critical questions about the causes of violent conflict, and have replaced
them with comforting notions for donors that peace can be built and measured
without challenging Western understanding of economy, governance, and social
aspirations of people.
Everything becomes stories and it is not important when or where
something happened, how it happened or whether it happened at all
Everything can be influenced in the telling and so nothing is how it is,
nothing stays how it was once the telling begins, and everything can
be told and you tell yourself as a story with every word, with every lie.
(Jkle 2006)
The question of whether peacebuilding builds peace remains highly relevant
almost a decade after Charles-Philippe Davids article of the same title (David
1999). Peacebuilding first appeared as a word in a UN document (Boutros
Ghali 1992), but it has turned into a non-place, like the airports or supermarkets invoked in Marc Augs anthropologicalphilosophical account of
supermodern places. Incorporated into the new aid discourse of resultsbased management, and the subject of innumerable manuals and frameworks,
peacebuilding has lost any sense of context, and of the people in that context.
The sites of peacebuilding have become non-places. This chapter reflects on
what has happened to a word that has lost the ability to tell us stories, to make
us angry or happy, and to connect people affected by war and violence and
those who are offering external advice through the international aid system
for a more peaceful world. I take a critical look at the non-place that peacebuilding describes and I consider what it would take to populate it with those
whose stories might have something to offer in transforming contemporary
approaches to development, and to war and peace.
What is peacebuilding?
The inclusion of so many activities, levels and actors under the umbrella
term peacebuilding has rendered its definition so broad that it is in danger of becoming meaningless. (Llamazares 2005: 23)
The Agenda for Peace is one of the cornerstones for the international debates
on how to build peace after violent conflicts. When the Cold War ended and
new mainly intra-state wars were on the rise, the international community
needed new forms of engagement to continue the delivery of development.
Right from the beginning, peacebuilding was not regarded as a concept that
would seek to transform societies in or emerging from conflict, but to maintain
stability. Beth Fetherston argues:
If conflict is caused, enabled, reproduced by particular social structures
and institutions which favour a dominant group, we cannot hope to remove or alleviate those causes, without altering those structures. Then,
peacekeeping becomes another aspect of a system which only seeks stability within the confines of that system, a system which already made
the war possible. (Fetherston 2000a: 196).
Ever more institutional arrangements and operational guidelines were adopted by international aid organisations to operationalise peacebuilding. An
entire industry of peacebuilding consultants, experts, and practitioners sprang
up to service these arrangements. After its failed engagement in Rwanda, the
international community became more interested in the approach encapsulated by the do no harm position (Anderson 1999). But the heavy weight of
five decades of development made it difficult to escape explaining contemporary processes and phenomena through a dominant conceptual framework
marked by Northern economic and social philosophy (Gosovic 2000: 447) and
Western intellectual traditions expectations, values and rationality (Duffey
2001: 143).
The framing of peace and ways of building it led to a preferred set of
methods and methodologies. As elsewhere in development, quantitative research such as that of Paul Collier for the World Bank (Collier et al. 2003)
gained prominence, offering a powerful instrument to legitimise interventions
by aid organisations. However, the deployment of such approaches to research
not only served to erase the particularity of places and experiences through its
inevitable generalisations, but it also had further costs. Fetherston comments:
The trend towards increasingly complex statistical analyses tends to leave
people out altogether. After all how can social space, cultures of violence and
militarization, and discourses be statistically analysed? (2000a: 194).
The peacebuilding discourse coalition (Hajer and Wagenaar 2003) that
has emerged over the past decade or so relies on a web of academics/academic institutions, researchers and practitioners, and different units in different
aid organisations. In the field of peacebuilding, new conceptual and organisational arrangements have been implemented to legitimise it for various
PEACEBUILDING DOES NOT BUILD PEACE
237
constituencies in Northern countries and Southern capital cities. One example of a virtual (and therefore global) meeting place is the Berghof Handbook
that features a range of contributions to engage with peacebuilding but puts
an emphasis on PCIA (Peace and Conflict Impact Assessment) and related
methodologies to merge peacebuilding with the results-based management
needs of aid organisations (for example, Anderson 2004; Hoffman 2004).
Paffenholz and Reychlers aid for peace approach is another such example,
peppered with phrases from the world of international aid:
In presenting our approach we have shown that a unified framework is
not only possible but also a useful starting point for all actors as it links
the analysis of the conflict and peacebuilding environment with the
implementation of interventions in conflict zones in a systematic stepby-step process. It also links the core of peace research (a theory of social
change) with operational requirements and provides methods and tools to
assess or anticipate conflict-related risks as well as effects (outcomes and
impact) by introducing peace-and-conflict results chains and indicators as
well as other tools. (Paffenholz and Reychler 2005: 16, my emphasis)
By introducing managerial tools such as the current focus on measuring
the effectiveness of peacebuilding (Paffenholz and Reychler 2007; Anderson
2004; Hoffman 2004) critical questions about the causes of violent conflict
and the future outlook of societies emerging from conflict are depoliticised
(cf. Ferguson 1994). These tools have become part of the daily life-worlds of
people working on peacebuilding, as shown by the following small excerpts
from a conversation between the author and a desk officer from the conflict
unit of a large bilateral donor agency in its European headquarters:
Part of my culture shock [when returning from a field assignment in
Kosovo] was about the importance of manuals and check-lists that are
perceived very differently in the field (...) The introduction of the new
conflict matrix has created needs for [in-house] consultancy. If people
from the field approach us, we provide them with manuals and checklists or examples of TORs for external consultants (...) If you talk to some
of the people in the field offices about the new conflict matrix, you get
hit by the collected frustrations about development co-operation. This is
a sort of anti-mainstreaming: People work with the conflict matrix to be
left in peace [sic!], but they do not engage with the actual meaning and
contents; this is similar to what I have observed with the gender topic.
In addition to the conflict matrix, the government of the country has
recently approved a cross-sectoral policy concept on peacebuilding and runs
a special network of different implementing organisations that collect and
disseminate best practices on peacebuilding among many other initiatives
to professionalise and institutionalise peacebuilding. Such institutional and
practical arrangements are tailored to the (perceived) need to present success
(Mosse 2005). But they never actively include those whose experience might
help to turn them from the artefacts of a non-place into something that
could respond to the particular issues that matter in particular places neither
the field staff and development and peace workers of aid organisations, nor
the people in (post-) conflict situations that should benefit from the projects
and programmes.
The limits of peacebuilding

Critical literature on the limitations on peacebuilding is available for all the
countries where external engagement took place from the mid-1990s until
today (Paris 2004). In the case of Latin America, for example, Colombia,
El Salvador, and Guatemala are three countries where peacebuilding has
failed after decades of war and violence (comprising all aspects of gendered
violence against children and women as well as gang and criminal violence
mainly involving men), and poverty is widespread (Preti 2002; Pearce 1999).
This should come as no surprise, because although the root causes of the
conflict are known (including land distribution, income inequality, and a
small powerful elite running the country), the engagement of the international community, especially of the international financial institutions
(IFIs), showed that imposing short-sighted liberal governance frameworks
helped to stabilise existing elite structures. Large sections of the elite had accepted the need for economic liberalisation, but had not accepted the need
for redistribution or even responsibility to invest domestic resources in the
reconstruction of the country (Boyce 1999: 57). They let the international
community take care of the 87 per cent majority in Guatemala, because
fundamental changes, for example through land reforms, were dismissed as
left-wing, communist experiments by US policy makers and IFI staff.
One could argue that these were early examples of peacebuilding, and
that the special US history in this region makes it difficult to regard them as
representative cases; but the more general point here is that peacebuilding
as defined by the international community could never carry transformative
potential. Instead, it often became a cover for familiar development interventions. And, as elsewhere in development, there was little critical attention paid
to systemic shortcomings, and to worst practices from around the peacebuilding globe (East Timor, Kosovo, Mozambique, Sri Lanka, or Rwanda, for
example).
Aug remarks that certain places exist only through the words that evoke
them, and in this sense they are non-places, or rather, imaginary places (1995:
95). In the non-place of Aidland (Apthorpe 2005), peacebuilding has become
such a word; and building peace in [country name] has certainly become an
imaginary place. Discursive interactions, governed by accepted methodologies, terms, and frameworks, have established rules of engagement that are
similar to the rules of the road and instructions for use that Aug describes in
his travels through non-places:
239
This establishes the traffic conditions of spaces in which individuals are

supposed to interact only with texts, whose proponents are not individuals, but more entities or institutions (airports, airlines, Ministry of
Transport; commercial companies, traffic police, municipal councils [or
aid organisations, NGOs, think tanks,...]). (1995: 96)
Kathmandu in 2006: donor amnesia in Aidland

In Nepal, after five decades of development and ten years of violent conflict between the army and Maoist insurgents/rebels/terrorists, Kathmandu
remained in a bubble of innocence, as one donor representative described
the state of mind in the city that seems remarkably far away from underdevelopment or war. When the people formed a democracy movement in
April 2006 and demonstrated on the streets of the capital, few conflict advisers
and inhabitants of the bubble were able to predict the fundamental political
changes that were about to happen. But they quickly shared their relief that
the promising signs of the Maoist party joining mainstream politics, a forthcoming constituent assembly, and parliamentary elections will put Nepal back
on the road to development.
Some donors were relieved that they could now continue with work they
had planned before the violent conflict, and that the small Nepali elite in
Kathmandu seems to be willing to address the challenges, root causes that
have kept Nepal in poverty for the past 55 years. In this fast-moving environment, people in Kathmandu did not or could not spend time to reflect on the
conflict that has cost around 13,000 lives so far, but started to look forward to
the bright post-conflict future of the country.
INGOs, individuals, and aid specialists from other post-war non-places
quickly arrived in Kathmandu to share their approaches, always stressing
that they needed to be tailored to Nepal, of course. Arms management,
security sector reforms, transitional justice the Fall 2006 collection arrived in Kathmandu straight from the peacebuilding catwalks in Europe
without looking outside the bubble, or searching for stories in the remote
villages of Nepal, asking local people about the future direction of their
country. A former conflict adviser of a European donor observes:
When I first attended the meetings of the conflict advisors group I was
surprised to find them talking over simple and conservative conflict
analyses and I immediately started to wonder whether these guys [all
but one were men at that time] should know these things by now and
before coming to Kathmandu.
Harmonisation may be all the rage in todays Aidland, but, as this donor
went on to comment, donor co-ordination in the peacebuilding industry
seems somewhat over-enthusiastic: We had 400 meetings after the February 1
coup of the King in 2005. I knew more about what the Japanese and Americans were
doing than about our projects in the field.
The professional life-world in Kathmandu was also matched by the sheltered private lifestyle of most international inhabitants of Aidland, because
the Maoist violence never reached the Kathmandu Valley. As another donor
representative remarked half-jokingly:
Travelling to the field was declared as too dangerous from a very early
stage of the conflict. So how did the international community experience the conflict? During one of the longest bandhs [general strikes and
blockades announced by the Maoists] people had to switch from fresh
groceries to the canned Dole-stuff in the supermarkets and then had
something to talk about for days!
Peacebuilding is almost always linked to issues of governmentality
making chaotic and unsafe places fit for (neo)liberal democracy. Nepal is
doomed to be a success-story of how a violent conflict can be transformed
through peaceful, democratic means and adoption of the latest fashion in
peacebuilding. Neither critical voices nor lessons learned from the failed
development of Nepal, nor indeed the history of failed peacebuilding interventions elsewhere, will enter the narrative of success.
The end of history?

Peacebuilding has become a lifestyle for a small community of global
cosmopolitans who travel from aid city to aid city. As the current situation in Kathmandu shows, post-war engagement always seems to start from
zero, without history or critical baggage. The simple word peacebuilding
has become a non-space, part of the supermodern aid industry. But even if
it sounds paradoxical after such a devastating overview, we still know very
little about the inner workings of this non-place. Beth Fetherston points
out that the irrationality of warzones is not understood by those who promote peacebuilding:
Understandings of war implied in the definitions, researches and
methodologies of conflict settlement and CR [Conflict Resolution] lack
connection to the everydayness of the warzone. These kinds of descriptions of war and its aftermath fail to catch its complexity and deep
effects on social space and meaning. (Fetherston 2000b: 9)
Anthropological micro-studies have recently begun to emerge that raise
uncomfortable questions about agency, participation, and inner workings of
wars (Hoffman and Lubkemann 2005; Richards 2005; Utas 2005; Nordstrom
2004). Such accounts highlight alternative forms of governance and order
that peacebuilding finds difficult to address, because they lie outside the normative framework of the liberal democratic model. They show that a great
many people benefit from war, and some are even empowered by it; and
they challenge taken-for-granted understandings about the gender dynamics
of war and peace. What such studies make apparent is that it is only by better
241
understanding how social interactions change during war, and how relationships and power are maintained after its end, that the non-place of peacebuilding can be peopled with the diversity of experiences of war and peace of
those who live in situations of conflict.
To make sense of the disconnect between the virtual world created by the
peacebuilding narrative and lived experience, further study is also needed of
the outside actors who engage in peacebuilding, those who send dedicated
and motivated people into post-war situations or sit at the geographical or
thematic desks in ministries, aid organisations, and research institutions. Aidnography has emerged as a term to describe ethnographic research in the
realities of aid projects to uncover relationships, negotiation processes, and
the being of development projects. This is also needed for the organisations
and projects that aim at building peace.
These two avenues of further inquiry are not separate, because they are
both looking into complexity, the everyday reality of war and peacebuilding, and different forms of sensemaking of the realities that constitute the
non-place of peacebuilding. The development workers in the headquarters in
Europe, in the aid cities, and in the projects in the field will be a key factor in
pricking the bubble. Listening to people living in war and in peace, acknowledging their stories and those of the people who inhabit Aidland, and naming
the uncertainties and failures that are part of these worlds, can help to bring a
transformative element into a debate that is currently buried under the high
pressure of supermodern aid management.
Without these stories, and without more reflection on our own engagement and more qualitative insights into the social dynamics of war and peace,
peacebuilding will not even remain a buzzword. It will become another airport on the global development travel routes This is the final call for the
Aidlines flight from gender to peacebuilding, with a quick stop-over in
participation . Gillie Boltons example from medical professionals could be
an entry point for the development and peace profession as well:
Bringing our everyday stories into question is an adventure. No one
adventures securely in their backyard. Professionals need to face the
uncertainty of not knowing whats round the corner, where theyre
going, how theyll travel, when theyll meet dragons or angels, and
who the comrades are. They even have to trust why theyre going. A
student commented: What a relief it is to know that this uncertainty
is essential; knowing that makes me feel less uncertain of being uncertain. Now uncertainty is my mantra. (Bolton 2006: 210)1
Acknowledgements
I would like to thank Andrea Cornwall and Deborah Eade for their helpful
comments and editorial support.
Note
1.
I have to thank Gael Robertson for sharing this reference with me.
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Gosovic, Branislav (2000) Global intellectual hegemony and the international
development agenda, International Social Science Journal 52(4): 44756.
Hajer, Marten A., and Hendrik Wagenaar (2003) Deliberative Policy Analysis.
Understanding Governance in the Network Society, Cambridge: Cambridge
University Press.
243
Hoffman, Daniel and Stephen Lubkemann (2005) Warscape ethnography in

West Africa and the anthropology of events, Anthropological Quarterly
78(2): 31527.
Hoffman, Mark (2004) Peace and conflict impact assessment methodology,
in David Bloomfield, Martina Fischer, and Beatrix Schmelzle (eds.) Berghof
Handbook for Conflict Transformation. Berlin: Berghof Research Center for
Constructive Conflict Management, available online at www.berghof-handbook.net.
Jkle, Nina (2006) Type case 5, Mercedes Benz Texttracks Volume 1, www.
mercedes-benz.com/texttracks.
Llamazares, Monica (2005) Post-War Peacebuilding Reviewed: A Critical Exploration Of Generic Approaches To Post-War Reconstruction, Working Paper 14,
Bradford: Centre for Conflict Resolution.
Mosse, David (2005) Cultivating Development. An Ethnography of Aid Policy and
Practice, London: Pluto Press.
Nordstrom, Carolyn (2004) Shadows of War: Violence, Power, and International
Profiteering in the Twenty-First Century, Berkeley, CA: University of California
Press.
Paffenholz, Thania and Luc Reychler (2005) Towards better policy and programme work in conflict zones: introducing the Aid for Peace approach,
Journal of Peacebuilding and Development 2(2): 118.
Paffenholz, Thania and Luc Reychler (eds.) (2007) Aid for Peace: A guide to
planning and assessment for conflict zones, Baden-Baden: Nomos Verlag.
Paris, Roland (2004) At Wars End: Building Peace After Civil Conflict, Cambridge:
Cambridge University Press.
Pearce, Jenny (1999) Peace-building in the periphery: lessons from Central
America, Third World Quarterly 20(1): 5168.
Preti, Alessandro (2002) Guatemala: violence in peacetime: a critical analysis
of the armed conflict and the peace process, Disasters 26(2): 99119.
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Conflict, Athens, OH and Oxford: Ohio University Press and James Currey.
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womans social navigation of the Liberian war zone, Anthropological
Quarterly 78(2): 40330.
About the author

Tobias Denskus has worked in Afghanistan and Nepal and undertaken research on German peacebuilding projects in Macedonia. He is studying at the
Institute of Development Studies at the University of Sussex, and describes
himself as having dual citizenship of both Aidland and Reflectionland.
CHAPTER 24
The uncertain relationship between

transparency and accountability
Jonathan Fox
The concepts of transparency and accountability are closely linked: transparency
is supposed to generate accountability. This chapter questions this widely held assumption. Transparency mobilises the power of shame, yet the shameless may not
be vulnerable to public exposure. Truth often fails to lead to justice. After exploring
different definitions and dimensions of the two ideas, the more relevant question
turns out to be: what kinds of transparency lead to what kinds of accountability,
and under what conditions? The chapter concludes by proposing that the concept
can be unpacked in terms of two distinct variants. Transparency can be either
clear or opaque, while accountability can be either soft or hard.
The right to information is increasingly recognised as a fundamental democratic right, although it was clearly stated in Article 19 of the United Nations
Universal Declaration of Human Rights a half-century ago.1 More than 60
countries around the world have now launched right-to-know reforms, starting with Sweden in 1766, and now including dozens of developing countries
(Banisar 2006). Their content varies widely, however: one can only imagine
how effective the 2002 reforms in Zimbabwe and Tajikistan have been. Yet
in the same year, Mexico passed what became the most far-reaching law on
public access to information in the developing world (Sobel et al. 2006; Fox
et al. 2007). Mexicos breakthrough was then surpassed by Indias remarkable 2005 reform, which followed years of state-level reforms and grassroots
campaigns.
Civil-society campaigners around the world have incorporated the right to
know into both their strategies and their tactics, with the hope that transparency will empower efforts to change the behaviour of powerful institutions
by holding them accountable in the glare of the public eye. More broadly,
the twin principles of transparency and accountability have become adopted
by an extraordinarily broad array of political and policy actors in a remarkably brief period of time. This appeal is testimony to their trans-ideological
character and to the convergence of forces from above and below that have
appropriated them. This underscores the need to specify what exactly the
terms mean, to whom, and in what context. One persons transparency is
anothers surveillance. One persons accountability is anothers persecution.
Where one stands on these issues depends on where one sits. Both concepts
are inherently relational: who is to be transparent to whom, and who is to be
accountable to whom? Yet what they share is the fact that such a wide range
of actors agree that transparency and accountability are key to all manner of
good governance, from anti-poverty programmes to corporate responsibility,
participatory budgeting, and NGO management.
Not coincidentally, the terms transparency and accountability are both quite
malleable and therefore conveniently can mean all things to all people. For
example, while the transparency banner has been held high by the environmental movement for decades, calling for public hearings to assess environmental
impacts and for the obligatory reporting of toxic emissions, corporate investors
also took up the charge in the wake of the Enron collapse, calling for managements to open their books. While accountability has long been the watchword
of human-rights movements around the world, calling for truth with justice,
technocratic managers and anti-union politicians also use it to impose their
goals on ostensibly unresponsive public bureaucracies (using the reporting tools
of tests and other quantifiable indicators). Campaigners have long challenged
the World Bank on the grounds of lack of transparency and advocate holding it
accountable for development disasters, yet World Bank managers now call for
borrowing governments to be more transparent, and claim that they are holding corrupt governments and contractors accountable for misusing development funds. Bank managers even now converge with the World Social Forum
in support for participatory budgeting, a local-government reform strategy that
brings transparency and accountability together.
The views of various stakeholders on these issues to use another development buzzword depend heavily on how exactly transparency and accountability are defined, and such definitional decisions are path-dependent. In
other words, the question of what counts as transparency and accountability
depends on how their conceptual boundaries are drawn. Moreover, in many
national and international debates over how and whether to enforce social
and environmental standards, the following trend appears to be quite pronounced: while critics call for accountability, powerful elites respond by offering some measure of transparency instead. The implication is that monitoring
and reporting measures (sometimes by interested parties) are the cure for all
ills. They offer a market-friendly substitute for the threat of authoritative
sanctions (now stigmatised as command and control measures). One notable
example was in the US debate over the North American Free Trade Agreement,
when labour and environmental side-agreements that could only promise
public hearings and modest investigations were sold as the solution to the
poor enforcement of minimum standards (in the USA as well as in Mexico).
In brief, better and more information is supposed to make both markets and
public authorities work better. But does it? What does the evidence show?
The conventional wisdom about the power of transparency is straightforward: transparency generates accountability. Several related phases come
to mind, such as information is power, the truth shall set you free, and
TRANSPARENCY AND ACCOUNTABILITY
247
speak truth to power. Or, as one of the founders of public-interest law and
later US Supreme Court Justice Louis Brandeis put it 90 years ago: [p]ublicity
is justly commended as a remedy for social and industrial diseases, sunshine
is said to be the best disinfectant, electric light the best policeman (1913).2
This proposition makes a great deal of sense, yet a review of the research
literature on this issue revealed two major puzzles. First, the actual evidence
on transparencys impacts on accountability is not as strong as one might
expect. Second, the explanations of transparencys impacts are not nearly as
straightforward as the widely held, implicitly self-evident answer to the why
question would lead one to expect.
To evoke the power of sunshine is both intuitive and convincing. Indeed,
these principles have guided my past 15 years work.3 Nevertheless, recently,
a review of the empirical evidence for the assumed link between transparency and accountability shows that one does not necessarily lead to the other.
Those who make this assumption are confusing the normative (that which
our democratic values lead us to believe in) with the analytical (that which the
social sciences allow us to claim). If the power of transparency is fuelled by the
power of shame, then its influence over the really shameless could be quite
limited.4 It turns out that transparency is necessary but far from sufficient to
produce accountability.
In this context, it is important to reframe the question in the following
terms, more analytical than normative: under what conditions can transparency
lead to accountability? To be explored in practice, such a question requires
still more precision. Both the concepts of transparency and accountability
refer to a broad range of processes, actors, and power relations. To reframe
the question: what types of transparency manage to generate what types of
accountability?
Both transparency and accountability share a conceptual problem: they
are rarely defined with precision. For both, you know it when you see it. At
least until recently, transparency has received more practical than conceptual
attention.5 In contrast, the concept of accountability has been reviewed and
deepened from diverse perspectives.6 Yet if one is interested in understanding
whether and how transparency generates accountability, it is crucial to disentangle rather than conflate the two ideas. To preview the discussion, one must
take into account the distinction between two dimensions of accountability:
on the one hand, the capacity or the right to demand answers (what Schedler
calls answerability) and, on the other hand, the capacity to sanction (1999).
Transparency pathways
Instruments for public access to information generally fall into one of two
categories: proactive and demand-driven. Proactive dissemination refers to
information that the government makes public about its activities and performance. Practical expressions can range from toxic-release inventories to
organic certification, third-party policy evaluations, and post-authoritarian
truth commissions. Demand-driven access refers to an institutional commitment to respond to citizens requests for specific kinds of information or documents which otherwise would not be accessible. Institutions can range from
classic freedom-of-information laws to ombudsman offices, social accountability agencies, and investigative bodies such as the World Banks Inspection
Panel.
The idea of transparency can also be unpacked in terms of its directionality.
Disclosure cuts both ways, channelling information upwards as well as downwards. Right to know reforms refer to measures that promote downwards
transparency, from the state to society. In contrast, state imperatives to monitor citizens can be understood as a form of upwards transparency. Consider
the examples of conditional cash-transfer social programmes, in which states
closely monitor family behaviour, or the lack of guaranteed ballot secrecy,
which leads voters to suspect that authorities will learn how they voted. In
other words, transparency can be another word for surveillance, which in turn
allows state actors to hold citizens accountable for perceived transgressions.
From transparency to accountability

It remains unclear why some transparency initiatives manage to influence
the behaviour of powerful institutions, while others do not. Public oversight
institutions that seek to bolster checks and balances emphasise the production of transparency. Through inspections, reports, audits and investigations,
legislative hearings, ombudsmen, truth commissions, complaint offices, and
human-rights commissions, these agencies of horizontal accountability shed
light on abuses.7 Civil-society organisations and independent media also invest heavily in encouraging these official watchdogs to do their job. Yet these
oversight bodies rarely have sufficient institutional clout to be able to act on
their findings, whether by proposing mandatory sanctions, policy changes,
protection from violations, or compensation for past abuses. As a result, the
power of transparency, defined in terms of the tangible impacts of the public
spotlight, depends in practice on how other actors respond. These reactive responses can be indirect, when the mass media, opposition political parties, or
voters make an issue of newly revealed abuses; or they can be direct, as when
the judicial or elected authorities make binding decisions in response.
This observation raises a few dilemmas. The first involves the difference between accountability targets: institutions or individuals? The second involves
the problem of quality control for official information. The third involves a
conceptual distinction between two different kinds of transparency: clear and
opaque. The fourth point brings this distinction together with two kinds of
accountability: soft and hard, which will allow us to return to the initial question by defining transparency and accountability with greater precision.
249
Transparencys different goals: individual vs institutional accountability

Beyond the general assumption that transparency reforms can limit abuses
of power, they can have different goals. While some are intended to tackle
corruption, and therefore focus on crime, others attempt to encourage improved institutional performance more generally. These different goals imply
distinct strategies. The first would be more legalistic, tending to focus on individual failures, while the second would address more systemic flaws. Within
the field of budget transparency, for example, the first approach would focus
more on revealing the details of public-sector contracts, for instance, and assuring that funds were spent as intended. The second strategy, in contrast,
would focus more on the impacts of public spending: how agencies actually
used the funds, and to what effect. This strategy requires both highly disaggregated public-spending data and reliable, publicly accessible, third-party policy
evaluations.8 From a civil-society perspective, policy impact is also likely to
depend on vertical integration between national public-interest groups that
monitor the big picture and grassroots organisations that can ground-truth
the claims of official data (Fox 2001).
The goals of individual vs institutional accountability may be not only different: they may sometimes conflict. Any institutional action is the result of
decisions by many individuals, which complicates efforts to establish responsibility with precision. Thompson characterised this as the problem of many
hands (1987). If the goal is to reveal which individuals were responsible for
a specific transgression, then the spotlight often falls on those immediately
responsible, usually at lower or middle levels of an agency, which lets higherlevel officials off the hook.9
Data or information?
A second dilemma involves the difference between official data and relevant,
reliable information. Here there is a big difference between disclosure that is
voluntary, nominally mandatory vs. really obligatory. Voluntary disclosure
would seem to be inherently limited, given the incentive to conceal damaging information but with a notable exception. Firms that choose to submit
to certification of their compliance with social and environmental standards
presumably lose some control over the transparency process.10 This has led
to major debates over which certifiers are truly arms-length, as in the case
of manufacturers that hire commercial accounting firms to certify their
subcontractors, which fail to use the key instrument of unannounced factory
inspections.11
When considering obligatory disclosure of performance data, the challenge
of assuring quality control becomes clear when examining the paradigm case
for impact of transparency reforms: the toxic-release inventory system. Since
1986, in the USA and now many other countries, private firms that emit certain chemicals are required to report the quantities of their emissions to a
government agency, which in turn makes the data public. The assumption
is that this dissemination provides tools to the public to inform and motivate civic and media campaigns to encourage compliance with environmental
laws.12 Many analysts have argued that the USAs toxic-release inventory was
responsible for the reported 46 per cent reduction in emissions between 1988
and 1999 (for example, Fung and ORourke 2000; Graham 2002; Konar and
Cohen 1997; Stephan 2002). Nevertheless, evaluations by the federal governments accountability office found that the Environmental Protection Agency
did not assure reliable and consistent reporting by private firms (GAO 1993,
2001). As a result, polluters did not have to fear sanctions for under-reporting.
When public-interest groups did their own assessment in the city of Houston,
they found that independently estimated actual levels of emissions were four
times greater than had been officially reported (Environmental Integrity Project 2004). These findings do not mean that the reform had no impact, but
they do raise serious questions about the claims made for this widely recognised public alternative to so-called command-and-control approaches (for example, Dietz and Stern 2002). Disclosure that was mandatory in theory turned
out to be less than mandatory in practice.
The two faces of transparency

This leads us to a third dilemma: how do we explain why some forms of transparency are better able to leverage accountability than others? Here it is relevant to distinguish between two different kinds of transparency: clear and
opaque. This distinction is relevant, because insofar as transparency discourse
becomes increasingly fashionable, the forces opposed to it will tend to go
underground. They will express their opposition indirectly, by providing less
than clear transparency.
Opaque or fuzzy transparency involves the dissemination of information
that does not reveal how institutions actually behave in practice, whether in
terms of how they make decisions, or the results of their actions. The term also
refers to information that is divulged only nominally, or which is revealed but
turns out to be unreliable. For example, in principle, in the USA, data on who
gets farm subsidies, and how much, are considered to be in the public domain.
But for the information to be publicly accessible in practice, a public-interest
watchdog organisation, the Environmental Working Group, had to invest US$
12 million in six years of difficult technical work (Becker 2002). Now one
simply needs to access www.ewg.org to see exactly who gets how much. This
case reminds us that an enormous civil-society investment may be required to
translate nominally public data into clearly transparent information.
Clear transparency refers both to information-access policies and to programmes that reveal reliable information about institutional performance,
specifying officials responsibilities as well as where public funds go. Clear
transparency sheds light on institutional behaviour, which permits interested
parties (such as policy makers, opinion makers, and programme participants)
251
to pursue strategies of constructive change. Examples of clear transparency

would include civil-society data about human-rights violations, reliable certification of private-sector compliance with environmental standards, independent ombudsman reports, publicly accessible third-party policy evaluations,
and even the World Banks Inspection Panel reports.13
This distinction between clear and opaque is grounded on the premise that
if transparency policies are going to meet their goals of transforming institutional behaviour, then they must be explicit in terms of who does what, and
who gets what. Nevertheless, clear transparency by itself does not guarantee
hard accountability, which would require the intervention of other publicsector actors. Returning to the example of farm subsidies, even though publicinterest groups generated an impressive impact in the media, afterwards US
government payments to large agribusiness corporations not only were not
reduced, they increased enormously (because of their electoral logic).
From the two faces of transparency to the two faces of accountability

In conclusion, the distinction between opaque and clear transparency provokes
reflection about their relationships with accountability. Space does not permit
a full review of the multiple variants of public accountability, but they share
an emphasis on the fundamental right to call those in authority to justify their
decisions the idea of answerability. For many, however, answerability without consequences falls short of accountability.
This discussion will be limited to distinguishing between two basic dimensions of accountability. One could call answerability the soft face, while the
hard face includes answerability plus the possibility of sanctions. Tables 1
and 2 are organised around this distinction. They show how the presence or
absence of certain institutional capacities is associated with either opaque or
clear transparency on the one hand, and either hard or soft accountability on
the other. Three kinds of institutional capacity are depicted in terms of varying
shades of grey: dissemination of and access to information, answerability, and
the power to sanction/compensate. The relationship between transparency
and accountability is illustrated by these differences in institutional capacity.
Table 1 suggests that when only information access is present, at one extreme, an institution is transparent, but not accountable. On the right-hand
side, accountability includes the capacity to sanction or compensate. The intermediate category refers to the capacity to demand explanations, which is
posed here as an area of overlap between transparency and accountability. The
most meaningful kind of answerability is produced by those public and civilsociety agencies that have the power not only to reveal existing data, but
also to investigate and produce information about actual institutional behaviour. This capacity to produce answers permits the construction of the right to
accountability.
Table 2 takes this distinction a step further by unpacking both transparency
and accountability in terms of their two respective dimensions: the opaque

Table 1. A first approximation of the relationship between transparency and accountability
Transparency
Accountability
Dissemination and access the information

Institutional answerability
Sanctions, compensation and/or remediation
Table 2. Unpacking the relationship between transparency and accountability

Transparency
Opaque
Accountability
Clear
Soft
Hard
Dissemination and access the information

Institutional answerability
Sanctions, compensation and/or remediation
and the clear, as well as the hard and the soft. By recognising these distinctions, one can identify the area of overlap with greater precision: institutional
answerability.
In conclusion, the point of departure for this exploration of the relationship between transparency and accountability was that we are obliged to
distinguish between the two concepts because one does not necessarily generate the other. To circle back to the question of how transparency relates
to accountability, Table 2 suggests that the two concepts do indeed overlap.
Clear transparency can be understood as a form of soft accountability. This distinction allows us to identify both the limits and the possibilities of transparency, which at minimum should help to calibrate realistic expectations. One
should not expect answerability from opaque transparency, and one should
not expect hard accountability from answerability. To take the next step and
address hard accountability would involve going beyond the limits of transparency and dealing with both the nature of the governing regime and civil
societys capacity to encourage the institutions of public accountability to do
their job.
Notes
1.
2.
This chapter is a revised and abridged translation of Fox (2008a).

It is worth noting that this same thinker and activist, defender of transparency as a tool to fight the abuse of concentrated power, also invented
and defended the concept of the right to privacy (Warren and Brandeis
1890). The transparency of the state and citizens privacy are two sides of
the same coin.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
253
See, among others, Fox and Brown (1998) and Clark et al. (2003). On
recent campaigns, see www. bicusa.org/.
Regarding the mobilisation of shame, above all by human-rights defenders, see Drinan (2001), among others.
For exceptionally comprehensive works, see Florini (2003), Graham
(2002), Hood and Heald (2006), Monsivis (2005), Roberts (2006), and
Oliver (2004). For analyses of the Mexican experience by civil society, see
Fox (2008b).
See, for example, Ackerman (2008), Behn (2001), Bovens (1998), Fox et
al. (2007), Isunza Vera and Olvera (2006), Mainwaring and Welna (2003),
ODonnell (1999), and Schedler (1999).
On horizontal accountability, see ODonnell (1999, 2003). On truth commissions, see Rotberg and Thompson (2000) and Gibson (2005), among
others.
Recall, for example, the distinction between policy inputs (such as budget
appropriations and contracts for building schools), results (whether or not
the schools were actually built and staffed, student attendance rates), and
impacts (to what degree did the students learn). Though third-party evaluations are now very much in vogue, and their focus on measuring impacts
is welcome, they run the risk of assuming the reliability of official data
regarding the inputs that are then correlated with outputs.
Long before low-ranking soldiers took all of the official blame for torture at Abu Ghraib in Iraq, classic cases would include the 1968 My Lai
massacre in Vietnam, in which a low-ranking officer was found guilty of
ordering the mass murder of 500 civilians. In a rare conviction, he was
first sentenced to life imprisonment and ended up serving three and a
half years of house arrest on a military base. He claimed that he was
following orders, and indeed he was carrying out a counter-insurgency
strategy that was the result of decisions made at the highest levels of the
US government.
For an overview of fair trade, see Nichols and Opal (2004). On voluntary
certification in the timber case, see Cashore et al. (2004).
See, among others, Esbenshade (2004), Richter (2001), and RodrguezGaravito (2005).
See, for example, the tools at www.scorecard.org/.
On the latter experience, see Clark et al. (2003) and World Bank (2003).
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Through Markets: Forest Certification and the Emergence on Non-State Authority, New Haven, CT: Yale University Press.
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About the author

Jonathan Fox is Professor of Latin American and Latino Studies at the University of California, Santa Cruz and has published widely on the issues
of democratisation and the strengthening of civil society, particularly in
Mexico.
CHAPTER 25
Corruption
Elizabeth Harrison
This chapter engages with the ways in which corruption has taken centre stage
in much development policy making and rhetoric. It argues that there is a need
to destabilise taken for granted assumptions about what corruption is and how
it operates. This means generating an understanding of how meanings of corruption vary, and how this variation is determined by the social characteristics of
those engaged in corruption talk. It also means examination of how discourses of
corruption and anti-corruption are translated from international to national and
local stages from the anti-corruption establishment to the realities of bureaucratic encounters in diverse contexts.
What is the value in dissecting the use of the word corruption in development rhetoric? Like most of the expressions examined in this volume, corruption is frequently used sloppily, and its use may disguise political agendas, or
further the interests of the powerful. Corruption is unlike some of the more
bland development buzzwords (social protection, harmonisation, country ownership), in that they primarily describe fashionable ways of getting development
done. There is more to it than this, perhaps because corruption describes not
so much how to get things done, but something that is perceived to be hampering those efforts. Corruption is also similar to poverty, in that it attempts
to describe something, however inadequately, which exists in the real world
and can make peoples lives miserable.
When it comes to corruption, destabilising its taken for granted quality might help us to better identify where corruption hurts, and whom. This
means understanding what corruption means for different people, who is
able to define an act as corrupt or not, and who is included in or excluded
from discourses of corruption. This is not to present a relativistic position
where, for example, corruption is re-labelled as gift giving and thus excused
as culturally acceptable. Rather it is about understanding the social characteristics which influence corruption talk: gender, age, religion, ethnicity, and
so on may all play a role, as will differential engagement with international
anti-corruption discourses themselves.
Corruption takes centre stage

The profile of corruption in development talk has grown hugely in recent
years. On the international stage, anti-corruption work takes a prominent
place in the work of both bilateral and multilateral donors. From the time of
James Wolfensohns speech in 1996, when he famously, and for some, shockingly, referred to the cancer of corruption in Africa, the World Bank has taken
a leading role in the anti-corruption crusade (Sampson 2005). Others, such
as the UK governments Department for International Development (DFID),
have dedicated teams focused on the control of corruption. In the 2005 Report of the Commission for Africa, corruption control takes a prominent place
as a vital part of the solution to the continents ills. The NGO Transparency
International (TI) has chapters in 85 countries, all devoted to campaigning
against and exposing corruption. It is funded both by the major donors and
by businesses keen to be associated with more transparent and virtuous business practices. The world of anti-corruption produces significant research, its
findings largely disseminated through a range of anti-corruption portals, such
as CORIS and ANCORR.1 In fact, the Internet has provided a medium in which
the volume of anti-corruption information and analysis is so large as to be
almost unmanageable.
Concern with corruption is not just a phenomenon of donor development
discourse. In both Northern and Southern countries, there is a mounting focus
on transparency, accountability, and the rule of law. The Right to Information
Movement in India has had significant success in bringing corrupt bureaucrats
to account. Anti-corruption campaigners such as John Githongo in Kenya have
a high profile and are, rightly, celebrated for speaking out, often putting themselves at personal risk. When the UK High Commissioner to Kenya, Edward
Clay, condemned that countrys corruption in rather colourful terms, he was
fted in the British media.2
And who could argue with the need for more freedom of speech, and the
exposure of corrupt and money-grabbing politician or bureaucrats? But when
we look closer, the targets of anti-corruption talk become more slippery, less
easy to identify. To be sure, a Minister salting donor funds away in a foreign
bank is a problem. But what about an agricultural extension worker favouring his brother in the delivery of farm inputs or, indeed, the brother who
receives those inputs? Are they as morally culpable, and how are we to decide?
To what extent should we take into account the constraints under which they
operate, or the other moral considerations that may be coming into play? As
Pardo argues,
in any given society corruption is a changing phenomenon, some
of its aspects and received morality are culturally specific and its conceptualization is affected by personal interest, cultural values and socio-economic status. In this key sense, corruption needs to be treated
contextually and diachronically. (Pardo 2004: 2)
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259
On rhetoric and meaning

There is a well-developed literature on the definition and meaning of corruption, much of it arising from social anthropology. This explores the nuances
between bribery, nepotism, graft, extortion and so on, and reflects on the relationships between people and bureaucracies (for example, Leys 1965; Olivier
de Sardan 1999; Gupta 1995; Miller et al. 2001; Parry 2000). However, when
it comes to the control of corruption in development policy making and public statements, such nuance tends to disappear. More complicated views or
definitions become reduced to short phrases with a strong rhetorical quality, which become accepted as truths and articles of faith. Thus, for many
years, the generally accepted definition of corruption was the abuse of public
office for private gain. This implies a firm dichotomy between the public/impersonal and the private/personal spheres, and the importance of keeping the
two separate. It is derived from a Weberian notion of rationallegal bureaucratic organisation. However, unlike for Weber, who was clear that this was
an ideal type which cannot be found empirically anywhere in reality (Weber
1949: 90), such a bureaucratic ideal is sometimes presented as a basic model
from which to develop policy. For example, in 2004, the World Bank funded
a study which examined the Weberianess of individual governments (Evans
and Rauch 2004).
A series of scandals involving private-sector firms such as Enron and
Worldcom in the USA has prompted some rethinking of the abuse of public
office definition. Transparency International and others now refer to the
abuse of trusted authority for private gain. Nonetheless, this still relies on a
fairly simplified distinction between the public and private spheres, and
glosses over whether, for example, those involved in particular acts see them
as corrupt or not. Once the definition has been accepted and repeated, the
problems with understanding its application do not trouble its users. Thus,
the widespread acceptance that Africa is riddled with corruption like a diseased body is not scrutinised.
Such a view is compounded by the popularity of measures such as the
Corruption Perceptions Index (CPI). The CPI, developed by TI, is a composite
measure which brings together the views of chief financial officers, executives
in top and middle management, and US-resident country experts, as well as a
number of other categories of business experts (TI 2005). It reports on perceptions of levels of corruption in more than 150 countries and publishes results
in a form of league table in which we can see which countries are perceived to
be more, and which less, corrupt. Not surprisingly, Scandinavian countries top
the league, while at the bottom Southern, particularly African, countries predominate. In the 2005 CPI, Bangladesh and Chad had the dubious distinction
of coming last, while Iceland was at the top. The CPI has obvious attractions,
particularly for donors seeking to justify anti-corruption efforts. The fact that it
is a measure only of perceptions, not of corrupt practices, is seldom treated as
important. Nor is the fact that those on whose opinion it relies are likely to be
educated, articulate, and share a particular worldview and set of values about
the negative effects of corruption.
To be fair, the CPI has been criticised recently, most strongly by one of its
originators, Fredrik Galtung, who has left TI to be part of a new anti-corruption network, Tiri (www.tiri.org). Galtung (2005) has argued that the CPI has
a number of significant failings. These include the fact that it relies on an
imprecise, yet narrow, definition of corruption, focuses only on the takers
and not the givers, and draws its information from often ignorant sources.
To respond to criticism, TI now also produces a Bribe-Payers Index (BPI) and
the Global Corruption Barometer (GCB). The GCB polled 55,000 people in 69
countries in 2005 to hear their perceptions about corruption. According to
TI, it takes the temperature of the people whose lives and views are touched
by corruption (TI 2005). Significantly, however, this is still only a measure of
perceptions.
Research from anthropology suggests that perceptions of corruption may
in fact bear little relationship to its incidence. For example, Parrys (2000) ethnography of a government-run steel plant in Madhya Pradesh, India, indicates
that, while there was a strong perception that it was virtually impossible to get
a job without recourse to an intermediary, in practice very few people actually
paid bribes for employment. Parry argues that this illustrates the internalisation, rather than the rejection, of particular values of bureaucratic practice.
Corruption has seemed to get worse and worse not (only) because it has, but
also because it subverts a set of values to which people are increasingly committed (Parry 2000: 53). Arguably, the very success of anti-corruption rhetoric
may result in more and more people believing that corruption is a problem.
The more there is talk about the problem of corruption, the more widely it is
perceived to be a national blight.
The Global Corruption Barometer is seen as a tool to combat corruption,
but behind its impressive and emotive language, the slipperiness about what
corruption is persists. For the GCB, the focus is bribery, and the argument is
made that corruptions impact on personal and family life is most dramatic
on poor households (TI 2005). But petty bribery, the kind that makes a young
mother lose hope for the future because she believes that securing her childs
health requires a hand under the table, is not the same as the kind of grand
corruption that much anti-corruption rhetoric focuses upon. Some might say
it is worse, or that it is what really matters. Others might stress how single acts
of grand corruption do much more harm. The differences between different
practices which are all lumped together as corruption lie in the different conceptions of what kind of moral boundary line has been crossed in particular
instances. This is something that is not part of the moral certainty that drives
anti-corruption rhetoric. But, in classifying corruption as a simple phenomenon, the diverse ways in which people engage with morality are overlooked.
Comprehension of how opportunities are shaped, both to engage in and to
escape from corruption, is important. It seldom occurs.
CORRUPTION
261
Why corruption has come to matter and why now?

So why has anti-corruption become so pre-eminent in donor discourse, with
such under-specification of what corruption itself is? Two opposed explanations are possible. On the one hand, there are those who strongly associate
themselves with anti-corruption and for whom academic speculation about
contested moralities is at best a waste of time and at worst a dangerous diversion. For these, the pre-eminence of corruption in international discourse
is merely and self-evidently a reflection of the importance of the phenomenon. It may also be something of a moral victory for those who have right
on their side. On the other hand is a growing body of scholars who see the
growth of anti-corruption as part of a project of normalisation (Hindess
2004). Among these are those such as Szeftel, who has argued (1998) that
the anti-corruption agenda fundamentally misunderstands the nature of the
state in Africa; and Brown and Cloke (2004), who see it as the manifestation
of a neo-liberal policy agenda. For several, anti-corruption is closely associated
with the governance agenda in development, itself a manifestation of greater intrusion of neo-liberalism in the architecture of aid. Szeftel also suggests
that anti-corruption may reflect a desire to both explain and divert attention
from the failure of structural-adjustment policies. These criticisms together
become even more pertinent when the accountability and moral purity of
international development institutions themselves are called into question.
Has insufficient attention been paid to the internal anti-corruption mechanisms of such institutions? And does the focus on anti-corruption, with its
attendant increase in privatisation, concessions, and contracting-out, in turn
open the door for greater corruption among multinational corporations (Hall
1999; Hawley 2000)?
Of course, the answer lies somewhere in between. Corruption does exist,
and its pre-eminence in international discourse is not innocent of neo-liberal
values. To develop this point, reflection on the working of the anti-corruption
establishment itself is valuable. Like all discourses, that of anti-corruption
does not exist in an institutional vacuum: it is used and developed by particular actors and demonstrates particular sets of practices. In examining this
world, a picture emerges which may imply less intentionality than a neoliberal conspiracy, but which goes some way towards explaining the nature of
anti-corruption talk.
In this, the role of academic discipline emerges as significant. The World
Bank is now a (perhaps the) major player in anti-corruption activity (Marquette
2003; Polzer 2001). Despite its nominal independence, TI has strong links
with the Bank, and was indeed founded by former Bank employees, whose
connections have been important in its rapid growth. From being an organisation whose Articles of Confederation forbade its involvement in politics, the
Bank has now come to accept the intimate connection between politics and
economic outcomes. The Bank is also, despite some shifts, still dominated by
economists. Arguably, the way that the Bank has defined and used the concept
of corruption is influenced by this.
Corruption becomes something that it is legitimate for the Bank to pronounce upon, precisely because it becomes defined as an economic concept.
For example, the formula developed by Klitgaard Corruption may be represented as following a simple formula: C = M + D A. Corruption equals Monopoly
plus Discretion minus Accountability (Klitgaard 1998: 4) is widely quoted.
There are parallels with the arguments that Ben Fine (2001; see also his
contribution to this volume) has made with regard to the concept of social
capital: that economics has succeeded in colonising the other social sciences,
by applying its methods to non-market and non-economic relations and treating them as if they were all economic. In this way, the world is characterised
as more predictable and controllable than it actually is.
The world of anti-corruption

Beyond the dominance of economics, there are other processes at work.
Recent research by Steven Sampson into anti-corruption activity in the
Balkans, including that of TI, has revealed that the world of anti-corruption
is a complex one, involving a confluence of money and power with strongly
held moral and ethical beliefs (Sampson 2005). It is significant that the field
of anti-corruption has become increasingly well funded. This is effectively
illustrated by the professionalism and high fees charged at a series of prestigious anti-corruption conferences. TI itself administers more than 6 million
of donated funds. Accordingly, those with undoubtedly strong moral imperatives have also become caught up in a struggle for resources which Sampson
labels projectisation. In this, simple formulas and descriptions of corruption
become important for attracting grants and technical assistance. The idea
of the Corruption Fighters Toolkit (a product from TI) is attractive in its
simplicity; it is also eminently fundable. This is not to imply that all anticorruption activity is a cynical attempt to obtain funding. However, it does
account somewhat for the processes of simplification.
The world of anti-corruption described by Sampson is an important part
of the picture. Equally important are the ways in which its messages are
translated and adapted into different settings, from the Kenyan national
anti-corruption discourse, with its gluttonous politicians, to the crisis of
corruption in an Indian steel plant, or the young woman seeking health
care for her child. Corruption is a word with distinctly Western origins.
The ways in which it is used in different, especially non-Western, contexts
will reflect a complicated mixture of interpretation, moral judgement, and
opportunism. Reflecting on this picture requires keeping in mind that corruption is both a normative concept and a set of practices with effects that
can hurt people.
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Conclusion
Corruption, but more particularly the anti-corruption lobby that has expanded so dramatically in recent years, needs closer examination. Riding on a wave
of righteous virtue, anti-corruption talk comes from diverse quarters and, for
many, is unquestionable. Indeed, to do so is slightly heretical; corruption is
so obviously harmful that querying this is equivalent to excusing immorality.
As I have discussed, there are good reasons to have some sympathy with this
position. However, in lumping together all corruption under the same heading, the anti-corruption lobby underplays the very different meanings that
are attached to diverse transactions. More significantly, it also provides a neat
explanation for the ills of both countries and continents that leaves moral
culpability entirely with the supposedly corrupt. Ethnographic engagement
with practices that are seen as corrupt may be valuable. Equally, though, such
engagement needs to extend to questions of how, and why, anti-corruption
has risen to its current prominence.
Notes
1.
2.
CORIS is Transparency Internationals anti-corruption information service; ANCORR is the OECDs anti-corruption website.
The text of his speech includes the following: We never expected corruption to be vanquished overnight. We all implicitly recognised that
some would be carried over to the new era. We hoped that it would not
be rammed in our faces. But it has: evidently the practitioners now in
government have the arrogance, greed and perhaps a desperate sense of
panic to lead them to eat like gluttons. They may expect we shall not see,
or notice, or will forgive them a bit of gluttony because they profess to
like Oxfam lunches. But they can hardly expect us not to care when their
gluttony causes them to vomit all over our shoes; available at http://bbc.
co.uk, (retrieved 3 August 2004).
References
Brown, E. and J. Cloke (2004) Neoliberal reform, governance and corruption
in the South: assessing the international anti-corruption crusade, Antipode
36(2): 27294.
Evans, P. and J. Rauch (2004) Bureaucracy and Growth: A Cross National Analysis of the Effects of Weberian State Structures on Economic Growth, http://
sociology.berkeley.edu/faculty/evans/burperf.html (retrieved 6 December
2006).
Fine, B., C. Lapavitas, and J. Pincus (eds.) (2001) Development Policy in the 21st
Century, London: Routledge.
Galtung, F. (2005) Measuring the immeasurable: boundaries and functions of
(macro) corruption indices in F. Galtung and C. Sampford (eds.) Measuring
Corruption, London: Ashgate.
Gupta, A. (1995) Blurred boundaries: the discourse of corruption, the culture

of politics and the imagined state, American Ethnologist 22(2): 375402.
Hall, D. (1999) Privatisation, multinationals, and corruption, Development in
Practice 9(5): 53956.
Hawley, S. (2000) Exporting Corruption: Privatisation, Multinationals and Bribery,
The Corner House, Briefing No. 19, Dorset: The Corner House, available
at www.thecornerhouse.org.uk/item.shtml?x=51975 (retrieved 6 December
2006)
Hindess, B. (2004) International Anti-corruption as a Program of Normalization,
paper presented at the ISA Conference, Montreal, 1720 March.
Klitgaard, R. (1998) International cooperation against corruption, Finance
and Development, March, pp. 36, available at www.worldbank.org/fandd/
english/pdfs/0398/080398.pdf (retrieved 5 December 2006).
Leys, C. (1965) What is the problem about corruption?, Journal of Modern
African Studies 3(2): 21524.
Marquette, H. (2003) Corruption, Politics and Development: The Role of the World
Bank, Basingstoke: Palgrave Macmillan.
Miller, W. L., A. B. Grodeland, and T. Y. Koshechkina (2001) A Culture of
Corruption? Coping With Government in Post-Communist Europe, Bucharest:
Central European University Press.
Olivier de Sardan, J.-P. (1999) African corruption in the context of globalisation, in R. Fardon, W. van Binsbergen, and R. van Dijk (eds.) Modernity on
a Shoestring: Dimensions of Globalisation, Consumption and Development in
Africa and Beyond, Leiden and London: EIDOS.
Pardo, I. (ed.) (2004) Between Morality and the Law: Corruption, Anthropology and
Comparative Society, Aldershot: Ashgate.
Parry, J. (2000) The crisis of corruption and the idea of India a worms eye
view, in I. Pardo (ed.) Morals of Legitimacy: Between Agency and System,
Oxford: Berghahn Books.
Polzer, T. (2001) Corruption: deconstructing the World Bank discourse, Working Papers Number 0118, London: Development Studies Institute, LSE.
Sampson, S. (2005) Integrity warriors: global morality and the anticorruption movement in the Balkans, in C. Shore and D. Haller (eds.) Corruption:
Anthropological Perspectives, London: Pluto Press.
Szeftel, M. (1998) Misunderstanding African politics: corruption and the
governance agenda, Review of African Political Economy 76: 22140.
Transparency International (2005) Global Corruption Barometer, www.
transparency.org/news_room/latest_news/press_releases/
2005/09_12_2005_barometer_2005 (retrieved 6 December 2006).
Weber, M. (1952) The essentials of bureaucratic organization: an ideal type
construction in R. K. Merton, A. P. Gray, B. Hockey, and H. C. Selvin (eds.)
Reader in Bureaucracy, New York, NY: The Free Press.
About the author

Elizabeth Harrison is a Senior Lecturer in Anthropology at the University
of Sussex. Her research has been broadly within the anthropology of development, and has included work on the generation and use of key concepts
within development thinking, with a focus on gender and participation.
CHAPTER 26
Good governance: the itinerary of an idea

Thandika Mkandawire
The concept of good governance originated among African scholars in relation to
statesociety relations in Africa, expressing the concern that these be developmental, democratic, and socially inclusive. The term has since been taken up by the
international development business in particular the World Bank and used by
them as a new label for aid conditionality, in particular structural adjustment in
all its various manifestations.
The belief that lack of good governance might be the main hindrance to economic growth in Africa was firmly set in the minds of the international community following a World Bank report published in 1989 which categorically
declared: Underlying the litany of Africas development problems is a crisis
of governance. By governance is meant the exercise of power to manage a
nations affairs. Since then, the expression has attained the status of a mantra
in the development business. It is presented as the discovery of new truths
that must be hammered into the benighted minds of African policy makers.
The Africans themselves often consider it as one more item on the list of aid
conditionalities.
Rarely recognised, even by Africans, is that the inspiration came from
African scholars and that the current use of the concept diverges significantly
from their own original understanding. In the preparation of the 1989 report,
the World Bank did the then unusual thing of consulting African scholars
and commissioning them to prepare background papers, apparently at the
insistence of Africans within the Bank. Among the scholars were Claude Ake,
Nakhtar Diouf, and Ali Mazrui. Their papers focused on statesociety relations
in Africa as the main problem. In the introduction to a volume of background
papers to its Long-Term Perspective Study (LTPS), the World Bank acknowledged the contributions of the Africans:
Consideration of these aspects was very much a result of the collaborative approach adopted early in the preparation of this report. In the
process, it became clear that any assessment of the regions performance
in the past and directions for the future would have to be informed
by issues that cut across various disciplines to include history, culture,
politics, and the very ethos of Africa. By listening to the reports African
and other collaborators, it was evident that a report with a scope such as
that of the LTPS could no longer evade these issues. These collaborators
greatly strengthened that ability of the LTPS to address, if not authoritatively, at least in a well-informed manner, the deep-seated concerns
that ultimately shape and direct the course of economic growth and
development. The ten papers presented in this third volume of the LTPS
Background Papers contain some of those invaluable contributions.
The general understanding within African intellectual circles then was that
the main challenge of development was the establishment of statesociety
relations that are (a) developmental, in the sense that they allow the management of the economy in a manner that maximises economic growth, induces
structural change, and uses all available resources in a responsible and sustainable manner in highly competitive global conditions; (b) democratic and respectful of citizens rights; and (c) socially inclusive, providing all citizens with
a decent living and full participation in national affairs. Good governance
should therefore be judged by how well it sustains this triad. The urgency of
the democratic aspect of good governance was highlighted by the clamour for
democracy by social groups that had opposed misgovernment and the imposition of policies by unelected institutions national or foreign.
Downsized states and instability

This widespread view in African intellectual circles followed the concern with
the failure of authoritarian regimes in Africa to ensure both human rights
and development. It was informed by the belief that the downsizing of the
state insisted upon by donors addressed only the short-term issues of stabilisation, while undermining long-term developmental capacities. And, given the
potential for ethnic conflicts and the growing social blindness of economic
policy, there was also the view that poor statesociety relations only exacerbated political instability. Good governance would therefore have to pay
special attention to issues of equity and inclusion.
The initial response to the 1989 report from staff of the International
Monetary Fund (IMF) and the World Bank, especially the economists, was
at best lukewarm for a number of reasons. First, it was felt that the focus on
politics was distracting attention from the task of getting the macroeconomic fundamentals right. Indeed, a report on Africa produced five years
later (World Bank 2000) stridently argued that orthodox adjustment policies
work, and that the poor performance of African economies was due to their
failure to implement agreed-upon adjustment policies. There was hardly any
mention of governance. Second, the new focus did not leave much room for
the World Bank. Its insistence on the importance of local initiatives, political
accountability to the citizens, and the need to reconcile African traditions
and institutions with modern ones were not exactly the types of thing the
World Bank could relate to in a quantifiable and operational manner.
GOOD GOVERNANCE
267
A few years later, however, with African economies showing signs of recovery, there was an orchestrated campaign by the Washington-based financial
institutions to highlight the turnaround in policy adoption in Africa. These
institutions attributed the turnaround to their own persistence with their own
policies, and to the emergence of African leaders with a new awareness of the
demands of globalisation. A major World Bank report on Africa, published in
2000, stated that many countries have made major gains in macroeconomic
stabilization, particularly since 1994; and that there had been a turnaround
because of on-going structural adjustment throughout the region which has
opened markets and has had a major impact on productivity, exports, and
investment. There had indeed been a sea-change in the African policy landscape and, as a result, arguments that African countries had refused or been
slow to adjust, or that enough time had not passed, became less credible.
However, as had happened many times before, these reforms did not lead
to the expected outcomes, and celebration of recovery proved premature.
Considerable evidence including some from within the Bank itself suggested
that adoption of the prescribed policies had not worked. Much of the recovery
could be explained by so-called exogenous factors weather, terms of trade,
plain good luck, and end of conflicts rather than adjustment.
Thus came the question: Why is it that even when the recommended policies were implemented (often under the aegis of and conditionalities from the
International Monetary Fund and the World Bank), the results hoped for did
not materialise? The answer was institutional weakness or bad governance.
The new proponents of good governance argued that the policies themselves
were sound, and that good governance must also mean implementing orthodox
economic policy. Good governance thus simply became one more instrument
for ensuring the implementation of adjustment programmes. Because macroeconomic policies were sacrosanct, it was important that the democratic institutions that might come with good governance were not used to undermine
economic policy. This was ensured by introducing institutional reforms that
effectively compromised the authority of elected bodies through the insulation
of policy technocrats and the creation of autonomous authorities.
As a consequence, the current use of governance is still very much business
as usual. Thus although the IMF took on good governance, it also insisted that
the many reforms (fiscal, financial, etc.) in which it had been involved were indeed core components of good governance. Many other donors have followed
suit, simply re-labelling various divisions from one thing to governance.
The approach to good governance and economic policy that finally became dominant differed radically from that of the African contributors
who were strongly opposed to adjustment policies because not only were
they deflationary and thus not developmental, but also because they were
externally imposed, weakened the state, and undermined many of the postcolonial social contracts. For the African contributors, good governance
related to the larger issues of statesociety relations and not just to the technocratic transparency-accountability mode that it eventually assumed in the
international financial institutions. The actual use of the concept of good

governance sidestepped the central concerns of the Africans and rendered
the notion purely administrative. And all too often, it looked like a fallback
position for failed policies.
References
World Bank (1989) Sub-Saharan Africa: From Crisis to Sustainable Growth: A
Long-Term Perspective Study, Washington, DC: World Bank.
World Bank (1994) Adjustment in Africa: Reforms, Results and the Road Ahead,
World Bank (2000) Can Africa Claim the 21st Century?, Washington, DC: World
Bank.
About the author

Thandika Mkandawire is Professor of African Politics at the LSE and was previously Director of UNRISD and Executive Director of CODESRIA.
CHAPTER 27
The discordant voices of security

Robin Luckham
This chapter examines the links between development and security, situating
these concepts within their philosophical and political contexts, particularly in
relation to contemporary wars, including the war on terror, and the so-called
securitisation of development. The security of states does not necessarily ensure
the security of their citizens, and the very concept of security is both complex and
contested. The author provides a succinct summary of various interpretations of
security of states, collectivities, and individuals showing how each is doubleedged or ambivalent.
In todays world, we understand that security is a global need and that
countries must work together to achieve it. Security and development
are linked.
(DFID: Fighting Poverty to Build a Safer World. A Strategy for Security
and Development 2005)
[T]he indivisibility of security, economic development and human
freedom.
(United Nations: A More Secure World, 2004)
Theres only one issue here. Its security. People are sick of invasions and
rebels and war.
(Deputy Mayor of Goma, Democratic Republic of Congo, during the
countrys presidential election, October 2006)
While the link between security and development is routinely made in official reports and academic papers and by ordinary people it is a recent and
controversial addition to development discourse. The 1980 Brandt Report on
International Development (Independent Commission on International Development Issues 1980) and the 1982 Palme Report on Disarmament and Security
(Independent Commission on Disarmament and Security Issues 1982) connected the two issues in the early 1980s. Yet development agencies still refused
to engage with security questions, which were seen as too political or beyond
their mandate. They only took an interest when the violence already disfiguring much of the developing world during the Cold War was re-presented as a
development problem after the latter ended.
The global shifts which brought security into development discourse are
complex, and will not be discussed in detail here. They have given birth to
the perception that development is being securitised and subordinated to the
security priorities of the major global players, including the war on terror.
Even more than development, security is a contested concept, with multiple layers of history and meaning, containing dark corners in which demons
hide. Yet most people who talk security do so as if they know what security
is, and for the most part they treat it as unproblematic. Security is used as
an abstract noun, describing a desirable existential state. But what security?
Whose security? How achieved? And from what? There are no easy answers to
any of these questions.
Insecurity is seemingly easier to define. Fear and violence are all around us.
They are tangible realities for enormous numbers of people, and (to an extent)
can be measured. Commonsense notions of security indeed characterise it in
terms of personal safety, or freedom from fear in the words of the 2004 UN
Report cited above. The links between freedom from fear and other existential risks, like freedom from want are at the core of the concept of human
security. They resonate within a wider family of meanings, such as social
security, food security, and, in the context of capitalist property relations,
security of tenure.
However, even in these relatively benign senses security cannot be used
without a safety warning. From the time of Thomas Hobbes, security has been
embedded in the theory and practice of modern statehood. It has been a discourse of the powerful, even more than of the insecure and weak. Writing in
1651 soon after the English Civil War, Hobbes argued that the peoples safety
was the business of the great Leviathan called a Commonwealth or State. For
without a common power to keep them all in awe, they are in that condition
which is called war; and such a war as is of every man against every man.
There was an implied social contract, by which the state delivered peace
and security, and citizens consented to its sovereign authority. This contract
was backed the states right to use force, for covenants without the sword,
are but words and of no strength to secure a man at all. State sovereignty
was absolute, and loyalty unconditional, for to resist the sword of the Commonwealth no man hath liberty; because such liberty takes away from the
sovereign the means of protecting us, and is therefore destructive of the very
essence of government. Even so, there was an important proviso, namely that
the obligation of subjects to the sovereign is understood to last as long, and
no longer than, the power lasteth by which he is able to protect them. Weak
rulers, according to Hobbes, were invariably deprived of the right to govern by
external conquest or internal rebellion.
While Hobbes himself was primarily concerned with the nature of political
obligation, and used the word security sparingly, his thinking still permeates
security analysis in the twenty-first century. Security discourse continues to
frame politics and governance in the language of threat, risk, insecurity, and
violence Hobbes war of All Against All. In contrast to development, whose
THE DISCORDANT VOICES OF SECURITY
271
language is firmly rooted in the grand narrative of the Enlightenment, the

discourse of security arises from the double-edged and ambivalent nature of
development, including its roots in a destructive capitalism which demolishes
livelihoods, communities, and even states indirectly through the structural
violence of poverty, and directly through war and political violence.
On the one hand there are benign, ameliorative discourses of entitlement,
associated with the states responsibility to protect: social security, human
security, etc. On the other, there are more conservative threat-based discourses, mistrustful of change, fearful of others, and protective of established interests: national security, regime security, security from terror, etc. Matters
are complicated by the fact that such threat-based discourses are often dressed
up in the language of global enlightenment. International security and collective security are widely (and rightly) seen as desirable in a conflict-torn
and insecure world. But at the same time, they tend to be structured around
the interests of the powerful, who are able to define who and what are seen as
threats to the global order.
For all the talk about the corrosive impacts of globalisation, that global
order still to a considerable extent revolves around the world of Westphalian
nation states that began to be constructed from around the time Hobbes wrote
Leviathan. States are as much ideological constructions as they are configurations of power and resources. Security discourses have been central to how
the idea of the modern state was constructed.
First, by endorsing force as the states distinctive prerogative its monopoly
of legitimate violence, as Max Weber was later to phrase it in the early twentieth century.
Second, through the claim that the principal responsibility for protecting
citizens and ensuring their security resides with states and the rulers of states,
security is seen as a public good and is thus bound up with the distinction
between public and private, state and market, which has been a distinctive
feature of modern, especially capitalist, states.
Third, by elevating raison dtat as the defining principle of governance,
meaning that rulers who deploy the coercive powers of the state for the common good cannot be held accountable by the same moral standards as their
citizens (an idea increasingly challenged in democratic political systems, but
still adhered to in practice by political elites).
Fourth, through the contrast drawn between peace and security within wellordered states and the endemic international insecurity which remains the hallmark of realist accounts of international relations. This is the foundation of
the distinction between internal security, ensured through policing and justice
systems, and the external security provided by the military and intelligence
apparatuses of the modern state. As Hobbes graphically described it:
But though there had never been any time wherein particular men were
in a condition of war one against another, yet in all times kings and
persons of sovereign authority, because of their independency, are in
continual jealousies, and in the state and posture of gladiators, having

their weapons pointing, and their eyes fixed on one another; that is,
their forts, garrisons, and guns upon the frontiers of their kingdoms, and
continual spies upon their neighbours, which is a posture of war.
It is, however, precisely such a view of national and international security which is now being challenged. States and indeed the entire state-system
are called in question by globalisation and by new security challenges, which
render realist paradigms of state security ever more incoherent. States also
face unprecedented challenges to their legitimacy and capacity to govern
above all, but not only, in failing or collapsed states. Even major powers
are not immune, despite a Revolution in Military Affairs, which supposedly
endowed them with flexible, precise, and deadly instruments of coercion, optimising use of new information technologies. Their capacity to resolve global
security issues by overwhelming displays of military force has been mercilessly
exposed in Iraq, Afghanistan, and other imperial wars. At the same time, new
visions of human security, human development, and a rights-based international order have sprung up to dispute the entire moral basis of state sovereignty, security, and international relations.
Linked to this is the increasing privatisation of security and security provision at a number of levels: the growth of global markets in military and security goods and services; the subcontracting of core security functions, even by
global military powers like the USA; global firms which subcontract the protection of their installations to state security bodies as well as private military
companies; the growth of private security firms and gated communities offering protection to the middle classes; conflict resources driving civil wars; the
emergence of military/security entrepreneurs for whom insecurity has become
a source of employment and profit; and the erosion of weak states and their
national boundaries by flows of weapons, combatants, and conflict resources
across national boundaries. The factors driving these changes are complex and
multi-layered. What is crucial is how they create new articulations between
states and markets, and weaken the traditional distinctions between the public and the private spheres, and between internal and external security, on
which state practice and security discourse in modern states has been based.
Even so, it would be premature to celebrate the decline of the state, or the
irrelevance of military force, or the demise of realist paradigms of international security. While contested as never before, all three remain entrenched
in global politics, in the security practices of powerful states, and in international law. Even those who hold that states have a sovereign responsibility
to protect citizens of their own and other states from violence, rights abuses,
and acute insecurity, presuppose the continuing relevance of a world of sovereign states.
Indeed critics of this view argue, to the contrary, that the discourse and
practice of security have increasingly tended to securitise development, forging new regimes of truth around the securitydevelopment nexus. Having
273
been banished by neo-liberal development paradigms from the development

realm, the state is being smuggled back in under the security and development rubric.
Securitys discursive energy still partly derives from its association with state
and military power, and it is reinforced by the logic of raison dtat, which has
been enjoying a resurgence, for instance in the current erosion of civil liberties
in Western states. When development problems, like extreme poverty, population displacement, or bad governance, are labelled as security threats, they
are assigned crisis status, seeming to require emergency action which may
extend to the humanitarian use of force by the international community, or
by powerful states claiming to act on its behalf.
The concept of securitisation has been popularised to describe this process of labelling (see, for instance, Duffield 2001). It implies first that hard
military and state security concerns tend to prevail over the soft concerns of
human and collective security. And second that security discourse tends to
colonise and appropriate other discourses, including those of development,
governance, democracy, and humanitarian and human rights, which are considered to be defining attributes of global liberal governance.
There is much in the present international context that might seem to justify such an analysis. Yet it is somewhat one-dimensional. Security not only has
multiple definitions, but these have become the epicentre of protracted contests over meaning, in turn rooted in global, regional, and national struggles
for power, wealth, and resources. These discursive struggles are by no means
always settled in favour of the dominant realist security paradigms. Indeed
they have become more intense, precisely because of the crisis of confidence
in existing global, regional, and national security arrangements. This crisis of
confidence has in turn inspired a number of alternative conceptualisations
of security, challenging state-centred paradigms, and beginning to re-centre
security around the safety and welfare of citizens and human beings.
These struggles over the meaning of security are reflected in the multiplicity of interlinked yet discordant security discourses, sketched out below. Each
of the conceptualisations has two faces, the reverse side of which is spelt out
in italics.
International security: the outer gaze of the modern state
States exist in an international system of states; hence national security

and international security are mutually dependent.
The architecture of the international system, including the UN, is still
largely built on the building block of the sovereign state.
Clubs are trumps: we still inhabit a Hobbesian world of force and
threats to use force.
Insecurity and unregulated violence are endemic in inter-state
relations.
Security discourse remains dominated by the language of fear and

threats.
Realist and neo-realist theories of security remain the dominant way of
thinking about international relations.
Attempts to ensure international security are constantly undercut by security dilemmas i.e. the pursuit of security by accumulating military power.
This encourages military competition and is a source of insecurity in its own
right.
The international state system in practice prioritises the security of the most
powerful states.
Purely state-centred security is increasingly inadequate in a globalised world
of complex interdependence.
It is also weakened by the privatisation of security provision and the emergence of global markets in security goods and services.
New threats and insecurities, such as terrorism or resource insecurities, traverse national boundaries, and are increasingly difficult to manage within a
state-centred paradigm.
States are increasingly constrained by international law, as well as by international and regional institutions.
National security: the inner gaze of the modern state
National security remains rooted in Weberian conceptions of the state:

territorial control; politics as power backed up by violence; the states
monopoly of the legitimate use of physical force.
States (even democratic ones) are in many respects national security
states, with their authority buttressed by coercion and surveillance.
State and nation building remain priorities, especially in the developing world.
Political order and stability tend to take precedence over social transformation, rights, and justice.
Neo-mercantilism and national security go hand in hand: national
security and national development are in synergy.
National security tends to be structured around changing economic
models, including (latterly) neo-liberalism.
Military power by itself is an insecure foundation for state power: despotic
power is less sustainable than infrastructural power (i.e. state capacity to
provide public goods and manage development).
States themselves may be called into question by violent conflict or state
fragility.
State security institutions can themselves become agents of insecurity.
State building is insufficient when not founded upon legitimate public
authority and an active political and civil society.
State security and development priorities may conflict.
275
States may be undermined by economic vulnerabilities (including dependence

on donors) as well as military insecurity.
Both national security and development policy tend to be subverted by
market forces and networks of power beyond the state, e.g. flows of weapons
and conflict resources.
Security as hegemonic project
Hegemonic security is characteristic of a world of unequal states, and is

also linked to unequal concentrations of corporate wealth and power.
Hegemony reflects global shifts, such as the transition from Cold War
bipolarity to unipolar or multipolar order.
Military power by itself is not enough to ensure dominance, hence it
tends to be reinforced by other hegemonic practices, including soft
(ideological, media, economic etc.) power.
Soft power tends to deploy international security, humanitarianism,
human rights, and democratic governance as legitimising discourses.
Hard and soft power are not necessarily mutually reinforcing: they may also
conflict (e.g. the role of Western media in criticising the US-led intervention
in Iraq).
Collisions tend to emerge between new forms of global hegemony and new
forms of resistance, as in the war on terror.
Weapons of the weak, including terrorism and other forms of asymmetric
conflict, create new security challenges. These are not easily contained by the
conventional instruments of military power.
The spread of democracy, human rights, and international humanitarianism
sometimes deployed as instruments of soft power also open spaces in
which to challenge security-dominated conceptions of the state and of international relations.
Common or collective security: a global public good
Ideas of common security are linked to global development and to

NorthSouth collaboration (as in the recent UN Reports, A More Secure
World and In Larger Freedom).
They imply collective action based on shared goals, rather than zerosum competition.
They also link the instruments of security policy to those of economic
policy (trade, development co-operation, etc.).
Common security is associated with other global public goods: international development, environmental sustainability, tackling health
pandemics like HIV and AIDS, etc.
It is also reinforced by the growth of international law and institutions
(UN, EU, regional bodies).
The media have fostered conceptions of a global village in which

human suffering and insecurity are of concern to all.
Common security is framed in a discourse of universal human rights
and entitlements, as are the discourses of democracy and international
humanitarianism.
It gives legitimacy to new forms of international co-operation, including
conflict prevention, peace building, and post-conflict reconstruction.
Insecurity and violent conflict are also being globalised, being sustained by
markets in conflict goods and resources and by new actors (e.g. terrorists).
Common security remains problematic in a world where states lack sustained
commitment to it.
Unilateralism has tended to undermine multilateralism in a global order
shaped by the security concerns of a single superpower.
Collective-action problems are inherent and very difficult to overcome: it is
hard in practice to guarantee international commitment to common goals,
still more to implement them.
Common security is undermined by powerful economic and political forces
sustaining violent conflicts and insecurity.
Global institutions and collective action are constrained by huge global
inequalities in wealth, power, and military capabilities.
In such a global context, it may be argued that common security and global
liberal governance reinforce new forms of global hegemony.
Security as the states sovereign responsibility to protect: a national

public good
Security cannot be provided by citizens acting on their own, or purchasing it on the market.
It is grounded in the Hobbesian social contract between state and
citizen, which implies the states sovereign responsibility to protect.
Legitimate public authority is of the essence, thus implicitly connecting security and democracy.
Security is embedded in public order, the rule of law, and a wellpoliced state.
Security is thus also an aspect of governance: in principle the same
principles of public accountability apply to security institutions as to
other state institutions.
If states fail to exercise their sovereign responsibility to protect, the
international community can and should step in as provider of security to the poor, marginalised, and oppressed.
In practice, security tends to be a very imperfect public good: it is topdown,
unequally distributed, and harnessed to the interests of elites.
277
It is also undermined by the privatisation of violence, including new networks

of power and profit working around the state, together with the spread of
conflicts across national boundaries.
The failure of weak or repressive states to exercise their sovereign responsibility to protect opens the door to potentially problematic humanitarian
military interventions.
Security as risk-management: new topologies of threat and risk
Security is increasingly redefined in terms of widened conceptions of

risk: economic, resource, environmental, health-related, etc., and the
actual or assumed inter-connections among them.
Such risks tend to be perceived as existential threats to human survival,
calling for collective action by the international community.
These expanded conceptions of security link to conceptions of human
security (see below).
Securitisation the discursive interpretation of such risks as security threats,
rather than shared global problems requiring collective action tends to be
problematic.
This entails the risk that anti-terrorism agendas may distort development
goals.
Neo-Malthusianism rides again: security is re-framed in terms of competition
for resources, and is seen as source of new anarchy.
Blowback: insecurities in the developing South are reframed as threats to the
developed North through resource scarcities, refugees, disease pandemics,
and terrorism.
Human security: as an entitlement of citizens; and of human beings
Human security posits a fundamental challenge to state-centric views

of security, as well as those prioritising the threat or use of force.
It prioritises protection of individuals from crime and violence, including state violence.
It is conceptually rooted in ideas of democratic citizenship and human
rights.
It implies the states sovereign responsibility to protect citizens from
insecurity, violence, and poverty.
Security from day-to-day violence interconnects with security from
famine, disease, displacement, and the other risks suffered by individuals and communities.
Human security implies action to redress insecurities associated with
gender and other marginalised identities.
It implies collective action by citizens, whether to put pressure on the
state, or to organise to provide their own security.
There are potential conflicts between citizen and human security (e.g. of
refugees and other non-citizens).
Collective action to improve human security tends to be constrained and
distorted by social, political, and economic inequalities.
Ideas about universal and citizens entitlements often become problematic in
identity conflicts, where citizens may be pitted against each other, interpreting group differences as threats.
It is enormously difficult to ensure accountability for failure to provide
human security when states fail or are absent, and individuals suffer exploitation and violence at the hands of non-state armed and criminal groups.
Security and development as a new donor discourse
Security and development has emerged as a new orthodoxy among

donors and international NGOs, linked to increasingly interventionist promotion of economic and political liberalisation and of good
governance.
New donor-policy instrumentalities like security sector reform and
(in post-conflict states) disarmament, demobilisation, and reintegration (DDR) are used to reconstruct military and security institutions
in order to deliver security not insecurity.
Democratic oversight and rule of law become benchmarks for the
governance of security.
Security for the poor is prioritised and linked to public safety, policing,
and access to justice.
The international responsibility to protect citizens of failing and
repressive states is used to legitimise humanitarian intervention, including the use of force.
Peace building and post-conflict reconstruction have entered the
vocabulary of aid agencies and NGOs, and have become new sites of
donor intervention.
However, deep problems of collective action arise where donors and local
stakeholders lack shared goals, interests, and procedures.
Donor leverage is often much less than it appears in the complex political
and economic landscape of post-conflict states.
Potentially perverse consequences arise from humanitarian aid and intervention, sometimes including the perpetuation of conflicts.
Security-sector reform, DDR, etc. tend to challenge elite control of the state
and hence tend to be resisted, or implemented half-heartedly, or co-opted by
elites.
Post-conflict reconstruction takes place in a highly contested political arena
in which donor goals may be mutually inconsistent, as well as conflicting
with local interests.
279
The presence of powerful market and political forces (e.g. natural-resource

exploitation, global and regional markets in conflict-related goods, privatised
violence) often subverts peace building.
There is an ever-present risk that humanitarian and development agendas
may be co-opted to serve the security goals and economic interests of powerful
states and global corporations.
Development, human rights, humanitarianism, democracy, etc. tend to
be discursively represented as ideological building blocks for a hegemonic
conception of global liberal governance.
Conclusion
This brief summary of the multiple meanings of security prompts three central observations. First, security by itself is too general a word to have much
meaning. It is usually linked to qualifying terms locating it in particular discursive practices: international security, national security, human security,
and so on. Second, although it contains an implicit claim that security is a
value and thus normatively desirable, one should always ask whose security
and from whom or what? This tends to be answered in different ways in varying security discourses. Security is not and cannot be neutral. It is both public
good and private asset. It follows, third, that it is always contested, always
disputed, and shot through with contradictions.
References
DFID (2005) Fighting Poverty to Build a Safer World: A Strategy for Security and
Development, London: Department for International Development.
Duffield, Mark (2001) Global Governance and the New Wars: The Merging of
Development and Security, London: Zed Books.
Independent Commission on International Development Issues (1980) North
South: A Programme for Survival (The Brandt Report), London: Pan Books.
Independent Commission on Disarmament and Security Issues (1982)
Common Security: A Blueprint for Survival (The Palme Report), New York,
NY: Simon & Schuster.
United Nations (2004) A More Secure World: Our Shared Responsibility, Report
of the Secretary-Generals High-Level Panel on Threats, Challenges and
Change (A59/565), presented at the UN General Assembly, New York, 2
December.
About the author

Robin Luckham is a Research Associate of the Institute of Development
Studies (IDS) at the University of Sussex. A political sociologist, he has
written extensively on militarism and democracy in sub-Saharan Africa.
CHAPTER 28
Fragile states
Eghosa E. Osaghae
Since the 1990s, states that lack the capacity to discharge their normal functions
and drive forward development have been referred to as fragile states. This chapter focuses on Africa, which not only has the largest concentration of prototypical fragile states, but has been the focus of attention for scholars, international
development agencies, and practitioners. The author reviews competing analyses
of the post-colonial African state and concludes that its characteristics of weak institutions, poverty, social inequalities, corruption, civil strife, armed conflicts, and
civil war are not original conditions, but are rooted in specific historical contexts.
It is essential to understand both the external and internal factors of fragility if
such states are to get the assistance and empowerment that they need not only
for the benefit of their impoverished citizens, but also for the sake of global peace,
prosperity, and security. Ultimately, it is the citizens of the countries concerned
who are responsible for determining when states are no longer fragile not benevolent donors and the international community, whose prime motivation for
interventions supposedly to strengthen the state is to ensure that fragile states find
their rightful places in the hegemonic global order.
The development process and state fragility

The image of the state as a powerful and overarching entity that effectively
controls a geo-political domain has influenced the key agency roles assigned to
it in development discourse (Evans et al. 1985). This is true whether the state
is conceived as a centralised organisational structure, a sovereign whose decisions are binding, an instrument of coercion and domination, or an engine
of growth and development. When one thinks of the state as the mainstay of
political order (with economic and social order in tow), the agency roles are
justifiable. The problem is that the state has not always been able to play the
roles expected of it. It is precisely for this reason that the Third World state has
attracted a great deal of attention in development discourses.
This chapter discusses the meaning and historicity of the fragile state, a
concept that has gained currency in development discourses since the 1990s,
characterised as distressed states that generally lack the capacity to discharge
the functions traditionally associated with them and to drive forward development. While the image of fragility is historically associated with the Third
World in general, the focus here is mainly on Africa. The continent not only
has the largest concentration of prototypical fragile states but has also received the greatest attention of scholars, international development agencies,
and practitioners. This is partly because, as Laasko and Olukoshi (1997:8) put
it, it is perhaps in Africa, more than in other parts of the world, that the crisis
of the nation-state project has been most obvious and overwhelming (see also
Davidson 1992; Zartman 1995).
The concept of fragile states

The search for how to characterise and possibly remedy problematic and
troublesome states has provided the context for the evolution of the concept
of fragile states, which has been popularised by the World Bank and the international development community since the early 1990s.1 The dominance
of World Bank and donor perspectives of state fragility have not always tallied with local perspectives, making it necessary to adopt a more discerning
and critical (some would add balanced) approach to the interrogation of fragile states. In general, the concept of fragile states may be regarded as an allencompassing summation of the pathologies of problematic states that have
over the years been variously described as weak, soft, overdeveloped, illegitimate,
poor, irrelevant, de-rooted, rogue, collapsed, and failed, each description attempting to capture one or a few problematic elements. As with other development
concepts, fragility and its associated descriptive terms are relative. In this case,
they suggest deviance and aberration from the dominant and supposedly universal (but Western) paradigm of the state, which played a key role in the
development of capitalism.
The relativity of state fragility makes it an empirical rather than normative
construct (Jackson and Rosberg 1982). Conventional wisdom defines the state
in terms of four core attributes: defined territory, population, government,
and recognition by other states. The first three constitute the empirical referents, and the fourth constitutes the juridical. A state is expected to be effective
on all counts: establish strong and effective institutions; control and defend
its territory; have a stable, loyal, and cohesive population; exercise sovereign
and legitimate power within its territory and possess the resources to ensure
the well-being of its citizens; and, finally, enjoy the recognition and respect
of other states as a credible member of the global community. The changing
realities and paradigm shifts of the post-Cold War period have seen further
elaboration and extension of these attributes to include good governance variables (strong and effective political institutions and civil society, democracy,
rule of law, accountability, transparency, conflict management) and the material correlates of just and equitable resource management, poverty alleviation,
and economic growth and development.
A fragile state, in contrast, may be defined as a distressed state that lacks
the elements necessary to function effectively. Specifically, fragile states are
characterised by one or more of the following:
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283
Weak, ineffective, and unstable political institutions and bad governance, conducive to loss of state autonomy, informalisation, privatisation of state, personal and exclusionary rule, neo-patrimonialism, and
prebendal politics.
Inability to exercise effective jurisdiction over its territory, leading to
the recent concept of ungoverned territories.
Legitimacy crisis, occasioned by problematic national cohesion, contested citizenship, violent contestation for state power, perennial challenges to the validity and viability of the state, and massive loss and
exit of citizens through internal displacement, refugee flows, separatist
agitation, civil war and the like.
Unstable and divided population, suffering from a torn social fabric, minimum social control, and pervasive strife that encourage exit
from rather than loyalty to the state. Underdeveloped institutions
of conflict management and resolution, including credible judicial
structures, which pave the way for recourse to conflict-ridden, violent, non-systemic and extra-constitutional ways in which to articulate grievances and seek redress.
Pervasive corruption, poverty, and low levels of economic growth and
development, leading to lack of fiscal capacity to discharge basic functions of statehood, including, most importantly, obligations to citizens
such as protection from diseases like AIDS and guarantees of overall
human security.2
With these characteristics, especially the stress of mal-governance and poverty

as well as violent contestations of citizenship and statehood which typically
produce civil war, armed conflict, population displacement, and refugee and
humanitarian problems fragile states muddle through at best, and constantly face the threat of collapse, break-up, or disintegration. As Jackson and
Rosberg (1982) found from their study, extremely fragile states like Somalia
or Sierra Leone collapsed at different points in time, but remained states
only in name and because of their extant recognition by international law.
Chabal and Daloz (1999) suggest that political disorder may be less a consequence of state fragility than a political instrument employed by the powerholding elite. So, rather than a pathology or aberration, disorder (in the form
of weak institutions, informalisation of political processes, legitimacy crisis,
civil strife, armed conflict) may very well be a deliberate strategy of politics in
fragile states. (See also Bayart et al. 1999.)
The instability of fragile states and the stress that they impose on neighbouring states and the international community through refugee flows and
proliferation of small arms make them a threat to global peace, security, and
prosperity (Stiglitz 2003; Chua 2004). Two further factors reinforce the threat
posed by fragile states. The first is that with the heightening of global economic inequalities, the number of states judged by the World Bank to be
fragile has almost doubled: from 14 to 26 between 2000 and 2006 (World
Bank 2006), of which 14 are in sub-Saharan Africa. The other factor is neglect
of the plight of poor states by the international community. The failure of the
United Nations and other key global actors to respond promptly to civil wars
in Rwanda, Liberia, Chad, Cte dIvoire, Somalia, and Sudan (Darfur) contributed in large measure to state collapse and fragility-inducing stress inflicted
on neighbouring countries. Direct foreign investment and flows to distressed
states, especially in Africa, have remained very low, ostensibly because of the
high risk of doing business there. While these reasons can be rationalised in
terms of the competitiveness of the global economy, the point remains that
global peace and security calls for greater will and commitment on the part of
the international development community.
The historicity of fragile states

Although the concept of fragile states gained currency in the 1990s, it represents some kind of old wine in a new bottle. The phenomenon that it describes
has a history that is almost as old as the contemporary or post-colonial
state in the Third World (Osagahae 1999a; 2005). Two periods of engagement
can be distinguished. The first began at independence and spanned the period
of the Cold War. In this period, state structural disabilities (weak and fragile institutions, authoritarian tendencies, weak economies, contested nationhood,
armed conflicts, separatist agitations, over-dependence on foreign aid, susceptibility to external shocks) were recognised, but the circumstances of the Cold
War assured such states a great deal of understanding and support, even if
they left debilitating foreign debt in their wake. The second period of engagement covers the years from the end of the Cold War at the end of the 1980s
to the present. Its hallmark was a deterioration of the material conditions of
most developing countries and the capacities of their states to promote and
consolidate development, leaving states more vulnerable to external shocks
and interventions. This was accompanied by the increased tendency to treat
the state as an independent or autonomous system and deny the externalities
of its problems (Herbst 1996/1997). The triumph of (neo-)liberalism saw the
emergence of a new more hegemonic and interventionist global order, whose
major pastime became whipping deviant states into line.
Gone are the indulgences of the Cold War era. Here instead is a regime that
seeks to reproduce the liberal state through political, economic, and social
reforms imposed as conditionalities and benchmarks by the World Bank, IMF,
and the international development community, and at times through military
intervention. This hegemonic character of global politics, which has elicited
counter-revolutionary mobilisation on a global scale, including terrorism, also
makes global peace and security a key objective of interventions. These elements have led to a rethinking of the state that is not shy of considering dissolution of troublesome states. Kothari (1988) captures this new thinking
in a thesis of dispensability, which he believes informs the new agenda for
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285
a world order in which the fruits of progress can be held secure for certain
privileged regions of the world. The thesis is as follows:
Certain states, communities and regions...have become an unacceptable
burden on the world economy. These segments are incapable and unwilling to mend their ways. They subsist as parasites on the rest of the
world. To allow their continued existence as parasites...would gravely
endanger the health and future of the world economy. They must be
dispensed with, and left to fend for themselves. (Kothari 1988: 45)
Kothari may have stated the thesis in rather strong terms, but it does reflect the realities of engagement with fragile states in the post-Cold War era.
The pressure is on states to salvage themselves, discharge their obligations
to donors and benefactors, and meet set targets such as the Millennium Development Goals (MDGs) under the guidance of the World Bank, IMF, and
other champions of neo-liberalism or be left out of the active and competitive
global system. Notions of self-inflicted marginalisation, Afro-pessimism, and
basket cases, which African states have worked hard to dispel, tell part of the
story as do the closures of entry to affluent societies to economic migrants
from poor and conflict-torn countries, which make it incumbent on the states
to get their acts together. Unlike the Cold War period, scholars, development
practitioners, and donors no longer seem willing to help fragile states to survive at all costs. This raises the stakes.
Let us now turn to examine the hows and whys of fragility. For this purpose
we must move beyond the mere empirical characterisations and typologies
that have dominated World Bank/IMF perspectives to analyse the bases of fragility. While it is true that fragile states are low-income and poorly governed,
with a high prevalence of corruption, poverty, food insecurity, malnutrition,
and disease, and prone to violent conflict and war, these attributes do not in
and of themselves explain why they are fragile. In other words, state fragility
is a dependent variable and not an independent or original condition. Migdal
et al. (1994: 2) identify society and the socio-economic determinants of politics as key in this regard, because societies affect states as much as, or perhaps
more than, states affect societies. To these we shall add external forces that
have historically shaped state and social formations in the Third World.
Exploring the bases of fragility

The deviant, non-conventional, and unique characters of state formations
in the Third World have long been recognised. Major signposts include the
initial discovery of non-Western state systems, which necessitated the formulation of new tools and concepts of analysis. It has been argued that,
because of its epochal effects, colonialism is the most important explanatory
factor for the unique trajectory of state growth in the Third World and the
subsequent problems, the bottom line being that the state model was imported wholesale and imposed on erstwhile colonies (Ekeh 1975, 1983; Alavi
1979; Young 1994). The failure to properly graft or adapt the migrated state
structures to the circumstances of the colony and post-colony is said to have
created a disjunctive duality between state and society that left the state suspended above society like a balloon (Hyden 1980).
This was the context within which fragile states evolved. The first set of
problems concerned the nature of the colonial state itself. It remained aloof
from indigenous or native society and enforced its will through violence and
repression, placing emphasis on the rudiments of law and order that were
sufficient to ensure economic exploitation and uphold the standards of
European settlers (Young 1994). A second set of problems arose from the
nature of relations between the state and (native) society, as well as the anomalies of the migration of state structures from Europe. As many scholars have
argued, it became impossible for the natives to appropriate the state, which
they perceived as alien and serving the interests of the coloniser and not those
of the colonised (Ake 1985; Davidson 1992; Osaghae 1989, 1999a). This gave
rise to the endemic legitimacy crisis that marooned the colonial state and its
post-colonial successor.
The overall relevance of the state for the citizens was always a contested
issue (Ihonvbere 1994). This encouraged exit and opposition by alienated,
marginalised, and excluded segments, and the development of shadow state
structures, mainly communal self-help organisations which emerged to fill
the void left by state failure (Osaghae 1999b). For Alavi (1979), the fact that
the social formations of the colony upon which migrated state structures were
imposed were at a lower level of development than in Metropolitan Europe
meant that the state was overdeveloped. Overdevelopment gave the state
the appearance of powerfulness, but its omnipresence did not translate into
omnipotence (Chazan 1988). Young (1994) attributes the crisis of national
cohesion, one of the defining elements of state fragility, to the fact that the
imported state lacked the nationhood that had defined and underpinned its
growth in Europe. This was why nationalism, the avowed ideology of cohesion, overarching loyalty to the central state, and self-determination were unable to salvage the state as had been expected.
Opinions are divided on the significance of colonialism for subsequent
state fragility in Africa. Ake (1985) suggests that what happened at independence was a changing of the guard, rather than a change in the character of
the state which, by the nature of its peripheral formation and integration into
the global system, was an appendage of the dominant centres. Ekeh (1983)
questions the validity of episodic perspectives, which consider the period of
colonialism too limited in Africas long history to have the kinds of epochal effect claimed for it. Post-colonial states have, it has been argued, shown a great
deal of diversity and unevenness in their abilities to cope with the challenges
of development, which suggests that factors other than colonialism have to be
examined in order to explain state fragility. Why, for instance, have the Asian
tigers succeeded and the African states failed? Why has Botswana done well,
and Nigeria and Ghana have not?
FRAGILE STATES
287
Yet others argue that the focus on colonialism distracts attention from autochthonous factors. The argument that then follows is that the pathologies
of the state in the Third World, especially the African species, are partly
and in some cases largely endemic to indigenous formations. Contrary to
the suggestion that the colonial and post-colonial states were artificial, Bayart
(1991: 53) argues that they were built upon their own social foundations.
Similarly, Chabal and Daloz (1999:4) have pointed out that the state in Africa
was never properly institutionalised because it was never significantly emancipated from [indigenous] society. The import of these claims is that corruption, violent politics, bad governance, and other fragile state variables are
products of the appropriation of the state by autochthonous forces. The point
missed by Bayart and others, however, is that the acts of state creation, including the determination of boundaries, were undertaken by European colonisers and were not negotiated with the colonised. It is in this sense that the
states are regarded as artificial. The other point missed by Bayart and others is
that the so-called indigenous social structures that survived under colonialism
were actually transformed indigenous structures, having undergone changes of
epochal magnitude during the colonial encounter. What colonialism did was
to turn society upside down and inside out (Ekeh 1983). The post-colonial
indigenous sector is no different: it is a product of the encounters with powerful forces of globalisation that have created states of disarray (UNRISD 1995;
Osaghae 2005).
Colonialism certainly laid the foundations for externalities and disarticulations that have cumulatively since independence tended to disable rather
than strengthen the state (Bose 2004). The devastating effects of Cold War
interventions linger on. In the post-Cold War period, states in the Third World
have fared much worse. Economic and political reforms, especially structural
adjustment programmes, have demonstrably weakened their economies and
governments, and raised the stakes of what is now popularly known as the
National Question, precipitating authoritarianism, anti-state mobilisations,
armed conflicts and civil war (Gibbon et al. 1992; van de Walle 2001). The
distorted structures and practices of the WTO, as well as the double standards
and barricades erected by the USA and other leading industrialised countries,
have restricted exports, encouraged dumping and smuggling, and slowed
down industrial and economic growth in peripheral formations. Huge foreign
debts have also limited the options available to fragile states.
None of this absolves fragile states of blame. The fact that many states
in the Third World remain afloat and have in fact been effective drivers of
the development process in spite of the common historical trajectories means
that we must also look inwards at internal cultural, social, economic, and
political factors in order to explain the phenomenon of fragile states. Clearly,
problems such as poor resources and the mono-crop nature of economies
which depend on only one agricultural or mineral commodity, weak and fragile institutions, bad governance variables, corruption, politics of the belly,
high unemployment, food insecurity, patrimonialism and tendencies toward
personal authoritarian rule, poor management of the public domain, capital

flight, brain drain, social inequalities occasioned by unequal and discriminatory citizenship, high incidence of violent crimes, and underdevelopment of
structures of conflict management and resolution are internally located and,
notwithstanding the externalities that may attend them, have to be resolved
from within.
There is an even more important reason why there should be a closer focus
on the internal dynamics of fragile states than on externalities. This is the fact
that the states have been the sites of popular struggles by coalitions of citizens
and civil society, which seek to redeem and salvage the state through appropriation and ownership to make it an effective manager of development. In
Africa, these struggles have been analysed in terms of the first (anti-colonial)
and second (anti-authoritarian state) liberation or independence movements
(Ekeh 1997; Osaghae 2005). The objective of these movements is to transform the state in such a way that it becomes an ally rather than an obstacle
in the democratisation [and development] process (Nzongola-Ntalaja and Lee
1997:8). The implication of the local struggles from below is that the definition and turnaround of fragile states is not all about what the World Bank/
IMF, donors, and the international development community think or do,
which is substantially the case at present. As has happened in one or two cases
(Ghana and Uganda readily come to mind), the danger in such one-sidedness
is the possible disconnection between the evaluation of the World Bank/IMF
and donors and that of the citizens and local coalitions. Thus Ghana and
Uganda were judged by the Bank to be reform success cases in the 1990s, but
the citizens of both countries thought otherwise because their material conditions did not show any remarkable improvement and, as a consequence, the
anti-state struggles persisted. The need for synergy between the dominant and
hegemonic global actors and local constituents in the engagement with fragile
states cannot be overemphasised.
Conclusion
The concept of fragile states is appropriate for characterising problematic and
troublesome states that have potential not only to self-destruct but also to
endanger global peace, prosperity, and security. As an empirical construct, it is
valid and is therefore likely to remain a development buzzword for some time
to come. It does not have the ideological image and baggage of rogue state, for
example, or the finality of the failed or collapsed state, and offers a window of
opportunity for redemption and strengthening if the right diagnosis is made
and appropriate medicines are administered, which is the framework within
which the World Bank/IMF and international development partners ought
to be engaging fragile states. However, this conceptual logic has not been followed through for at least two reasons.
First, fragile states remains a characterisation or typological construct, and
the assumption is that the pathologies of such states are inherent to deviant
FRAGILE STATES
289
statehood. But certainly, weak institutions, poverty, social inequalities, corruption, civil strife, armed conflicts, and civil war cannot be and are not original conditions. Second, the failure to historicise state fragility and to assign
the full weight of externalities and externally induced disarticulations has so
far prepared the ground for wrong therapies. The tendency to ignore the local/
internal conceptions of state fragility and the struggles to redeem them, and
the preference for curtailment or possible elimination of the threat potential
of fragile states (through isolation or military intervention or outright neglect
and indifference, for instance), which is the essence of the dispensability thesis advanced by Kothari and discussed earlier, misses the point about superpower complicity that can only be remedied through composite globallocal
action. The argument in this chapter is that the external and internal factors
of fragility have to be fully interrogated if these countries are to get the kind of
assistance and empowerment that they so clearly deserve at least for the sake
of global peace, prosperity, and security, if not for that of the impoverished
citizens of fragile states. But, ultimately, the responsibility for determining
when states are no longer fragile is that of the citizens of the countries concerned and not that of benevolent donors and the international development community, whose prime motivation for supposed state-strengthening
interventions is to ensure that fragile states take their rightful places in the
hegemonic global order.
Notes
1.
2.
Some of the major publications which marked the entry of fragile states
from a substantially African perspective include the World Banks World
Development Reports (from 1988), Sub-Saharan Africa: From Crisis to Sustainable Growth (1989) and Governance and Development (1992); Migdal (1988),
Wunsch and Olowu (1990), Joseph (1990), Hyden and Bratton (1992) and
Zartman (1995).
Among others, Myrdal (1968) analysed the soft state, which he defined as
a state that is unable to enforce its will, especially in areas which demand
moral rectitude (see also Rothchild 1987); Ekeh (1975) interrogated the
evolution and interactions of the two publics in Africa; Alavi (1979) examined the overdeveloped state. Others have analysed the weak state (Migdal
1988), weak leviathan (Callaghy 1987), neopatrimonial statehood (Bratton
and van de Walle 1994), centralisation and powerlessness (Kohli 1994),
governance and politics (Hyden and Bratton 1992), prebendal politics
(Joseph 1987), and politics of the belly (Bayart 1993).
References
Ake, C. (1985) Political Economy of Nigeria, Lagos: Longman.
Alavi, H. (1979) The state in post-colonial societies: Pakistan and Bangladesh, in H. Goulbourne (ed.), Politics and State in the Third World, London:
Macmillan.
Bayart, J.-F. (1991) Finishing with the idea of the Third World: the concept
of the political trajectory, in J. Manor (ed.) Rethinking Third World Politics,
London: Longman.
Bayart, J.-F. (1993) The State in Africa: The Politics of the Belly, London:
Longman.
Bayart, J.-F., S. Ellis, S. and B. Hibou (1999) Criminalization of the State in Africa,
Oxford: James Currey.
Bose, S. (2004) De-colonization and state building in South Asia, Journal of
International Affairs 58(1): 95113.
Bratton, M. and N. van de Walle (1994) Neopatrimonial regimes and political
transitions in Africa, World Politics 46: 45389.
Callaghy, T. (1987) The state as a lame leviathan: the patrimonial-administrative state in Africa, in Z. Ergas (ed.) African State in Transition, London:
Macmillan.
Chabal, P. and J. Daloz (1999) Africa Works: Disorder as Political Instrument,
Oxford: James Currey.
Chazan, N. (1988) State and society in Africa: images and challenges, in D.
Rothchild and N. Chazan (eds.) The Precarious Balance: The State and Society
in Africa, Boulder, CO: Westview.
Chua, A. (2004) World on Fire: How Exporting Free Market Democracy Breeds
Ethnic Hatred and Global Instability, New York, NY: Anchor Books.
Davidson, B. (1992) The Black Mans Burden: Africa and the Curse of the NationState, London: James Currey.
Ekeh, P.P. (1975) Colonialism and the two publics in Africa: a theoretical statement, Comparative Studies in Society and History 17(1): 91112.
Ekeh, P.P. (1983) Colonialism and Social Structure in Africa: An Inaugural Lecture,
Ibadan: Ibadan University Press.
Ekeh, P.P. (1997) The concept of second liberation and the prospects of
democracy in Africa: a Nigerian context, in P. Beckett and C. Young
(eds.) Dilemmas of Democratization in Nigeria, Rochester, NY: University of
Rochester Press.
Evans, P., D. Reuschmeyer, and T. Skocpol (eds.) (1985) Bringing the State Back
In, Cambridge: Cambridge University Press.
Gibbon, P., Y. Bangura, and A. Ofstad (eds.) (1992) Authoritarianism, Democracy
and Adjustment: The Politics of Economic Reform in Africa, Uppsala: Nordiska
Afrkainstitutet.
Herbst, J. (1996/1997) Responding to state failure in Africa, International
Security 21(4): 120144.
Hyden, G. (1980) Beyond Ujamaa in Tanzania, London: Heinemann.
Hyden, G. and M. Bratton (eds.) (1992) Governance and Politics in Africa,
Boulder, CO: Lynne Rienner.
Ihonvbere, J.O. (1994) The irrelevant state, ethnicity and the quest for
nationhood in Africa, Ethnic and Racial Studies, 17(1): 4260.
Jackson, R.H. and C. G. Rosberg (1982) Why Africas weak states persist: the
empirical and the juridical in statehood, World Politics 35(1): 124.
Joseph, R.A. (1987) Democracy and Prebendal Politics in Nigeria: The Rise and Fall
of the Second Republic, Cambridge: Cambridge University Press.
Joseph. R.A. (1990) African Governance in the 1990s, Atlanta, GA: Carter
Center.
FRAGILE STATES
291
Kohli, A. (1994) Centralization and powerlessness: Indias democracy in a

comparative perspective, in J.S.Midgal, A. Kohli, and V. Shue (eds.).
Kothari, R. (1988) State Against Democracy: In Search of Humane Governance,
New Delhi: Ajanta Publications.
Laasko, L. and A. O. Olukoshi (1997) The crisis of the post-colonial nationstate project in Africa, in A.O. Olukoshi and L. Laasko (eds.) Challenges to
the Nation-State in Africa, Uppsala: Nordiska Afrikainstitutet.
Migdal, J.S. (1988) Strong Societies and Weak States: StateSociety Relations and
State Capabilities in the Third World, Princeton, NJ: Princeton University
Press.
Migdal, J.S., A. Kohli, A. and V. Shue (eds.) (1994) State Power and Social Forces:
Domination and Transformation in the Third World, Cambridge: Cambridge
University Press.
Myrdal, G. (1968) Asian Drama: An Inquiry into the Poverty of Nations,
Harmondsworth: Penguin.
Nzongola-Ntalaja, G. and M. Lee (1997) Introduction, in G. Nzongola-Ntalaja
and M. Lee (eds.) The State and Democracy in Africa, Harare: AAPS Books.
Osaghae, E. E. (1989) The character of the state, legitimacy crisis, and
social mobilization in Africa: an explanation of form and character,
Africa Development, 14(2): 2747.
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P. McGowan and P. Nel (eds.) Power, Wealth and Global Order, Cape Town:
University of Cape Town Press.
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Political Science 4(1): 8398.
Osaghae, E. E. (2005) The state of Africas second liberation, Interventions:
International Journal of Postcolonial Studies 7(1): 120.
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responses in Z. Ergas (ed.) African State in Transition, London: Macmillan.
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Norton.
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UNRISD.
van de Walle, N. (2001) African Economies and the Politics of Permanent Crisis,
19791999, Cambridge: Cambridge University Press.
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University Press.
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Young, C. (1994) The African Colonial State in Comparative Perspective, New
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Legitimate Authority, Boulder, CO: Lynne Rienner.
About the author

Eghosa E. Osaghae is Professor of Comparative Politics and Vice Chancellor of Igbinedion University in Nigeria. He has published extensively on the
post-colonial state in Africa, and won the Best Article Award for 2004 at
the 2005 African Studies Association for his article Political Transitions and
Ethnic Conflict in Africa, published in the Journal of Third World Studies.
CHAPTER 29
Knowledge management: a case study of

the World Banks research department
Robin Broad
This chapter looks at knowledge management, using a case study of the World
Banks research department, located in the Banks Development Economics
Vice-Presidency (DEC). Despite the Banks presentation of its research arm
as conducting rigorous and objective work, the author finds that the Banks
knowledge management involves research that has tended to reinforce the
dominant neo-liberal globalisation policy agenda. The chapter examines some
of the mechanisms by which the Banks research department comes to play a
central role in what Robert Wade has termed paradigm maintenance, including incentives in hiring, promotion, and publishing, as well as selective enforcement of rules, discouragement of dissonant views, and manipulation of data.
The authors analysis is based both on in-depth interviews with current and former World Bank professionals and on examination of the relevant literature.
Knowledge and its management

Let me start with a confession: when I began the research project that would
lead to this chapter (among others), I did not even know that the term knowledge management existed. I was then and am still a professor of international
development at a university in the USA. I had done a significant amount of
research and writing on the international financial institutions and development (buzzword alert) since I first lived in the rural Philippines in the 1970s.
It turns out that, while I was teaching and writing about such things,
knowledge management had become a pretty big deal in the private sector. Not only is there a growing literature on knowledge management
generically defined as how organizations create, retain, and share knowledge
(Cummings 2003:1) but also there are whole publications devoted to the
subject. Witness The Journal of Knowledge Management Practice (formerly the
Journal of Systemic Knowledge Management) or Inside Knowledge: The Original
Knowledge-Management Publication. The point, as the latter explains on its
website, is that:
The knowledge that exists within your organisation is your only sustainable source of competitive advantage. We believe this makes knowledge
management a strategic imperative for you. But how do you ensure that
your KM initiative is effective, that it delivers on its promises and that

your organisation sees a return on its KM investment?1
And it also turns out that the development industry (buzzword? contradiction in terms?) was leaping into the knowledge management arena. This,
I must quickly assure you lest you stop reading, I did know. Indeed, by the late
1990s, key public institutions that do development were in need of a new
meta-word and meta-fix. This was especially the case at the World Bank, where
then-president James Wolfensohn was presiding over an institution that needed a clearer mission to keep it centre-stage. Yes, the World Bank still had its
project-lending function. And yes, the Bank still had its focus on making sure
that recipient countries structurally adjusted to the correct set of neo-liberal
macro-economic policies.2 But the problem was that its central role as a lender
was waning. The heyday of the debt crisis was over (so countries, especially
middle-income countries, were no longer as desperate for loans), and commercial banks were once again lending to Third World countries (so there
were other potential sources for loans). So too was China on the horizon as a
lender. Being a provider of aid or development assistance via project loans
or even policy-based lending was not going to be enough to ensure that the
World Bank would remain the powerful player that it had become.
So, in 1996, then-Bank president James Wolfensohn launched an initiative to magnify the research and dissemination role of the World Bank by
transforming the institution from what was called a lending bank into the
Knowledge Bank:
Development knowledge is part of the global commons: it belongs to
everyone, and everyone should benefit from it. But a global partnership
is required to cultivate and disseminate it. The [World] Bank Groups
relationships with governments and institutions all over the world,
and our unique reservoir of development experience across sectors and
countries, position us to play a leading role in this new global knowledge partnership.
We have been in the business of researching and disseminating the
lessons of development for a long time. But the revolution in information technology increases the potential value of these efforts by vastly
extending their reach.We need to become, in effect, the Knowledge
Bank. (Wolfensohn 1996)3
The implication was that the World Bank was a place where all views, all
ideas, all empirical data on development would be available to the world.
Given this mission to increase the World Banks role in creating, aggrandising, distributing, and brokering knowledge that is, in knowledge management it makes sense to look more carefully at how World Bank research is
conducted and distributed to see if this is, in fact, the case.
KNOWLEDGE MANAGEMENT AND THE WORLD BANK
295
The Knowledge Bank or the Paradigm-Maintenance Bank?

The World Bank is not only the main lender for development. It is also the
worlds largest development research body, a role that is centred in the World
Banks Development Economics Vice-Presidency (DEC).
DEC is important also because it serves as a research department for other
bilateral aid agencies and other multilateral development banks, which often
follow the course laid out by the Bank. So too with the World Trade Organisation, which, according to an internal Bank document, looks to the Bank to
provide analysis on trade integration policies.4 And Bank research is consulted
by policy makers across the globe. In academia, as well, relevant courses often
rely heavily on Bank research papers. In short, DEC is the research powerhouse
of the development world.
And DEC is important to this chapter because it demonstrates how badly
the Bank fails in this regard or, depending on ones view, how well it succeeds
at controlling the definition of development knowledge and at managing its
distribution and projection to suit the Banks purposes.
The Bank likes to claim that DEC conducts the crme-de-la-crme of development research with research projects that are and must be rigorous
and objective.5 After a careful look inside DEC (including a couple of dozen
interviews with former and current Bank staff), I have reached a different
conclusion: through its research, the World Bank has played a critical role
in the legitimisation of the neo-liberal free-trade paradigm over the past 25
years, and its research department has been vital to this role.
The work of perhaps the best-known World Bank researcher, David Dollar,
exemplifies the paradigm-maintenance role.6 For many in the media, academia, and policy-making circles, Dollars work on trade and economic growth
has been transformed into a widely cited, empirically proven fact (read knowledge) that globalisers Dollars term for countries wedded to the Washington
Consensus, especially to liberalised trade experience higher economic growth
rates than non-globalisers. Indeed, Dollars and his co-authors work is the one
source cited by Thomas Friedman in his best-selling book The World Is Flat as
proof that economic growth and trade remain the best antipoverty program
in the world (Friedman 2005: 315). As Dollar phrased it in a co-authored 2002
article in Foreign Affairs: openness to foreign trade and investment, coupled
with complementary reforms, typically leads to faster growth.
How did Dollars work become so prominent? Why does the work of DEC
researchers who support the dominant knowledge framework the neo-liberal
policy agenda get widespread attention? I discovered a set of six inter-related
processes and mechanisms through which DEC, at times collaborating with
other parts of the World Bank, performs its paradigm-maintenance role by
privileging knowledge producers and knowledge that resonate with the neoliberal globalisation ideology. These mutually reinforcing structures include a
series of incentives increasing an individuals chances to be hired, to advance
ones career, to be published, to be promoted by the Banks External Affairs
department, and, in general, to be assessed positively. And they also include

selective enforcement of rules, discouragement of dissonant discourse, and
even the manipulation of data to fit the paradigm. This incentive or reward
system is typically unstated, may even negate the formal or stated procedures
and, as such, functions as soft law. This is done in a way that undermines debate and nuanced research conclusions, instead encouraging the confirmation
of a priori neo-liberal hypotheses as de facto knowledge.7
There follows a brief overview of the six sets of mechanisms.
Hiring
The structures through which these incentives play out are multiple, and
they begin with hiring biases. While countries of birth and nationality may
lead to a superficial assessment that the staff are international and diverse,
the Bank is far from diverse. Bank staff are overwhelmingly PhD economists.
Boundaries of disciplines in and of themselves set intellectual boundaries,
defining acceptable questions and methods. DEC houses fewer than a handful of non-economist social scientists.
Further concentrating thought, the USA and the UK (and primarily the former) university economics departments supply most of the PhD economists
doing research and writing within DEC (and within the Bank in general). The
Banks generous pay scale and benefits are also part of this incentive structure.
This is what a former Bank economist terms the golden handcuffs. (Unless
buzzwords or otherwise stated, quotes are from my interviews.) While the
Bank claims these are necessary to attract the best and the brightest, what
they actually do is limit dissent by increasing the opportunity cost of any
dissidence.
Promotion
There are a number of ways in which promotion incentives help to shape the
work towards paradigm maintenance.
The overarching goal of any researcher who wants to make a career of the
Bank is to achieve, after five years, regularisation, the Bank equivalent of academic tenure. Along the way, there are annual reviews. It is important to note
that most Bank employees are on short-term contracts. There is substantial
anecdotal evidence that this is distorting incentives away from creative thinking and towards career-path management (Gilbert et al. 2000: 81).
To get good reviews, DEC professionals need to publish, ideally in both
internal Bank publications and externally, especially in academic journals.
Reviews also look at a DEC researchers influence on Bank operations and
policy. The Bank has set up formal structures to try to ensure the transfer of
research knowledge to operations. Most notable is that one-third of a researchers time must be spent doing what is called operational cross-support.
In devising a work programme, the researcher is aware that he/she will need
297
marketability for 1/3 time when she/he is a de facto free agent. In terms of
the characteristics of a marketable DEC researcher, as one Senior Economist
in DEC explains, Operations looks for high-profile folks with resonance.
To paraphrase, if you are in Operations and you are looking to buy the time
of a researcher, you look to add someone who is likely to improve the chances
of your project getting through. You want a Dollar, one interviewee states
bluntly without provocation. Conversely, asks one non-neo-liberal-economist
researcher rhetorically: Why would Operations want me?
Selective enforcement of rules

DECs paradigmatic bias is also reflected in the process of reviewing on-going
research for publication. The Bank likes to claim that there is uniform, objective, external review, but that is not the perception of individual researchers
themselves. While there may be written rules with specific requirements (which
this author has yet to see, despite repeated attempts), evidence suggests and
interviews confirm that reviews of proposed research, manuscripts, and individuals are done selectively.
Most of those interviewed for this chapter commented that research critical of the neo-liberal model or opening the door to alternatives (i.e. without
that necessary resonance) is likely to undergo stricter external review and/or
be rejected. The review process, says a former Bank professional, depends on
what the paper is [about] and who the author is. If you are a respected neoclassical economist, then [approval] only needs one sign-off, that of your boss. If
its critical, then you go through endless reviews, until the author gives up...
Discouraging dissonant discourse

Rather than revealing the Bank to be an honest agent of different views or
even an institution willing to broker debate, my research exposes a number of
ways in which dissonant discourse, while allowed at the fringe of the research
department, is generally discouraged. Dissent is allowed on more marginal
issues, but seldom on the core tenets of the neo-liberal model. How does this
discouragement of dissent occur?
Discourse is part of the answer. On numerous occasions when the author
asked Bank staff about someone whose work has raised dissent, the response
was invariably that the person was idiosyncratic or iconoclastic, or disaffected. In other words, people who do not project the Banks paradigm
are diminished or ostracised or deemed misfits. Former DEC official David
Ellerman has described the Bank as an organization where open debate is
not a big part of the culture (Ellerman 2005: xix).
This lack of openness to dissent is all the more troubling in the context of
the rapidly evolving post-Seattle and post-Asian-crisis debate on development.
Since the late 1990s, with the rise of a global backlash against the neo-liberal
model, there has been outside the Bank a vibrant theoretical and policy
debate about neo-liberal economic globalisation, as evidence grows of its negative impacts on economic, environmental, and social development. During
this period, Bank projects and policy-based lending have come under heavy
attack for contributing to these negative impacts. Yet, the Bank has been able
to continue to operate relatively unchecked in its research work.
Take David Dollars work.8 There has been widespread external criticism
of Dollars methodology by non-doctrinaire economists outside the Bank
from Harvard economist Dani Rodrik, Center for Economic and Policy
Research director/economist Mark Weisbrot, London School of Economics Robert Wade, to Cornell professor (and former Bank professional) Ravi
Kanbur, and others (including the present author). Rodrik, for example,
reaches a conclusion opposite to Dollars: The evidence from the 1990s indicated a positive (but statistically insignificant) relationship between tariffs
and economic growth (Rodrik 2001:22).
Yet, the Bank continues to project Dollars work as if it is undisputed fact.
This suggests a certain presumption within the Bank about what the right
answers should be, and a willingness to ignore or discard evidence that complicates the answer. Ignoring the complications or caveats allows for the presentation of subjective and conditional conclusions as objective and scientific
discourse as knowledge. The point, explains a DEC economist, is that one
type of research is encouraged, people know what type it is and they produce
it, while another type is given short-shrift.
Selective presentation of data

What does the Bank do if data/research do not support a neo-liberal hypothesis? There is disturbing evidence that the Bank crafts, and even manipulates,
the executive summaries and press releases of reports so that they reinforce
the neo-liberal paradigm. A case in point of an executive summary that is so
well crafted that it no longer meshes with the text of the report is a 350-pluspage 2003 Bank document on Lessons from NAFTA for Latin American and
Caribbean Countries (World Bank 2003). The summary (p. viii) states that
real wages [in Mexico] have recovered rapidly from the 1995 collapse ....
However, the text itself does not support this conclusion, as researcher Sarah
Anderson noticed as she read it carefully: Table 1 of the summary shows that
real wages in both local currency and in dollars have dropped since 1994....
Figure 4 in the main body of the report shows that real Mexican wages relative
to those in the US are also below their 1994 levels.9
Anderson wrote to the reports co-author Daniel Lederman to ask how a
table showing a drop in real wages in the 19942001 period could have been
summarised as a return to a level roughly equal to 1994. Lederman responded
that the wage trends were complicated and therefore the summary was meant
to be vague. As Anderson replied: ... to say that wages have returned to their
1994 levels when they have not is not merely vague but is inaccurate.
299
Yet, Anderson seems to have been one of the few to read the report carefully enough to note this key discrepancy (or falsehood, as she more accurately
phrases it). Indeed, on 9 January 2004, the Washington Post ran a long, lead
editorial on the success of NAFTA, based in part on the World Bank report. Incredibly enough, the Post editorial chastised NAFTA critics who say that wage
growth has been negligible, and instead noted that wage levels that match
those existing before the peso crisis represent an achievement. In other words,
the Bank seems to understand and play to the fact that most people, including
most journalists, will read only the press release and summary. In this case, in
a significant arena for potential policy debate and reform, the Bank fooled a
major newspaper whose editorials are read and used by key policy makers.
External projection
My research also concluded that the Banks External Affairs department functions as a projector of DECs paradigm-maintenance role. Dollar, for instance,
did not only have the backing of DEC. The Banks External Affairs department
stepped in to publicise his work; it is External Affairs that has the money,
media contacts, and incredible clout to fly an author around the world.
External Affairs rise in stature dates from the early Wolfensohn years under
the leadership of Mark Malloch Brown (19941999). (Malloch Brown was later
rewarded, becoming Administrator of UNDP and, in 2005, Chief of Staff to
UN Secretary General Kofi Annan.) In Wolfensohns second term, External Affairs budget soared to become, by 20042005, comparable to the full annual
budget of the Heritage Foundation. External Affairs has grown, the present author would hypothesise, at least in part in response to the increasing external
questioning of the Bank and its model. External Affairs has become vital in the
polarised public debate over the Banks role.
Conclusion
These six sets of incentives raise significant questions about the World Banks
own argument that it produces and disseminates work of the utmost quality
and integrity. My research should certainly raise alarm about further concentrating and aggrandising this role of knowledge production and marketing in
the World Bank indeed, alarm about any institution that seeks to monopolise
and manage knowledge.
We also get a further, illuminating insight into World Bank knowledge
management by its reactions to my research. After reading a draft of my original article, a former consultant to the World Bank mused: I wonder what
the reaction will be from the people in the Bank. A deafening silence? An
invitation to participate in a task force to see how to improve things? A witch
hunt to find your informants?10 True to form, the knowledge managers burst
into action. After the original, longer academic article on DEC appeared in a
peer-reviewed academic journal, two gentlemen from the Bank contacted the
journals editors. Although I was not privy to the communication, I gather

that the gentlemen found my scholarship to be poor and the journals review
process wanting if such an article could be published.11 The editors (who had,
in fact, overseen a rigorous review process) offered journal space for the two
to rebut my article, with the understanding that I would then be given the
customary academic opportunity to reply. But such open academic debate appears not to have been to the liking of the complainants who feared, I infer,
that it would give my article further prominence.12
Clearly, there was something about my knowledge that needed to be
managed. I will let my case that of one mere academic writing in one mere
academic journal stand as a concluding coda, as further evidence of the
need to break up the monopolisation of knowledge and its management. As
Susan George, a member of the journals International Editorial Board, wrote:
Could it be that the letter of complaint [from the World Bank] helps to prove
rather than to disprove Broads case it struck me as a classic example of manning the barricades in the interests of paradigm defense.13
My research suggests that there is an urgent need to question paradigm
maintenance and to fundamentally re-think research and knowledge production and dissemination at the World Bank. Does the Bank really need
a biased research department? Does the Bank really need an External Affairs
department to tout research that reinforces the highly discredited neo-liberal
model? Would not knowledge and development be better served by supporting multiple and diverse independent research institutions, especially in
the South? Should not the goal be to stimulate a more diverse development
debate?
Development knowledge should not be managed. It should, indeed, be debated not only by academics such as myself, but more importantly by those
who are supposed to be its beneficiaries.
Acknowledgement
This chapter includes sections adapted and condensed, with permission, from
Robin Broad (2006) Research, knowledge, and the art of paradigm maintenance: the World Banks Development Economics Vice-Presidency (DEC),
Review of International Political Economy 13(3): 387419, available at the journals homepage, www.tandf.co.uk/journals/titles/09692290.asp.
Notes
1.
2.
About Inside Knowledge magazine, at www.ikmagazine.com/about.asp,

retrieved 27 March 2007.
For those readers who are buzzword connoisseurs, structural adjustment
loans became known as antipoverty loans and then development policy
support.
3.
301
James D. Wolfensohn, Annual Meetings Address, World Bank, Washington, DC, 1 October 1996, retrieved 29 September 2004. See also World
Bank 1999. Another term now used is knowledge sharing, which the
Bank seems to have come to believe has a better buzz than knowledge
management. For more on Wolfensohns Knowledge Bank initiative, see
the work of Diane Stone 2000, 2003 as well as the work of Jeff Powell and
Alex Wilks at the UK-based Bretton Woods Project. See also King (2002),
Ellerman (2002, 2005), Gilbert and Vines (2000), Standing (2000), and
Kapur (2006).
4. See Leveraging Trade for Development: World Bank Role, paraphrased
in Bretton Woods Project, World Bank to Intensify Work on Trade, 4
April 2001. See also Dethier (2005). The then Chief Economist Stern emphasised this in a 2001 meeting with the Financial Times, which reported:
...the chief economist of the World Bank... promised that the bank would
provide intellectual firepower to the World Trade Organization... The
World Trade Organization doesnt have the research capacity the World
Bank does and looks to us to push the trade research agenda, he said. ...
The World Bank is the only organization with the depth of knowledge
at the country level you need to discuss trade issues seriously(Beattie
2001:14).
5. World Bank, Research Advisory Staff (n.d.) Evaluations of World Bank
Research: Research Support Budget Projects, available at www.worldbank.
org/html/rad/evaluation/home.htm, retrieved 22 October 2004.
6. The term paradigm maintenance is taken, with gratitude, from the perceptive article by Robert Wade (1996).
7. My original article (Broad 2006) from which this present chapter is adapted expands upon these six mechanisms, and provides more detail on
DECs structure, role, and impact; and how DEC came to embrace the
neo-liberal globalisation paradigm.
8. A list of Dollars writings is available at http://ideas.repec.org/e/pdo54.
html#works.
9. The sources for this paragraph and the next two are World Bank (2003),
along with the relevant press release dated 17 December 2003; Sarah
Anderson (2003) letter to Fellow NAFTA-watchers, and Sarah Anderson
(2003) email exchange with World Bank economist Daniel Lederman,
1819 December; Daniel Lederman (2003) email exchange with Institute for Policy Studies researcher Sarah Anderson, 1819 December; and
NAFTA at 10 (2004) Washington Post, editorial, 9 January, A16. See also
the response to the Bank report by Bakvis (2003) of the ICFTU.
10. Professor Robert Wade, London School of Economics, email to author, 4
April 2006.
11. The letter is quoted in Susan George, Paradigm Maintenance, or
why we cant trust the World Banks research, available atwww.tni/
org/archives/george/paradigm.htm (retrieved 3 February 2007). George
received the letter of complaint as a member of the journals International Editorial Board. The website cited here includes Georges letter
of response to the Editorial Board of 22 November 2006, as well as an
introduction (dated 24 January 2007) contextualising her letter. See also
Bretton Woods Project, Bank Attempts to Silence Critics, Update #54,

31 January 2007, at www.brettonwoodsproject.org.
12. Soon thereafter, the Financial Times (Callan 2006) reported on an extensive external review of DEC headed by (among others) Princeton economist Angus Deaton and former head of research at the IMF Ken Rogoff
(Bannerjee et al. 2006). The audit review reached conclusions that were
shockingly similar to mine.
13. Susan George, letter 22 November 2006 to Editorial Board of Review of
International Political Economy.
References
Bakvis, Peter (2003), Distorted World Bank Report on NAFTA and Labor,
available at www.50years.org/cms/ejn/story/ (retrieved 8 April 2007).
Bannerjee, Abijihit, Angus Deaton (Chair), Nora Lustig, and Ken Rogoff (2006)
An Evaluation of World Bank Research, 19982005, available at siteresources.worldbank.org/DEC/Resources/84797-1109362238001/7264541164121166494/RESEARCH-EVALUATION-2006-Main-Report.pdf
Beattie, A. (2001) Bright prospects seen for new trade round: the World Economic Forum Chief Economist pledges World Banks intellectual firepower
..., Financial Times, 30 January.
Broad, Robin (2006) Research, knowledge, and the art of paradigm maintenance: the World Banks Development Economics Vice-Presidency (DEC),
Review of International Political Economy 13(3): 387419.
Callan, Eoin (2006) World Bank uses doubtful evidence to push policies,
Financial Times, 22 December, available at www.ft.com/cms/s/a34338129160-11db-b71a-0000779e2340.html
Cummings, Jeffrey (2003) Knowledge Sharing: A Review of the Literature,
Washington, DC: World Bank Operations Evaluation Department.
Dethier, J. (2005) An Overview of Research at the World Bank, presentation at the Conference Research Bank on the World Bank, organised by
the Center for Policy Studies, Central European University, Centre for the
Study of Globalisation and Regionalisation, University of Warwick, and
the World Bank European Office, Budapest, 12 April 2005.
Ellerman, David (2002) Should development agencies have Official Views?,
Development in Practice 12(3&4): 28597.
Ellerman, David (2005) Helping People Help Themselves: From the World Bank
to an Alternative Philosophy of Development Assistance, Ann Arbor, MI:
University of Michigan Press.
Friedman, Thomas L. (2005) The World Is Flat: A Brief History of the Twenty-First
Century, New York, NY: Farrar, Straus and Giroux.
Gilbert, C. and D. Vines (eds.) (2000) The World Bank: Structures and Policies,
Gilbert, Christopher, Andrew Powell and David Vines (2000) Positioning the
World Bank, in C. Gilbert and D. Vines (eds.).
Kapur, Devesh (2006) The Knowledge Bank, in Nancy Birdsall (ed.)
Rescuing the World Bank, Washington, DC: Center for Global Development, pp. 15970.
303
King, K. (2002) Banking on knowledge: the new knowledge projects of the

World Bank, Compare 32(3): 31126.
Rodrik, Dani (2001) The Global Governance of Trade as if Development Really
Mattered, New York, NY: UNDP.
Standing, Guy (2000) Brave new words? A critique of Stiglitzs World Bank
rethink, Development and Change 31: 73763.
Stone, Diane (ed.) (2000) Banking on Knowledge: The Genesis of the Global
Development Gateway, London: Beacon Press.
Stone, Diane (2003) The Knowledge Bank and the Global Development
Network, Global Governance 9(1): 4361.
Wade, Robert (1996) Japan, the World Bank, and the art of paradigm maintenance: the East Asian Miracle in perspective, New Left Review I (217) (May/
June), available at http://newleftreview.org/?page=article&view=1851
World Bank (1999) World Development Report 1998/99: Knowledge for Development,
New York, NY: Oxford University Press.
World Bank (2003) Lessons from NAFTA for Latin American and Caribbean
Countries, Washington, DC: World Bank.
About the author

Robin Broad is Professor of International Development at American University
and on the board of the Bank Information Center. She has published extensively on issues of economic justice, with a particular focus on the Philippines.
Coda
Thirty-eight thousand development programmes 1
Paradoxically, much of the instrumental value of the conventional vocabulary
of development planning rests in its imprecision of meaning and its authoritative, technical gloss. Advertising executives and businessmen are very familiar
with these Buzzwords words which make a pleasant noise but have little
explicit meaning. One property of these words is that they may be combined
into almost infinite permutations and still mean something. To illustrate this
we list below 56 words which occur frequently in the planners lexicon. These
will generate 38,316 development programmes: since the publisher is unaccountably reluctant to print the necessary 950 additional pages, we must prey
on the readers patience to elaborate it for him or herself. Select one word from
each column at random to compose a four-word phrase: for example, A3, B6,
C9, D12 = Systematically balanced cooperative action. Or A12, B9, C6, D3 =
Comprehensively mobilised rural participation. These may be immediately
recognisable, but what do they mean?2 If two or three people were each to
write a paragraph explaining one of these phrases to the masses, on behalf of
the government of Ruritania, their different interpretations should bear further
witness to the malleability of such language.
1
2
3
4
5
6
7
8
9
10
11
12
13
14
Centrally
Rationally
Systematically
Formally
Totally
Strategically
Dynamically
Democratically
Situationally
Moderately
Intensively
Comprehensively
Radically
Optimally
Motivated
Positive
Structured
Controlled
Integrated
Balanced
Functional
Programmed
Mobilised
Limited
Phased
Delegated
Maximised
Consistent
Grassroots
Sectoral
Institutional
Urban
Organisational
Rural
Growth
Development
Cooperative
On-going
Technical
Leadership
Agrarian
Planning
Involvement
Incentive
Participation
Attack
Process
Package
Dialogue
Initiative
Scheme
Approach
Project
Action
Collaboration
Objective
1
2
3
4
5
6
7
8
9
10
11
12
13
14
Notes
1.
2.
Thirty-eight thousand development programmes emerged in the late

1970s. We have tried without success to trace the original source; if its
authors or copyright holders come forward, we will be only too happy to
credit them.
The interesting thing about this game is about how much and how little
has changed in the last 30 years. Clearly, it pre-dates the international
debt crisis, structural adjustment, the lost decade, the end of communism, neo-liberalism, and the (now post-) Washington Consensus; it
therefore also pre-dates the series of UN conferences of the 1980s and
1990s: Children, Environment, Women, Population, Human Rights, and
Social Development, which together provided such fertile ground for new
buzzwords. The now ubiquitous language of New Public Management,
had yet to permeate the Development Industry: in the 1970s, aid recipients were referred to as beneficiaries, or possibly partners, but never
clients, stakeholders, or, worse still, end-users. But the essence remains
the same, give or take a few missing or pass items. Readers may therefore
enjoy creating more up-to-date versions of the 56 essential buzzwords,
drawing perhaps on some of those critiqued in this volume.
Index
accountability 196, 2167, 228,
25862, 278, 282
see also government; horizontal
accountability; mutual
accountability; political; public; transparency
acronyms 29, 65, 157
action planning 6, 155, 1578, 219
ActionAid 145, 149
active policy 5762, 207, 285
advertising 3, 191, 218, 305
advocacy 8, 83, 149, 206, 20910,
220
see also India; people-centred
advocacy; public
Afghanistan 85, 226, 272
Africa 318, 713, 912, 25861,
2657, 2818
agendas 13, 115, 139, 183, 188, 277
see also development; NGOs;
political; sustainability
agencies see aid; Northern
agents 136, 142, 147, 1756, 195, 276
agriculture 19, 30, 367, 156, 159,
165
aid
agencies 76, 114, 136, 206, 211,
278
-dependent 215, 218
effectiveness 29, 40, 2156
organisations 236, 2389
policies 3, 301, 35, 39, 41
terminology 3238
see also bilateral; British; foreign;
international; multilateral
Aidland 8, 215, 2178, 23841
AIDS 130, 141, 189, 225, 275, 283
alternatives 12, 14, 76, 138, 297
Americas 30, 71, 79
angels 3, 45, 50, 241
answerability 247, 2512
anthropology 25960
anti-corruption 112, 25763

appropriation 5, 14, 93, 2878
approval 6, 57, 142, 297
artificial 19, 223, 287
Asia 705, 159, 181
see also South Asia
assistance 306, 49, 207, 21926,
281, 289
see also DAC; development;
social; technical assistance
associations 12, 15, 1468, 175,
1789, 1935
assumptions 9, 19, 69, 201, 257
authoritarian regimes 101, 1757,
266, 288
authority 73, 77, 164, 251, 259, 267
see also public
autonomy 86, 104, 119, 170, 2101,
283
Bangladesh 206, 215, 219, 259
banks 24, 33, 70, 75, 117, 294
see also DEC; development;
Knowledge Bank; World Bank
beneficiaries 56, 61, 83, 115, 135,
300
benefits 24, 31, 49, 78, 108, 296
see also social
benevolent 11, 170, 281, 289
best practice 9, 2313
bilateral
aid agencies 49, 71, 83, 116,
165, 295
donors 8, 13, 167, 217, 237, 258
biodiversity 23, 155, 15860
Blair, Tony 64, 83
Bolivia 79, 2169
boundary work 5, 153, 15660
brand 3, 141, 157
Brazil 78, 102, 105, 107, 205, 210
British 70, 815, 208, 220, 258
aid 3, 2941
Brundtland Commission 21, 154,

156, 159
Buddhist 823, 192
budget 47, 156, 198, 200, 249, 299
support 8, 136, 140, 21521
bureaucrats 134, 65, 116, 258
buzzword see development
buzzwords
campaigns 20, 104, 1169, 175,
18792, 245
capabilities 59, 168, 205, 276
capacity building 4, 8, 29, 34, 8990,
227
and NGOs 147, 20312, 227
see also language
capital 635, 6978, 957, 147,
1549, 288
see also global; human; social
capitalism 21, 24, 89, 103, 130, 138
see also destructive capitalism
catchwords 1, 21, 89, 113
Catholic 83, 86, 210
CDF (Comprehensive Development
Framework) 1278, 216
Central America 92, 204, 210
chains of equivalence 15, 144, 1489
chaotic 127, 131, 240
charity 65, 107, 170
children 245, 46, 56, 116, 119, 238
Chilean model 634
China 64, 738, 159, 218, 226, 294
choice 12, 40, 47, 86, 146, 227
see also consumer; rational
choice
Christianity 4, 836, 146, 211
citizenship 35, 96, 1019, 17880,
283, 288
see also democratic
civil society 2, 68, 14, 1029,
17583, 2057
movements 86, 105, 155, 225,
245, 288
participation 1058, 197, 205,
216, 266
process 221, 274, 282
see also CSOs; language;
Palestine
civil war 270, 2813, 287, 289

class 84, 95, 1038, 113, 12331, 145
see also middle-class
clients 59, 135, 207
climate change 31, 38, 155, 15860
code words 3, 85
Cold War 20, 724, 902, 269, 275,
2827
collective
action 3, 91, 104, 179, 191,
2758
memory 47, 98
security 55, 271, 273, 2756
Colombia 9, 204, 232, 238
colonial 23, 8, 11, 323
see also post-colonial
command and control 246, 250
commercialisation 64, 157, 239,
249, 294
see also USA
commodity 234, 71, 77, 164, 206,
287
Commonwealth 323, 39, 86, 270
communication strategies 18890
community
based 82, 89, 155, 1901
development 3, 90, 113
participation 34
terminology 23, 6, 32, 35, 188,
231
see also development; faith;
international
compensation 41, 248, 252
competition 8, 65, 75, 197, 21621,
2747
conditionality 167, 219, 2238, 265
conferences 126, 167, 1978, 220,
262
see also Rio conferences
conflict
management 2823, 288
matrix 237
resolution 86, 135, 1968, 240
see also intifada; post-conflict;
power; violent conflict
consensus 8, 14, 545, 65, 145, 150
see also global; political; PWC;
Washington
INDEX
conservative 84, 95, 139, 200, 208,

271
governments 302, 49, 81, 112
constructive deconstruction 145,
168
consumer 34, 73, 78, 101
choice 701, 778
culture 130
consumption 19, 4650, 71, 140,
167, 195
contingency risks 545, 58
contradictions 78, 11, 767, 95,
102, 178
convictions 22, 187, 191
cooperative 98, 305
see also OECD
corporate power 6972, 79
corporations 65, 738, 119, 159,
169, 251
see also global; multinational
corporations; private; transnational
corrective see active policy
corruption 7, 41, 1278, 228,
25760, 2819
discourse 2613
see also anti-corruption; CPI;
GCB; government
counter-ideology 29, 90, 94, 138, 164
counterparts 74, 1358, 141, 1968,
204, 218
country ownership 8, 11, 215,
21921, 2238, 257
coverage 568
CPI (Corruption Perceptions Index)
25960
credit 115, 206, 220
see also micro-credit
crisis 314, 82, 157, 2625, 273, 282
of governance 927
see also financial; legitimacy;
linguistic
critique 9, 20, 54, 82, 231
CSOs (Civil Society Organisations)
749, 92, 176, 210, 2168, 24851
culture 6970, 846, 97104, 200,
231, 297
see also consumer; ESC-rights;
political
309
currency 89, 154, 201, 206, 281, 284

see also international see money
DAC (Development Assistance
Committee) 2157, 220
data 140, 24951, 2939
DDR (disarmament, demobilisation
and reintegration) 2789
debt 729, 90, 284, 294
DEC (World Bank Development
Economics) 2939
decision making 97, 102, 16872,
185, 1989, 232
powers 78, 91, 108, 119
demand-driven 2478
democratic 6971, 84, 97, 112,
1867, 201
citizenship 5, 10, 15, 277
government 2237, 269, 271,
2745, 278
projects 101, 1089, 179, 1813,
240
rights 2457
society 22, 13540, 177, 2657,
277
denatured 12, 145
dependency 19, 54, 62, 195, 20910
see also aid
depoliticised 5, 14, 95, 1439, 210,
2357
deprivation 87, 103, 168, 183, 188
deserving poor 3, 60
destructive capitalism 101, 271
development
agendas 1, 157, 279
assistance 113, 118, 170, 200,
2106, 294
banks 3, 8, 74, 223, 295
bingo 29
community 11, 1712, 282, 284,
2889
dialogue 823, 147, 305
discourse 29, 118, 163, 258,
26970, 281
establishment 12, 14, 74, 76, 94
industry 8, 73, 8991, 946,
204, 294
lexicon 1, 145, 111, 138, 163
NGOs 2034, 2079
policy 145, 30, 39, 93, 117, 205

practitioners 137, 144, 171, 285
-speak 29
strategies 301
work 135, 143, 148, 170
see also CDF; DAC; DEC;
economic; freedom; GAD;
global; human rights; international development; language;
MDGs; national; overseas
development; rural; social
change; sustainable development
development buzzwords 56, 25,
200, 246, 257, 288
discourse 116, 5365, 8999,
193201, 203
language 2941, 111, 12730,
1538, 215, 3056
DFID (Department for International
Development) 307, 85, 146,
1567, 21520, 258
dialogue 127, 130, 159, 172, 212,
218
see also development; inter-faith
disclosure 24850
discourse 160, 172, 182, 191, 2356,
250
see also corruption; development; development buzzwords; dissonant discourse;
gender; international development; political; women
discrimination 48, 57, 847, 105,
115, 182
disenfranchised 13940
dissemination 175, 18890, 200,
24752, 294, 300
dissent 94, 148, 159, 187, 2967
dissonance 1, 134, 102, 2937
dissonant discourse 2968
distortion 53, 65, 111, 120
diversity 74, 87, 98, 149, 160, 2312
dollar-a-day poverty 4850
Dollar, David 2959
domestic
politics 30, 73, 77, 209, 2235,
238
violence 1167
donor intervention 7, 30, 278

see also bilateral; international;
major donors; multilateral
Eastern Europe 17882
ecology 141, 154, 157, 188
economic
development 49, 106, 1168,
130, 153, 166, 269
inequalities 278, 283
justice 75, 188
liberalisation 187, 238, 278
policies 36, 116, 294
reform 75
see also DEC; global; ESC-rights;
OECD; socio-economic;
World Bank
economic growth 1927, 469, 57,
63, 707, 163
in Africa 2656, 2823, 287
see also Dollar, David
education 345, 856, 146, 179, 211,
2189
see also health; higher education; popular education
effectiveness 39, 188, 190, 2357
see also aid
efficiency 55, 63, 74, 108, 119,
1867, 21621
egalitarian 104, 108, 146
eligibility 47, 62
elites 48, 65, 78, 912, 1379, 185
see also international; NGOs;
political; urban
empirical 7, 14, 125, 2828, 294
evidence 49, 247
empowerment 136, 194, 2035, 231,
281, 289
terminology 36, 145, 938, 127
see also language; power; women
enabling 557, 604, 86, 104, 203,
207
environments 69, 93, 169
energy 23, 589, 79, 157, 273
enforcement 116, 166, 246, 293,
2967
engendering 147, 198
England 23, 179, 181
English 45, 29, 84, 198, 270
INDEX
Enlightenment 6, 10, 271

entitlement 271, 2778
environment 4, 19, 359, 71, 901,
2379
and development 1538
standards 246, 249, 251
see also conferences; enabling;
human; natural
equality 4, 55, 94, 1057, 1368, 144
see also gender
equity 64, 75, 94, 1446, 170, 266
equivalence see chain of equivalence
ESC-rights (economic, social and
cultural) 1667
ethical 77, 90, 94, 136, 164, 262
-political 104, 1889, 211
ethnicity 84, 113, 131, 257
euphemisms 53, 64, 89
Europe 112, 158, 1989, 228,
23941, 286
see also Eastern Europe; Western
European Union 63, 223, 275
evolution 111, 141, 146, 282
exclusion 41, 947, 115, 130, 172,
196
see also marginalised; social
expansion 12, 6976, 92, 103, 168,
180
experts 34, 21, 60, 236, 259
see also external
exploitation 23, 2789, 286
exports 30, 734, 131, 267, 287
external
affairs 296, 299300
experts 7, 156, 192, 20810
security 2712
extremism 835, 103, 146, 159
faith
based 4, 817, 208
community 82, 86
see also inter-faith dialogue
fashion 3, 625, 203, 240
fear 10, 25, 1459, 178, 270, 274
see also freedom
feminist 6, 1129, 1438, 198, 204,
211
activists 3, 1145, 147
groups 84, 104, 107, 196
311
fictitious 234, 56
financial
crisis 729, 127, 2939
insecurity 12, 65, 79
institutions 11, 459, 63, 90,
205, 267
reform 129, 2245, 288, 299
see also IFIs; SAPs
First World 106, 140, 164
food 301, 349, 69, 1568, 185, 195
insecurity 46, 166, 270, 285, 287
foreign
aid 49, 73, 194, 284
investment 20, 74, 284, 2945
fragile states 4, 101, 2819
frameworks see CDF
France 73, 77, 181
see also Paris Declaration
freedom 135, 70, 757, 97, 106,
1823
as development 1689
from fear 26970
of speech 175, 179, 228, 248, 258
free trade 71, 78, 140, 167, 295
see also NAFTA
fundamentalism 835, 118, 188
funding 12, 8, 85, 118, 191200,
262
organisations 13542, 157,
1767, 2101
see also IMF; World Bank
GAD (Gender and Development) 37,
112, 116, 1434, 203
GCB (Global Corruption Barometer)
2601
gender 36, 29, 3240, 94, 210, 257
discourse 1435
equality 846, 1128, 14550,
200
mainstreaming 143, 14750
policy 1489
power 127, 206, 221, 2401
subordination 103, 1123, 196,
277
see also GAD; language
gendered 1157, 147, 198, 238
genealogies 34, 163
geographically 34, 48, 112
geo-political 6970, 281

Germany 73, 138, 153
global
capital 6977, 204
consensus 94, 159, 165
corporations 119, 279
development 4, 241, 275
economy 71, 73, 225, 284
market 70, 94, 2724
peace 281, 2834, 2889
poverty 4850, 94
shifts 270, 275
South 83, 1357, 2757, 305
see also GCB
globalisation 3, 12, 24, 2939, 53,
6979
and social capital 123, 12631
policy 267, 287, 293
see also neo-liberal; USA
GM crops 1589
goals 2, 6, 139, 164, 24951, 2759
see also MDGs
good governance 76, 90, 163, 2057,
227, 246
terminology 24, 101, 15,
2931, 2658, 27882
governance see crisis; good governance; World Bank
government
accountability 84, 163, 181
corruption 21820
legitimacy 139, 196, 223
see also conservative; democratic; Reagan administration;
Thatcher government; UK
Gramsci, Antonio 120, 1778, 180
grassroots 20, 172, 1858, 2001, 305
action 928, 245
level 869, 194
organisations 1367, 1917, 249
women 1149, 197
greenhouse effect 21, 24
happiness 201, 41, 54
harmonisation 4, 8, 3940, 21521,
239, 257
hazards 25, 601
see also moral
headcount ratio 467
health
care 63, 1035, 113, 165, 2089,
262
education 46, 101, 208
see also public
Hegel, Georg 1778, 182
hegemony 15, 79, 94, 98, 1778,
2756
helping 4, 42, 48
hierarchy 103, 1179, 145
higher education 789
Hindu 82, 1189
hiring 195, 293, 296
horizontal accountability 200, 203,
211, 248
household 467, 116, 130, 178, 260
human
capital 125, 205
environment 2068
human rights 90, 1424, 14950,
188, 196, 2739
and development 31, 36, 85,
16373, 266, 2756
movements 11, 817, 106, 135,
2458
violations 172, 248, 251
see also promotion; United
Nations
humanitarian 148, 200, 20711,
273, 2779, 283
intervention 21, 207, 278
hurrah words 2, 176
hyphenation 15, 64, 153
identity 82, 867, 190, 278
ideology 102, 704, 87, 901, 180,
2868
see also counter-ideology; neoliberal
IFIs (international financial institutions) 712, 748, 130, 223,
2278, 238
imagery 5364, 108, 189, 195, 211,
281
imagination 21, 120, 1801, 192
IMF (International Monetary Fund)
57, 719, 127, 193, 2667, 2848
legitimacy 79, 127
programmes 75, 90, 2238
INDEX
imperialism 7, 1234, 131, 138

incentives 51, 614, 74, 217, 227,
2939
inclusion see social
income 35, 4665, 71, 238, 294
generation 76, 1157, 194
poverty 35, 756, 119, 224, 285
independence 62, 1379, 197, 206,
2848
India 708, 159, 210, 21820, 232,
25860
advocacy 79, 1809
women 62, 1119
indicators 6, 105, 116, 1568, 167,
237
see also quantifiable indicators
indigenous 778, 119, 142, 191,
2867
individualism 3, 108, 147
industrialisation 1923, 302, 37,
703
inequality 47, 65, 758, 1018, 115,
172
see also economic
information technology 54, 69, 71,
79, 272, 294
insecurity 2708
see also financial; food
insurance 501, 55
see also social
intellectual 3, 60, 92, 105, 115, 296
traditions 12731, 154, 1634,
2056, 236, 266
inter-faith dialogue 82, 867
international
aid agencies 358, 83, 107, 189,
2034, 2357
community 169, 197, 23640,
265, 2737, 2814
currency 737
donors 197200
elites 8, 192
trade 19, 24, 72
see also IFIs; IMF
international development
community 11, 2824, 2889
discourse 102, 168, 199
law 166, 272, 2745, 283
313
policy 4, 817, 156

see also DFID
internet 16, 29, 70, 188, 190, 258
intervention see donor intervention;
humanitarian; military
intifada 1947
investment 307, 55, 141, 164, 250,
267
agreements 713, 78, 139
see also foreign; private
Iraq 39, 79, 226, 272, 275
Israel 83, 194
Japan 73, 215
jargon 2, 113, 205, 223
justice 41, 239, 2456, 271, 274, 278
see also economic; social justice
Kenya 3, 258
keywords 23, 3641
knowledge management 9, 143,
293300
Knowledge Bank 9, 205, 2949
see also World Bank
Kyoto Protocol 15960
la langue de bois (language of
evasion) 45
labour 707, 115, 169, 209, 226
market 5064, 246
rights 1024, 186, 228
see also wage
Labour governments 302, 39, 156
language 102, 45, 5365, 260,
2701, 274
of capacity building 205
of civil society 1813, 18892
of development 16, 146
of empowerment 93, 11620
of gender 14350
of rights 71, 103
see also development buzzwords;
le langue de bois
Latin America 769, 1016, 1123,
1379, 175, 238
law 60, 1779, 258, 278, 286, 296
courts 170, 228, 2457
reform 116, 164
see also international
leadership 76, 92, 199, 2169,

2256, 305
legitimacy 6, 21, 55, 89, 223, 272
crisis 2836
see also government; IMF; NGOs
lending 117, 165, 177, 226, 294, 298
lexicon 23, 29, 39, 549, 114, 305
see also development
liberalisation 29, 64, 702, 77, 90,
167
see also economic
liberation 923, 137, 181, 194, 288
theology 1123, 205
linguistic 5, 53, 65, 112
crisis 145
linkages 124, 156, 1878, 1912,
1967
livelihoods 10, 77, 1538, 271
living standards 46, 71
loans 33, 736, 127, 220, 224, 294
lobbying 159, 185, 187, 2089, 217
lost words 12, 15
love 13, 41
macro-level 59, 76, 95, 1856, 192,
294
mainstream development 4, 79,
113, 74, 95, 145
mainstreaming 6, 144, 158, 169, 237
see also gender
major donors 114, 221, 258
Malaysia 9, 756, 232
management
systems 83, 130, 143, 148, 172
see also conflict; knowledge
management; New Public
Management; results-based;
risk
mandate 165, 228, 269
manipulation 53, 117, 293, 296
mantra 10, 116, 241, 265
marginalised 2, 77, 93, 103, 192,
235
and excluded 41, 59, 276, 286
groups 8, 40, 172, 182, 1859
women 11420
market economy 55, 69, 74, 93, 228
see also global; labour
Marxism 82, 91, 1778
mass
-based 175, 1857, 1926, 201
media 107, 190, 211, 248
MDGs (Millennium Development
Goals) 45, 49, 94, 1179, 1446,
285
means testing 578, 612
media 104, 115, 18790, 2501, 258,
2756
see also mass; newspapers
message 45, 85, 128, 180, 18992,
232
metaphors 53, 57, 231
Mexico 13542, 204, 2101, 2456,
298
micro-credit 76, 115, 118, 206
microfinance 111, 1189, 147
middle-class 61, 77, 1058, 183, 189,
195
Middle East 83, 194
military 73, 78, 2718
intervention 277, 284, 289
regimes 101, 106, 1758
minimum standards 2278, 246
ministries 301, 34, 114, 117,
21820, 239
minorities 101, 170, 182
mission 49, 156, 294
mobilising 172, 18592, 194, 210
modern state 2715
modernisation 15, 701, 907, 106,
128, 195
monoculture 11, 77
monopoly 178, 262, 271, 274
moral
hazards 51, 601
high ground 6, 165, 1713
imperatives 2, 45, 262
motivation 11, 50, 112, 129, 281,
289
movements see civil society; human
rights; social; women
Mozambique 215, 219, 238
multilateral
aid agencies 49, 113, 89, 165,
176
donors 8, 258
multinational corporations 12, 119,
167, 188, 261
INDEX
Muslim 817
mutual accountability 203, 2112
myths 1, 64, 74
NAFTA (North American Free Trade
Agreement) 90, 204, 2989
narrative 7, 10, 2401, 271
national
development 74, 199, 221, 274
security 83, 2715, 279
natural
environment 215, 187, 190
resources 19, 24, 73, 115, 156,
279
needs 4, 3541, 46, 556, 8990,
170
neo-liberal
globalisation 75, 8990, 945,
978, 298
model 7879, 1069, 119,
2978, 300
policy 5, 11, 49, 712, 78, 193
project 1012, 295
states 12, 69, 71, 757, 205, 240
Nepal 23940
networks 79, 124, 1539, 1758,
195, 2757
New Public Management 8, 11, 306
newspapers 1901
NGOs 13542, 193201
agendas 8, 195, 199200, 206,
20910
elites 198200
legitimacy 188, 196201, 210,
276
see also capacity building; development; Northern
Nigeria 90, 286
non-places 4, 235, 2389
normative 172, 226, 240, 247, 262,
282
commitment 67, 160
connotations 2, 14, 23, 155, 183
Northern
agencies 13642
NGOs 209, 212
novelty 4, 14, 156
nutrition 46, 116, 165
315
ODA (Overseas Development

Administration) see overseas
development
OECD (Organisation of Economic
Co-operation and Development)
40, 57, 73, 140, 217
see also DAC
oil 23, 301, 39, 164
opinion 140, 142, 190, 197, 250, 259
oppression 91, 956, 112, 115, 172,
211
organisations see aid; CSOs; funding;
grassroots; OECD; WTO
Orientalist 835
origins 45, 10, 701, 111, 206, 262
orthodoxy 57, 92, 2178, 278
overseas development 305, 84, 130,
141
ownership 15, 98, 288
see also country ownership
Oxfam GB 86, 1439, 157
Pakistan 845
Palestine
civil society 193201
PAR (Participatory Action Research)
89, 913, 95, 98
paradigm
maintenance 9, 2936, 299300
shifts 13942, 282
Paris Declaration 8, 29, 40, 21520
participation 25, 145, 8999, 135,
138, 305
and empowerment 12730, 141,
231
rights 170, 1723
see also civil society; PAR; political; popular; PRA; women
partners 40, 135, 13841, 20312,
21920
partnership 67, 326, 64, 13542,
2079, 212
passive 5962, 181, 191, 197, 200
patriarchy 113, 138, 186
peace 13, 41, 82, 166, 2701
building 23541, 2769
process 196200
see also global
people-centred advocacy 7, 18591

PLA (Participatory Learning and
Action) see PAR
planning 4, 7, 19, 95, 160, 305
see also action planning
pleasure 13, 41
policy documents 3941
political
accountability 179, 266
agency 12, 213
agendas 5, 1756, 257
consensus 5, 218
culture 106, 185, 195
discourse 202, 179
elites 180, 271
participation 93, 97, 1446, 168,
200, 2401
power 73, 958, 139
violence 10, 204, 271, 277
will 20, 45, 489, 186
see also ethical; geo-political;
socio-political
pollution 21, 23, 27
poor
definitions 23, 135, 3140, 45,
60, 207
see also deserving poor; work
popular
education 92, 98, 1125
participation 1901, 1978
resistance 89, 92, 198
popularity 6, 101, 13, 21, 55, 259
post-colonial 30, 90, 113, 267, 2817
post-conflict 2389, 276, 278
post-war 78, 23941
post-modernism 123, 127, 131,
1889
poverty
alleviation 47, 901, 934,
1167, 282
elimination 31, 35, 47
eradication 2, 117
reduction 2, 19, 318, 75, 140,
157
see also dollar-a-day poverty;
global; income; PRS
power
and conflict 6, 1235, 131, 144
and empowerment 11122
relations 57, 98, 105, 1458,

172, 1868
see also corporate power;
decision-making; gender;
political; state
PPPs (private-public partnerships)
see partnership
PRA (Participatory Rural Appraisal)
89, 95
practice see best practice; social
practitioners 14, 98, 118, 185, 192,
236
see also development
private
consultants 746, 157
corporations 12, 712, 78,
25961
investment 33, 63, 74
sector 107, 129, 169, 228, 251,
293
see also PPPs
privatisation 29, 707, 90, 117,
1289, 227
and social protection 634
see also security
professionalisation 7, 193, 196, 200,
210
progress 4, 25, 1434, 158, 232, 285
see also social; technological
progress
projection 7, 172, 295, 299
promotion 21, 63, 1239, 278, 2937
of human rights 150, 165, 172
see also social justice
property 23, 58, 223, 270
proposals 1, 4, 89, 140, 199
protection see social
PRS (Poverty Reduction Strategies) 8,
4551, 75, 93, 21524
psychological 125, 198
public
accountability 2512, 276
advocacy 7, 185192
authority 2746
health 46, 91, 225
relations 19, 185, 203, 218
sphere 108, 1778, 181, 2001
see also New Public Management; PPPs
INDEX
PWC (post-Washington Consensus)

1279
qualities 24, 101, 13, 165, 199, 215
quality control 2489, 299
quantifiable indicators 9, 40, 1412,
216, 246, 267
racism 83, 138
radical transformations 89, 98,
1015, 114, 137, 143
rational choice 95, 1246
Reagan administration 72, 92
recipients 8, 13541, 190, 197, 200,
218
reciprocity 612, 211
recovery 89, 98, 267
recycling 23, 159
redistribution 12, 41, 74, 112, 238
of resources 164, 171
reduction see poverty
referents 3, 5, 15, 282
reflection 1, 14, 41, 144, 251, 261
reform 11, 156, 38, 63, 989
see also economic; financial;
law; social; state
regimes 55, 97, 117, 139, 182, 272
see also authoritarian regimes;
military
reinvention 3, 5, 14
relationships see partnerships; social
religion 34, 22, 817, 113, 257
remedies 810, 170
repetition 2930, 169
replication 2312
reporting systems 7, 40, 1557,
198204, 217, 24650
see also World Bank
resistance 124, 53, 65, 789, 201,
275
see also popular
resources see natural; redistribution;
transfer
respect 13, 41, 82, 170, 212, 282
results-based 8, 15, 89, 1189
management 9, 231, 237
revolution 69, 92, 172, 17882, 272,
294
see industrialisation
317
rights see democratic; ESC-rights;

human rights; labour; language;
participation; United Nations;
universal rights; women
rights-based 2, 6, 65, 194, 272
approach 118, 149, 16373, 196
Rio conferences 1539
risk 45, 507, 2112, 270
management 2779
see also contingency risks
Rome Declaration 39, 2156
roots 15, 703, 91, 98, 2045, 271
see origins
rules 73, 1034, 1468, 2167, 238,
2937
rural 3240, 62, 101, 183, 188, 305
development 29, 31, 35, 901,
1137
see also PRA
Russia 758
see Soviet Union
safety 210, 270, 273 278
see also social
sanction 12, 77, 247, 251
San Salvador 208
SAPs (Structural Adjustment Programmes) 728, 90, 95
scheme 29, 35, 578, 624, 136, 305
scientific 3, 25, 60, 223, 233, 298
advancement 702, 157
see also social
secularism 4, 81, 86
securitisation 269, 273, 277
security 34, 10, 145, 31, 26979,
2819
privatisation 2724, 277, 283
see also collective; external;
national; social; state
selectivity 578, 63
self-awareness 41, 91, 209
self-determination 11, 137, 197,
200, 286
self-help 7, 48, 125, 146, 1779, 211
groups 76, 1178, 286
see also solidarity
semantics 23
sharing 96, 108, 170, 188, 203, 232
SHGs (self-help groups) see self-help
shibboleth 2, 22
shifts 2936, 1135, 119, 128, 160,
261
see also global; paradigm
silence 5, 14, 84, 97, 145, 299
slogan 21, 1789, 208
social
assistance 58, 612
benefits 645
bonds 245
capital 3, 67, 14, 12332, 205,
262
dumping 645
exclusion 1015, 125, 205
inclusion 59, 125
insurance 45, 501, 568
movements 5, 8, 134, 1019,
1113, 193201
practices 14, 23, 25, 1035
progress 19, 69, 200
protection 3, 5365, 257
relations 23, 1045, 108, 207
reform 105, 185
safety 50, 57
science 5, 124
security 539, 186, 2701
solidarity 556
see also ESC-rights; globalisation; privatisation; social
change; social justice; World
Bank
social change
and development 95, 1123,
188, 198, 210
socialism
social justice 3, 12, 15, 1920,
81, 1078
strategies 118, 1867
promotion 548, 1123, 155
socio-economic 1, 258, 285
socio-political 113, 155, 158, 185,
1889, 193
solidarity 12, 15, 41, 1078, 187, 212
and self-help 7, 1779
see also social
South, the 7, 23, 74, 13541, 1557,
205
see also global
South Africa 78, 130, 20811
South Asia 1135

South Korea 756
Soviet Union 702, 178, 225
SpaceTimes 989
speech 19, 145, 258
see also freedom
stakeholders 89, 95, 1379, 246, 278
standards 55, 1679, 207, 271, 2867
see also environment; living
standards; minimum
standards
state
building 1946, 274
power 78, 93, 17581, 274, 283
reform 178, 2456, 278
security 2725
-society 10, 179, 2657
see also fragile states; modern
state; neo-liberal; Third World
statements 2930, 41, 1657, 171,
199, 259
status 65, 205, 258, 265, 273
of women 1169, 196
of words 2, 5, 10, 21, 45, 89
quo 945, 125, 13840, 1667,
171, 217
story 14, 198, 235, 240, 285
strategies see communication strategies; development; PRS; social
justice
subordination see gender
subversion 5, 1112, 119
Sudan 226, 284
supply-side 57, 63
surveillance 11, 245, 248, 274
sustainability 46, 21, 39, 94,
15360, 275
agendas 15960
sustainable development 36, 8990,
1539, 165, 188, 190
symbolic 14, 20, 1068, 126, 183
role 6, 160
synonyms 54, 135, 195, 205
targeting 457, 578, 63
technical assistance 304, 226, 262
technological progress 23, 6972
technologies 24, 116, 272
see also information
INDEX
terminology 53, 1134, 116, 1434,

148, 167
see also aid
territory 33, 78, 2823
terrorists 239, 276
Thailand 756
Thatcher government 32, 72, 92
theology see liberation
think tanks 53, 74, 239
Third World 20, 907, 1123, 1649,
193, 2847
state 177, 281
threat 925, 207, 246, 2701, 277,
283
TNCs (transnational companies)
723, 77
toolkits 7, 185, 192
top-down 40, 91, 113, 212, 276
toxic 19, 24, 24650
trade
unions 83, 1047, 125, 1769,
190
see also free; international;
NAFTA; WTO
traditions 8, 125, 146, 206, 217, 236
see also intellectual; Western
traditions
training 334, 59, 62, 115, 198,
2058
workshops 205, 220
trans-ideological 101, 245
transfer 479, 62, 149, 164, 248, 296
of resources 142, 203, 209
transformative 13, 70, 958, 111,
116, 241
potential 7, 96, 238
transgression 13, 249
translation 4, 136
transnational corporations 23, 69,
714, 77, 97
see also TNCs
transparency 171, 2278, 2589, 282
and accountability 11, 29, 118,
142, 167, 24552
trend 224, 39, 58, 118, 236, 246
see fashion; vogue
trust 25, 1245, 135, 181, 20810,
212
building 40, 142, 198
319
truth 1, 9, 2459, 272

UK 32, 65, 77, 1567, 204, 220
government 29, 37, 723, 146,
216, 258
underdeveloped 83, 90, 137, 283
UNDP 165, 169, 189, 205, 299
unemployment 22, 5062, 757,
101, 182, 287
United Nations
Declaration of Human Rights
63, 245
see also UNDP
universal rights 102, 1078, 209,
2768
urban 1921, 3640, 77, 1014, 189,
305
elites 8, 183, 192, 1957
women 32, 115
USA 198, 246, 24950, 259, 293, 296
welfare 549
globalisation 707, 272
commerce 140, 1579, 287
utopian 47, 177
verbal 144, 147, 165
victims 27, 51, 579, 61, 210
Victorian 4750
violence 20, 101, 127, 23540,
26979, 286
see also domestic; political
violent conflict 31, 23540, 274,
276, 285
virtual 75, 189, 200, 237, 241
virtue 2, 164, 181, 209, 263
vocabulary 35, 29, 181, 228, 278,
305
sharing 40, 102, 108, 143
vogue 3, 19, 21, 29, 57
voluntary 60, 93, 107, 1719, 187,
249
vulnerability 45, 501, 75
wage 61, 74, 2989
labour 24, 64
war 10, 13, 70, 23541
see also civil war; Cold War;
post-war
war on terror 815, 26970, 275
Washington 30, 155, 171, 267, 299

consensus 712, 75, 176, 205,
295
see also PWC
wealth 65, 6972, 76, 97, 140, 2736
weapons 272, 275
websites 23, 117
welfare 46, 614, 74, 1124, 205, 273
see also USA
well-being 13, 192, 46, 69, 1558,
282
Western Europe 54, 64, 72, 82, 175,
181
Western traditions 85, 95, 177, 195,
2356, 262
White Papers 2941
WID (Women in Development) 112,
116, 149, 2167
women
activists 85, 113, 145
discourse 32, 379
empowerment 11120, 14150
movements 76, 101, 105, 1945
participation 113, 197
rights 90, 145, 149, 1879, 196,
199
see also grassroots; India; marginalised; status; urban; WID
word
counts 302, 38
frequency 312, 36, 3940, 144
see also catchwords; code words;
hurrah words; keywords; lost
words; status
work
for the poor 31, 378
see also boundary work; development; labour
workfare 58, 623, 65
World Bank
and social capital 123, 12731
economists 57, 2935
funding 63, 719, 210, 215, 220,
2237
governance 167, 1767, 246,
2657
knowledge 205, 2825, 288,
295, 299300
reports 912, 2589, 261, 299
systems 33, 38, 904
see also DEC
WTO (World Trade Organisation)
65, 71, 73, 789, 287
Zimbabwe 226, 245
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Deconstructing Development Discourse

Buzzwords and Fuzzwords

Praise for this book

This critical dictionary of development discourse will be enormously useful

Deconstructing Development Discourse

Andrea Cornwall and Deborah Eade

Published by Practical Action Publishing in association with Oxfam GB

Introductory overview buzzwords and fuzzwords: deconstructing

Words count: taking a count of the changing language of British aid

Participation: the ascendancy of a buzzword in the neo-liberal era

Citizenship: a perverse confluence

10. Taking the power out of empowerment an experiential account

11. Social capital

12. Reflections on relationships: the nature of partnership according

13. Talking of gender: words and meanings in development

DECONSTRUCTING DEVELOPMENT DISCOURSE

18. NGOs: between buzzwords and social movements

19. Capacity building: who builds whose capacity?

20. Harmonisation: how is the orchestra conducted?

21. Country ownership: a term whose time has gone

22. Best of practices?

23. Peacebuilding does not build peace

24. The uncertain relationship between transparency and

26. Good governance: the itinerary of an idea

27. The discordant voices of security

28. Fragile states

29. Knowledge management: a case study of the World Banks

viii DECONSTRUCTING DEVELOPMENT DISCOURSE

The extraordinary thing about Developmentspeak is that it is simultaneously

DECONSTRUCTING DEVELOPMENT DISCOURSE

childrens books and poems, cannot conceivably be regarded as universal

Introductory overview buzzwords and

The lexicon of development

DECONSTRUCTING DEVELOPMENT DISCOURSE

BUZZWORDS AND FUZZWORDS

Alongside words that encode seemingly universal values, the lexicon of

DECONSTRUCTING DEVELOPMENT DISCOURSE

novelty disguises continuities between the three Cs of the age of colonialism

BUZZWORDS AND FUZZWORDS

DECONSTRUCTING DEVELOPMENT DISCOURSE

BUZZWORDS AND FUZZWORDS

DECONSTRUCTING DEVELOPMENT DISCOURSE

BUZZWORDS AND FUZZWORDS

As results-based management has hit mainstream development agencies, a

DECONSTRUCTING DEVELOPMENT DISCOURSE

The end of ideology?

BUZZWORDS AND FUZZWORDS

DECONSTRUCTING DEVELOPMENT DISCOURSE

neo-liberal policy prescriptions raises further questions. Harrison asks: does

Out with the old, in with the new

BUZZWORDS AND FUZZWORDS

Leveraging incorporated buzzwords

DECONSTRUCTING DEVELOPMENT DISCOURSE

Incorporated buzzwords may, indeed, serve as bridges from one domain

BUZZWORDS AND FUZZWORDS

Reclaiming meaning through reconfiguration

DECONSTRUCTING DEVELOPMENT DISCOURSE

BUZZWORDS AND FUZZWORDS

DECONSTRUCTING DEVELOPMENT DISCOURSE

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