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Preface
This book is an attempt to better understand government service delivery in a developing country context. In this volume, public services refer to services where some type of government delivery of an activity is perceived to be necessary, desirable and inevitable. Although such services might in theory be feasibly delivered by either the market or even the community (such as by voluntary action), there is often a widespread belief that it is necessary and desirable for such services to be delivered by the public sector. For example, the delivery of police services to maintain law and order is a service that few believe should be delivered in any sphere other than the public sector. Similarly, social housing and primary education are also widely delivered as public services. Taxes are the price for services provided by the government. Whether one is considering the police, education or health care, all are funded primarily through taxes, and these services are essential for the smooth functioning of a society. The main rationale for government involvement in these services which, in principle, could be provided by the private sector is that the government will not withdraw or escape responsibility in cases where a profit is not delivered.
These services often require decisions by the providers that are inherently imperfectly organized, or incomplete, or unevenly distributed, thus rendering them more suitable for public delivery. Some of the elements of such service delivery that thus need to be managed effectively include the following:
1. Use of resources: Resources here refer to the material, staff, funds and other assets which are utilized to provide these public services. The effective use of these resources could be pursued either to directly deliver services, to issue and monitor contracts for other providers or to enter into partnerships with private or voluntary sector providers to deliver the service. These resources also need to be effectively used to maintain an enabling financial and secure environment and provide a guarantee for proper judicial procedures under the rule of law.
2. Information and awareness: Asymmetry of information leads to a disconnection in the effective utilization of any public service. Public education through proactive engagement with key audiences; public relations through stakeholder
support to adapt, learn and understand the services; and other outreach efforts are required to ensure the smooth and effective flow of services to the target populations.
3. Efficiency of delivery mechanisms: Integration mechanisms, such as technology, process innovations and human integration, impact on system performance. Indicators of efficiency in public service delivery mechanisms include departmental consistency in programme definition; fixing tangible measureable outputs across the process; support for informed decision-making through timely data analysis, especially of outcomes; and selecting the right mechanisms from various functions across the departments.
4. Accountability and responsibility: Accountability measures typically focus on how well policies, plans, programmes and people are performing. Policy planning, strategic planning, and operational planning and budgeting processes all incorporate accountability and responsibility. Accountability and responsibility are seen as basic drivers for the success of public service delivery.
Throughout the developing world, the oft-told story is one of the failures of public services to deliver the services people need and want. The problem is often of these service delivery efforts being ad hoc, small scale and often fragmented. For example, the widespread failure to deliver social protection for citizens in the form of social insurance schemes has often resulted in governments deciding to turn a blind eye to the informal economy as an alternative social protection mechanism that can act as a substitute for the failures of public service delivery. The resultant vicious cycle is that fewer taxes are collected, meaning that public welfare services cannot be delivered, resulting in yet further reliance on the informal economy as a survival practice for populations marginalized from the formal sector and formal welfare services. How to break such vicious cycles is an ongoing issue in many developing economies. Indeed, it is not just social protection that is partial and ad hoc in the developing world. Few developing countries have anything like a comprehensive level of provision of public services in many other realms, including the provision of health and education, and there is little investment in workplace wellbeing, such as health and safety provision or training and skills development.
Indeed, there is widespread recognition of these circumstances by national and international bodies who sometimes advocate that private firms and the non-profit sector should be able to compete with the government for the provision of such public services. The common argument is that this will decrease the unit costs for producing goods and services and therefore improve efficiency. Community participation approaches or decentralization, therefore, is increasingly becoming part of the public service management and delivery, as direct service delivery by the public sector is replaced with private and third sector provision. Two debates dominate this discourse about the roles of local organizations in public service delivery. The first issue concerns how to make local organizations perform effectively, and the second concerns the relative functions and balance of government organizations, NGOs, community groups and private organizations in service delivery.
This book seeks to provide case studies of a heterogeneous array of efforts in urban and rural areas to deliver public services which may have some promise of wider applicability and transferability. The outcome will be to propose an analytical framework in the form of a typology and categories of administrative need (collaboration, accountability, etc.) in the concluding chapter. The assumption throughout is that the role of the government in developing countries must be modified to accommodate new actors, including non-profit, non-governmental organizations and other forms of voluntary activity, as important development catalysts if encouraged. Analytically, their service delivery roles can be separated from advocacy and developmental roles without distorting their overall contribution. During the past decade, participatory approaches under the auspices of private and community partnership structures have emerged in several spheres of service delivery, such as resource management, local infrastructure development and resource distribution. Governments are also developing strategies for economic growth by making local organizations the central actors. The three main pillars of public delivery evaluation, namely efficiency, flexibility and reach, are being strategized for maximum effectiveness. These changes in service delivery include different ways to make savings in public expenditure, improve quality by including civil society groups, make the operations more transparent with the hope to increase the chances of policy effectiveness and make use of diverse processes including privatization and externalization. A review of the history of public service delivery highlights three clear time periods. The initial “Weberian” approach towards the problem of inadequate services in infrastructure, education, health, enforcement and regulations was based on developing a centralized bureaucracy to supply a top-down and uniform public service. This was not successful. In this approach, the social and political processes which necessitate interactions between citizens and the state were overlooked. The second time period, in the not-so-recent past, sought solutions in technology and technological systems for a coherent approach to service delivery, implemented by an impersonal, rules-driven provider. We do see some clear successes, but the failures caused most practitioners to doubt its universal applicability. Consequently, the concepts of public participation, accountability, transparency and good governance have emerged in more recent times. In the current scenario, technology, state, citizens and social systems interact simultaneously through formal organizational structures. While this does create institutional heterogeneity, the consequent emergence of solutions is practical, applicable and acceptable to the citizens.
As the role of the state gets redefined in developing countries, the corresponding increase in the role of the market and non-profit sectors emerges as a viable new alternative for service delivery. Focusing primarily on collective action solutions rather than the private sector, this book will also attempt a way of classifying the myriad forms of service delivery and the factors required for success. Political, sociological, economic, managerial and other perspectives are investigated for the classification of good practice. The models reviewed will discuss public service provision in the past using service performance and accountability through top-down hierarchical control bureaucracy as well as the new public management model which is more inclusive, local and influenced by the specific needs of the target population.
To investigate these issues, this volume is divided into four parts. The first part discusses issues of assessment and monitoring of performance in public health, taking case studies from countries as diverse as Columbia, India and the Philippines. The first chapter analyses the 2011 health reforms in Columbia. The first reforms in the health system took place in the early 1990s which included the creation of insurance companies to support the poor and creation of affordable benefit packages for the same. Authors Oscar Bernal and Juan Camilo Forero look at the second phase of reforms in 2011 by analysing the satisfaction and trust levels of the main stakeholders. The second chapter, by Rajib Dasgupta and others, characterizes the variables that impact health systems, determines the influence of governance environments on access and client behaviour, and identifies potential modifiable factors of governance. The third chapter looks at access to medicine in public hospitals. The authors Santarupa Bandhyopadhyay, Arijita Dutta and Arpita Ghose analyse accessibility in government-run hospitals in the Indian state of West Bengal. They look at two issues, namely status of access and the barriers to access. The final chapter in this part explores the policy agenda on hospital regulatory procedures and systems of licensing in the Philippines. The authors Oscar P. Ferrer and Maria Clarisa R. Sia evaluate the processes and practices adopted to attain social development.
The second part investigates infrastructure development and delivery. The chapter by Ajit Kumar Vasudevan, Anand Kumar and R. K. Mittal derives a model for cloud computing and examines the impact of the proposed model on Indian environment, especially government policy and infrastructure. It also proposes a model leveraging the existing infrastructure. The second chapter reviews the existing legislative systems for small- and medium-scale industries in Fiji. The author Salvin S. Nand highlights regulatory compliance difficulties from the public service delivery lens, using both qualitative and quantitative data. The next chapter by Ashish Verma, S. Velmuguran and co-authors evaluates the current state of mobility in five representative Indian cities and discusses the implications of the observed patterns. The final chapter in this part discusses the vital issue of water security, where the authors Subodh Wagle, Sachin Warghade and co-authors present findings of the analysis of Water Regulatory Agencies and related reforms in India and highlight the scenarios of aggravated threats to water security and sustainability.
The third part within this book investigates administrative capacity and performance in the countries of the Russian Federation, the Philippines, Macedonia and India. The author of the first chapter, Daria Prisyazhnyuk, looks at the professionalization of the Russian medical professionals. The chapter analyses the process and develops a model for professionalization of the medical services. In the next chapter on administrative capacity and performance, authors Joseph Capuno and Maria Melody S. Garcia investigate 12 cities and municipalities in the Philippines where fiscal decentralization has been introduced since 1991. They rate the performance on different aspects and discuss the overall performance of the local government. The chapter on Macedonia by Jadranka Denkova discusses the need for control mechanisms and penalty provisions for responsible working of the administration. The last chapter under this part analyses the accountability of the Karnataka state police in India. The authors Meena Nair, Kollapudi Prabhakar and Prarthana Rao
study police stations and police personnel on their handling of complaints and suggest an agenda for reforms through these learnings.
The fourth part evaluates reach and execution for rural and marginalized populations. Discussing housing for orphans, Sergey Vinkov, in the first chapter, reviews the policy guidelines and practices regarding orphan care, with a focus on their housing needs. The outcome is discussed in the light of the social adjustment skills and the mobility of orphans. The second chapter by authors Linda M. Penalba and Merlyne M. Paunlagui presents the role of informal credit providers to enable small corn farmers to use corn varieties and discusses the effectiveness of the credit policy reforms in the Philippines for improving corn farmers’ access to credit. The third chapter discusses the cash grant scheme for the homeless in the Philippines. The authors Ada Colico-Aquino and Jungbu Kim investigate the policy process of the programme with particular emphasis on programme design, key actors, resources and their interactions. The last chapter in this part looks at the role of the Philippines government in private-led agriculture technology innovation. The authors R. D. T. Baconguis, Linda Penalba, D. Elazegui and E. Dumayas present how the informal credit providers enable the small corn farmers to use genetically modified (GM) corn varieties and how effective are the credit policy reforms in improving corn farmers’ access to credit.
We invite you to review these case studies of public service delivery in developing countries. As an under-researched topic, there is a good deal of not only good practice that is transferable across the developing world but also many lessons to be learned so that the mistakes made in one nation are not repeated in others. If this book speeds up the development of effective public service delivery across the developing world, then it will have achieved its major objective. If it helps further meet the needs of the citizens in the developing world that are provided through public service delivery mechanisms, then it will have achieved its intention.
Bangalore, India
Anjula Gurtoo
Sheffield, United Kingdom Colin Williams
Acknowledgements
This book is the realization of, on one hand, the diligent effort of the authors who have patiently supported us throughout the making of the book and, on the other hand, the successful completion of the International Conference of Public Policy and Governance (PPG 2012), organized by the Department of Management Studies, Indian Institute of Science, Bangalore, and the Public Affairs Centre, Bangalore.
First and foremost thanks are due to Dr. Suresh, Director, Public Affairs Centre, and Dr. Kala Sridhar, co-chair of PPG 2012 and Professor, Institute of Social and Economic Change, Bangalore (earlier with the Public Affairs Centre), for being very supportive partners of PPG 2012 and for their encouragement towards this book.
We will also like to thank Prof. M. H. Balasubramanya, Chairperson, Department of Management Studies, Indian Institute of Science, and Dr. P. Balachandra, Department of Management Studies, Indian Institute of Science, for providing a supportive environment, encouragement and active discussions to make the conference, and pursuit of this book, a success.
Without the patience and assistance of Sagarika Ghosh and Nupoor Singh of Springer Publications, this book would not have been published. We are very thankful to them. Finally, this acknowledgement will be incomplete without thanking Ms. Kalaivani Pillai, who has supported us in several stages of this book, including compilation, organization and formatting.
Any errors that remain are ours.
Anjula Gurtoo Colin Williams
Jadranka Denkova
Contributors
Narendra Kumar Arora INCLEN Trust International, New Delhi, India
Satarupa Bandyopadhyay Department of Economics, Bethune College, Calcutta, India
Oscar Bernal School of Government, University of Andes, Bogota, Columbia
Joseph J. Capuno School of Economics, University of the Philippines, Baguio, Philippines
Sanjay Chaturvedi Community Medicine, University College of Medical Sciences, New Delhi, India
Ada Colico-Aquino Department of Social Welfare and Development – National Capital Region, Manila, The Republic of the Philippines
Rajib Dasgupta Centre of Social Medicine and Community Health, School of Social Sciences, Jawaharlal Nehru University, New Delhi, India
Rowena dela Torre Baconguis Institute for Governance and Rural Development, College of Public Affairs and Development, University of the Philippines Los Baños, Los Baños, Laguna, Philippines
Jadranka Denkova Faculty of Law, University “Goce Delcev”, Shtip, Republic of Macedonia
Malvika Dixit Department of Civil Engineering, Indian Institute of Science, Bangalore, India
Elvira E. Dumayas Center for Strategic Planning and Policy Studies, College of Public Affairs and Development, University of the Philippines Los Baños, Los Baños, Laguna, Philippines
Arijita Dutta Department of Economics, University of Calcutta, Calcutta, India
Dulce D. Elazegui Center for Strategic Planning and Policy Studies, College of Public Affairs and Development, University of the Philippines Los Baños, Los Baños, Laguna, Philippines
Oscar P. Ferrer College of Social Work and Community Development, University of the Philippines, Baguio, The Philippines
Juan Camilo Forero School of Medicine, University of Andes, Bogotá, Colombia
Kalyan K. Ganguly Indian Council of Medical Research, New Delhi, India
Maria Melody S. Garcia German Institute for Development Evaluation, Bonn, Germany
Arpita Ghose Department of Economics, Jadavpur University, Calcutta, India
Anjula Gurtoo Department of Management Studies, Indian Institute of Science, Bangalore, Karnataka, India
Jungbu Kim Department of Public Administration , KyungHee University, Seoul, The Republic of Korea
Prabhakar Kollapudi Participatory Governance Research Group, Public Affairs Centre, Bangalore, India
Anand Kumar Electrical and Electronics Engineering, BITS- Pilani, Dubai, United Arab Emirates
Damen Haile Mariam Public Health and Health Economics, Addis Ababa University, Addis Ababa, Ethiopia
R.K. Mittal Director, BITS-Pilani, Dubai, United Arab Emirates
Meera Nair Participatory Governance Research Group, Public Affairs Centre, Bangalore, India
Salvin Saneel Nand School of Law, The University of Fiji, Lautoka, Republic of Fiji
Ashok Patwari International Health, Boston University School of Public Health, Boston, MA, USA
Merlyne M. Paunlagui Institute for Governance and Rural Development, University of the Philippines Los Baños, Los Baños, Philippines
Linda M. Peñalba Institute for Governance and Rural Development, College of Public Affairs and Development, University of the Philippines Los Baños, Los Baños, Laguna, Philippines
Tejas Pol Resources and Livelihoods Group, PRAYAS, Pune, India
Daria Prisyazhnyuk Department of Sociology, National Research University –Higher School of Economics, Moscow, Russian Federation
T.V. Ramanayya Indian Institute of Management, Bangalore, India
Prarthana Rao Participatory Governance Research Group, Public Affairs Centre, Bangalore, India
Mandar Sathe Resources and Livelihoods Group, PRAYAS, Pune, India
Maria Clarisa R. Sia Centre for Policy and Executive Development, University of the Philippines, Baguio, The Philippines
Sanjay Singh Indian Institute of Management, Lucknow, India
Ajith Kumar Vasudevan Process Development, Etisalat, Abu Dhabi, United Arab Emirates
S. Velmurugan Traffic Engineering and Safety Division, Central Road Research Institute, New Delhi, India
Ashish Verma Department of Civil Engineering and Centre for Infrastructure Sustainable Transportation and Urban Planning, Indian Institute of Science, Bangalore, India
Sergey Vinkov Higher School of Economics, National Research University, Moscow, Russia
Subodh Wagle Tata Institute of Social Sciences, Mumbai, India
Sachin Warghade Tata Institute of Social Sciences, Mumbai, India
Colin Williams Management School, University of Sheffield, Sheffield, UK
About the Editors
Anjula Gurtoo is an Associate Professor at the Indian Institute of Science, Bangalore, India. Her research interest is in the area of public policy, and she has published in the area of institutional reforms and decentralization, urban infrastructure, informal entrepreneurship, rural economy, and energy and environment. She has been a fellow of the Social Science Research Council, New York, and of the University of Leeds, UK. She has been awarded the Pt. Jawaharlal Nehru National Award (2010–2012) for outstanding contribution in the field of Public Policy and Social Science, by the Department of Science and Technology, Government of Madhya Pradesh, India, and Social Science Research Award (2009) by the International Development Research Centre, Canada – special mention for overall contribution to research and also for best paper in the category ‘rural innovation systems’.
Colin Williams is a Professor of Public Policy at the Management School, University of Sheffield, UK. Colin’s broad research interests are in re-theorizing the nature of economic development and investigating the implications for public policy. Spatially, his interests range across the full spectrum from local and regional economic development in the UK through to the restructuring of Western economies, post-socialist societies and the third (majority) world. Much of his work focuses upon rethinking the meanings of ‘economic’ and ‘development’, which directly feeds into the work of the Centre for Regional Economic and Enterprise Development (CREED), University of Sheffield, UK. Colin currently serves as editor of two journals – the International Journal of Sociology and Social Policy and the International Journal of Community Currency Research. Some books authored by him are Rethinking the Future of Work: Directions and Visions (Palgrave Macmillan, 2007), The Hidden Enterprise Culture: Entrepreneurship in the Underground Economy (Edward Elgar Pub, 2006), A Commodified World? Mapping the Limits of Capitalism (Zed Books, 2005), and Cash-in-Hand Work: The Underground Sector and the Hidden Economy of Favours (Palgrave Macmillan, 2004).
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