A study of governance by the UN Economic Commission for Africa demonstrates how much progress has been made across the continent and exposes areas that are still weak. James Eedes reports.

The complex relationship between forms of government, the effectiveness of state and economic development has been the subject of scholarly research for more than a hundred years. Though political scientists and philosophers have yet to arrive at the definitive conclusion, a rough blueprint is emerging.

Development cannot occur without peace and security over a sustained period. And there is seldom peace without good governance. Such a concept of good governance includes an enabling political and legal environment for economic growth and promotes the equitable distribution of the fruits of growth, particularly in the African context.

Growth must be coupled with policies that attack poverty and promote education, health and social safety nets. This requires sound macro-economic management, institutional reform and investment in human resources development. Sustained poverty reduction results when growth is equitable.

The capable state builds an enabling environment for the private sector to generate economic growth, jobs and income. At the core of this is political and policy stability, and a fair and consistent application of the rule of law. Corruption is vigorously combated and resisted.

Is democracy necessary for this? Indeed, is democracy the best form of government compared, say, with a form of benign dictatorship?

Experience is growing that democracy is the best form of government in Africa, improving development outcomes. And the good news is that Africa is making progress, says KY Amoako, executive secretary for the UN Economic Commission for Africa (UNECA).

Recently, Mr Amoako offered some initial observations based on UNECA’s first continent-wide study to measure and monitor governance in Africa. He highlights four positive trends in Africa: democratic transitions, political inclusiveness, voice and accountability, and economic management.

Achieving democracy

Many African countries have made significant strides in the area of democratic transitions, evolving from authoritarian or military regimes to more democratic dispensations. Mr Amoako points to a new social pact emerging, in which state institutions and processes are gradually being reconstructed to promote the values of good governance.

Recently, in Benin, Ghana, Kenya, Madagascar, Senegal and Zambia, incumbent regimes have been defeated in multi-party elections. More than 10 African countries are going to the polls again this year. The average voter turnout in general elections is nearly 75% of the registered population – an exceptional figure when compared with any other region of the world.

The majority of experts in the 28 countries surveyed reported that their nation’s political system permits competition and pluralism. “We have also entered an era of greater political inclusiveness. The majority of Africa’s experts believe that the democratic framework for conducting politics is accepted as legitimate by all social and political groups,” Mr Amoako says.

Constitutions are being rewritten across Africa, involving widespread consultation with civil society. Examples are found in Kenya, Nigeria and Zambia. Uganda has also gone through a similar process.

Fortunately, many African countries are increasingly seeking to ensure that the executive and legislative arms of government reflect the profile of their people in regional, ethnic, racial and religious terms. For example, Nigeria has enshrined in the constitution the principle of accommodating the country’s diversity in all state appointments.

Political participation

The third positive trend is toward expanded voice and accountability. Various new avenues are being created to allow citizens to participate in the political process and express their demands, without fear of retribution. This, in turn, is making the government more responsive to its constituents.

The study shows that most governments in Africa are expanding the role of non-state stakeholders in decision-making. The process of democratisation in Africa has brought an explosion in the growth of civil society groups that promote and defend various interests. “Over half of the experts polled believe that civil society is encouraged by government to function independently. Significantly, 39% of experts surveyed felt that civil society contributed effectively to the promotion of accountability and transparency in government,” Mr Amoako says.

In Mali, for example, when submitting proposals to the Council of Ministers, each minister is required to submit a list of non-governmental actors consulted in the process of policy formulation. In northern Mali, local FM radio stations broadcast the annual evaluation of commune performance and its consequences for capital budget support.

The media is now widely acknowledged as having an important role to play as a public watchdog in exposing corruption and abuse of power, defending human rights and upholding democratic transparency through the effective monitoring of elections.

Less than a decade ago, Ghana had only state broadcast media channels. Now, in contrast, 10 out of more than a dozen Ghanaian newspapers are independently owned, only two out of 40 radio stations are state-owned, and two of the three television stations are in private hands.

That said, the executive branch of government in many countries has, on its own, undertaken several measures to ensure checks and balances both within its own institutions and in the wider governance system. The creation of watchdog agencies like the ombudsman and inspector or minister of governance in some African countries is a significant example of such initiatives. Other countries have established independent auditor-general offices, charged with enforcing leadership codes of conduct, investigating decisions that might involve fraud, and generally promoting good governance in the country.

Other areas still await transformation. Less than half of the experts surveyed (46%) perceived their legislators as being above corruption and always being effective in holding the executive accountable. A fair minority in the countries surveyed, nearly 20%, felt that their national legislature was corrupt.

The view of the judiciary is no better. Only one-third of the experts in the survey felt that the system was above corruption. And a significant minority (26%) felt that it was hardly independent of other branches of government.

Combating corruption

Efforts to deal effectively with these critical challenges to good governance are being made. Several governments have established anti-corruption commissions. In Kenya, a year after taking power, the new ruling party has been seized with a fervour to prosecute those who had siphoned off state funds. New legislation has established the Kenya Anti-Corruption Commission. Twenty-three judges currently face tribunals to answer charges related to corruption and Nairobi’s mayor has been asked to resign or face wide-ranging embezzlement charges.

Corruption still flourishes in Africa because most of the regulatory institutions remain weak, lack autonomy or are shady themselves. Over one-third of elites polled deem watchdog institutions to be controlled by the executive.

Economic improvement

The fourth dimension to the concept of the capable state is better economic governance. In the area of public financial management and accountability, the study shows that more countries are running smaller deficits, meeting their targets for revenue mobilisation, managing their tax systems more effectively, improving fiscal transparency, and creating institutions and arrangements for better auditing of public funds.

The study also shows that most African countries are channelling a greater proportion of their GDP into social services than into the military, though in only 11 out of 26 countries where data were available do outlays for health exceed 10% of total expenditures.

UNECA’s Expanded Policy Stance Index measures policy performance in macroeconomics, poverty reduction and institution building. The five worst performers in 2003 were either in conflict or recovering from recent conflict, and consumed by considerable debt and political tensions. The top performers were well-managed with solid reform agendas and a record of political stability and good governance.

The top five – Botswana, South Africa, Mauritius, Namibia and Tunisia – have maintained sound economic fundamentals with lower foreign debt, budget deficits, inflation and interest rates. All have healthier institutions of policy analysis and coordination and more competent civil services. Pro-poor policies are more effective. And laws and regulations are more predictable and transparent, and are applied more uniformly.

“As our governance survey shows, there is considerable progress to report on many fronts. However, much more has to be achieved before we can say that the capable state is a norm in Africa,” says Mr Amoako.

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