James S. Wunsch

The Failure of the centralized state : institutions and self-governance in Africa

After nearly three decades of post-colonial independence in Africa, the shortcomings of the centralist strategy of nation building and economic development have become evident. Development has stagnated, rural welfare has declined, ethnic conflicts have intensified, civil wars abound and many civilian regimes have fallen to military despotisms or rule as narrow oligarchies. This book seeks to explains why the centralized African state has failed. Contributors relate contemporary African history to theories of organizational behaviour, collective action, constitutional choice, public administration and institutional analysis, arguing that the centralist paradigm is fundamentally flawed in its theories of the basis of social order, the sources of political unity and the origins of economic development. The contributors discuss the breakdown of social processes and structures indirectly caused by the policies of the centralized state and examine the constitutional principles that might provide a basis for more effective national government throughout the African continent.

Regime Transformation from Below: Decentralization, Local Governance, and Democratic Reform in Nigeria

How realistic are democratic-governance strategies that emphasize local governance as a key component? Using Nigeria’s experience in local government and primary health care in the 1980s and 1990s as a case example, the article finds there were substantial shortfalls in local participation and program performance. These were caused by problems in the local political environment and local institutional design, in the national policy environment (particularly in the funding system), and by the stresses of structural adjustment, resource shortfalls, the natural physical environment, and weak leadership. These combined to create poor and inappropriate reward structures and lack of accountability. However, even though the Nigerian case was not successful, most of the specific problems that hurt it are remediable through policy changes at the national level. Several of these were under consideration at the time of the coups of 1992 and 1993.

Refounding the African State and Local Self-Governance: The Neglected Foundation

The political revolution of contemporary Africa has so far largely been limited to the centre and to re-establishing the same institutional forms and processes which failed Africa in the 1960s. These regimes are already showing signs of erosion. This problem can be understood through the theory of public goods. Key collective or ‘public’ goods problems impede the collective action necessary for institutional development. Top-down strategies cannot surmount these problems because they cannot integrate and unify the population or structure consensual and sustained collective action. As currently constituted, national levels of government in Africa will be poor partners with local communities in development, be it of democracy or of the economy. In many cases, national regimes only exist at all because minimal contributing sets or political monopolists controlled, were given, or mobilised the resources to establish constituting rule systems which they used to sustain their existing relative advantages during the break-up of imperial systems. As this advantage is usually at the expense of the majority which lives outside the capitals, resources and policies to improve these areas are slow in coming. The slow, bottom-up process by which a true public constitution is built, one which reflects and elaborates generally held values, is built on existing political relationships, and protects social diversity, has never been allowed to develop. Refounding the African state must resolve these problems if it is to succeed. Ethnically and religiously diverse peoples will rule themselves better under federal and consociational systems which give local leaders space to lead local institutional development, authority to play a role in national governance, a process to develop consensus on central policy and to check the centre when there is no consensus. This requires a foundation of viable, real, developed structures of local governance if it is to succeed.

African Political Reform and International Assistance: What Can and Should Be Done?

President Abdou Diouf of Senegal recently observed that Africa required not just less government, but better government (World Bank, 1989, p. 55). The World Banks 1989 report, Sub-Saharan Africa: From Crisis to Sustainable Growth used these words when it observed that, even were Africa to pursue the World Bank’s extensive list of economic policy reforms, ‘None of these measures will go far, nor will much external aid be forthcoming, unless governance in Africa improves’ (World Bank, 1989, p. 15). The purpose of this paper is to suggest several components of a strategy which the international donors might pursue to facilitate an improvement in Africa’s governance. It will do this in several steps. First it will integrate contemporary research and analysis of Africa’s political problems, and try to draw out of that the dynamics which underlie them. Second, it will suggest several structural changes needed to alter these dynamics. Third it will review the priorities, directions and structures international donors might pursue in their assistance programs to facilitate these structural changes.