good Governance

perspective

Corruption, Participatory Development

and Good Governance
Anil Biswas

orruption India scored 2.9 out of 10. Since

C is o n e o f t h e
most serious
consequences of
poor governance.
A country with
widespread corruption invariably
then, her ranking has kept falling. A
survey conducted by Transparency
International cites India as far
worse than China and refers to her
as a country where bribery and
corruption are among the worst
has low investment rates, poor in the world. In a developing
economic growth and limited country, resources are always scares
human development. There are and demand greater than supply.
few countries in the world, like The recipients of public services
as Indonesia, Kenya, Angola, are mostly the poor, illiterate,
Madagascar, Paraguay, Nigeria, ignorant and weak. Thus it is the
Bangladesh, and India where it ordinary men who suffer most from
pervades every corner of public misgovernment and corruption. In
It is very necessary life. The public will find the cost of
India, even the highly educated
delivering this service inordinately
lack the power to protest. There is
to introduce social high. Corruption has no positive
no accountability or transparency
effects. It hits the poor hardest,
auditing in all among public servants. It is difficult
it makes a mockery of financial
to define corruption. There is
systems and it actively works
public related against the legitimacy of the state. no consensus on the definition
of corruption, because what is
works, which is one Poverty, development, growth
and investment all suffers at the perceived to be a corrupt activity
is based on a societys acceptance
important measure hands of corruption. Its effects are
and level of tolerance. Corruption
extremely damaging, far reaching
of combating and all pervasive. For India, the is generally defined as a kind of
worlds largest democracy, it illegitimate favor for immediate or
corruption is a painful irony that despite a future personal gain for doing an
good foundation of democratic official work which one is supposed
institutions, she has a score of only to do free of charge and objectivity.
2.7 out of 10 in 2002,was ranked 71st In most of the developing countries,
out of 102 countries for corruption. corruption is like a virus. It has
As per Transparency Internationals infected almost every social and
Corruption Perception Index (2005), economic activity.

The author is Assistant Professor in Political Science, Acharya B. N. Seal College, Cooch Behar, West Bengal.

38 YOJANA January 2013

Conceptual Framework of The objective of economic and a bottom up style of development
Participatory Development - In social development in developing in order to remedy the government
December 1989, the organization countries is to set in motion led approachs shortcoming,
for Economic Cooperation a process of self reliant and specifically by focusing on
and Development (OECD)s sustainable growth through which qualitative improvements in local
Development Assistance social justice can be achieved. societys participation.
Committee (DAC) released a Development within a developing
society aims at building into society This participation must
policy statement on development
the mechanisms that will ultimately not be transient; it must entail
cooperation in the 1990s. It
permit self reliant growth with the sustainable upgrading of
cited sustainable development,
out foreign assistance, at sustaining participation quality. For this to
concern for the environment, and
stable growth patterns for economic happen, the underlying conditions
participatory development as
development in harmony with the must be met to facilitate the long
the most important issues on the
environment, and at providing term process of participation and
development aid agenda for the
equal and appropriate opportunities its self reliant sustainability. The
1990s. Addressing the importance
to take part in development to long term process of participation
of participatory development, it
overcome income gaps, regional is raising the awareness of local
states that stimulating productive
energies of people, encouraging disparities, and inequalities people, forming community groups,
between men and women. For this upgrading their requisite resource
broader participation of all people
to be possible, the central focus of management abilities, to strengthen
in productive processes, and a
development is not necessarily to Gram Sabha and Gram Sansad,
more equitable sharing of their
boost production of material goods; providing full autonomy to local
benefits, must become more central
instead, it should be to foster and governments, creating norms or
elements in development strategies
enhance peoples capability to have internalizing their mechanisms
and development cooperation.
a role in their societys development. and improving capabilities for
This strategy is premised on four
To this end, people should be external negotiations. The shaping
essential approaches, like as
willingly involved in a wide and planning of this participatory
a) investment in human resources range of development activities, process requires both a long term
in the broad sense, including as agents and beneficiaries of vision and willingness to selectively
education and training, development. It is this participation improve and bolster traditional
meeting the needs for food that is important. Participatory community systems as tools of
and health care, and efforts to development as an approach to development.
eradicate AIDS and narcotics development that is designed to
problems; Conceptual Framework
enhance sustainability and self
of Good Governance - The
b) strengthening of political reliance and to achieve social
philosophy of good governance
system, government justice through improvements in the
has its origin dated back to the
mechanisms, and legal systems quality of peoples participation.
early days of human civilization.
in which democracy and
Participatory development is not The description of Indus Valley
respect of human rights are
an attempt to replace the top down and Vedic civilizations bear the
secured;
development approach with a local details of the concept. Today
c) effective use not only of community led approach. Rather the term Governance has come
central governments, but also it is a view point that simultaneously to occupy a central place in the
of local organizations and self stresses the need for the government development discourse. Among
government, nongovernmental led approach in terms of national the several development strategies
organization (NGO)s, and the level economic planning and governance is considered as an
private sector; and coordination of development important element. There are many
d) the establishment of open and planning and the demerits of means of achieving good result in
competitive market economy widening disparities and worsening governance. Traditional texts such
structure to mobilize individual poverty inherent in that approach as Upanishads and in later period
initiative and dynamic private when used alone. Participatory Kautilyas Arthashatradelinate
enterprise. development attempts to introduce many methods of achieving the

YOJANA January 2013 39

good results with has gained new democratic governances, which of people to participate in
momentum after the collapse is essential for better human social decisions is a valuable
of the totalitarian states in East development. characteristic feature of
European countries and the cry for good society. It is intimately
Now a days the term good
democracy in several developing connected with demands of
governance is very much in vogue.
countries of Asia, Africa and Latin equity. It also plays a crucial role
Three major International bodies
America. in the recognition of societal
focus on different aspects. As
values and in generating
The term government and the World Bank defined in 1994:
public understanding. The
governance appear synonymous in good governance is epitomized
participation in order to be
dictionary. Government refers to by predictable, open and enlighten
effective needs to be informed
formal and institutional processes policy making; a bureaucracy
and organized and therefore
which operate at the level of nation imbued with a professional ethos;
depends upon the availability
state to maintain public order and on executive arm of government
to the subjects, freedom of
facilitate collective action. It is accountable for its actions and a
association and expression on
a formal institution of the state strong civil society participating
one hand and existence of an
with their monopoly of legitimacy, in public affairs; and all behaving
organized civil society on the
coercive power. It refers to various under the rule of law. United
other.
forms of political system or the Nations Development Programme
manner in which state exercises its (UNDP) takes a broader view of ii) Consensual in orientation -
power in utilizing socio- economic good governance as comprising Good governance must ensure
resources. Governance signifies mechanism processes and institution that there a regular and dynamic
new process of governing or through which citizens and groups process of consensus making.
changed condition of ordered articulate there interests, exercise That is first of all there should
rule of new method by which their legal rights, meet their legal be consultation between the
society is governed. Rhodes defined obligations, and mediate their government functionaries,
governance in eight ways. Thy differences. The Economic and NGOs and the public; second
are minimal state, governance Social council for Asia and the stage should be consideration
according to private enterprise Pacific (ESCAP)similarly considers of different views; third stage
model, new public management, governance good only if genuine should be taking their consent
good governance, a social steps to minimize corruption on a broad area; and finally
cybernetic system and a series of are taken; if the views of the consensus should be attempted
self organized social network. The minorities and the voices of the after conflict resolution.
Commission on Global Governance most vulnerable sections of society iii) A c c o u n t a b i l i t y - T h i r d
defines governance as governance in decision making is ensured, and feature of good governance
is the sum of many ways individuals if it is responsive to the present is accountability that
and institutions, public and private and future needs of a society. It has is from policy makers to
manage their common affairs. It is identified eight salient features of implementers all should be held
a continuing process through which good governance: i) participatory in responsible for their omissions
conflicting and diverse interests may nature, ii) consensual in orientation and commissions. Every body
be accommodated and cooperative iii) accountable iv) transparent at the helm of affairs should be
action taken. Governance is the v) responsive vi) effective and answerable for allocation, use
creation of structure or an order, efficient vii) equitable and inclusive and control of public fund and
which cannot be extremely imposed viii) rule of law. other assets.
but is the result of the interaction i) Participation - Participation iv) Transparency - The attribute
of multiplicity of governing and of the people either direct or of transparency requires that
each others influencing actors. indirect in the development information is freely available
The Human Development Report, and decision making process is and the decisions are taken
2002 has given a new perspective one of the corner stone of good or enforced in a manner
to governance by terming it as governance. The availability that adheres to the rules and

40 YOJANA January 2013

 regulations. It also means central focus on raising the quality of Corruption is a challenge
that enough information is participation by local societies and to Participatory development
provided and that it is provided thus better achieving self reliant and good governance - India is
in easily understandable forms and sustainable development and a worlds largest democracy. The
and media. social justice, is one important form survival of Indian democracy for
v) Responsiveness - The attribute of people oriented development. well over six decades despite the
of responsiveness for good Good governance is the foundation countrys diversities is in many
governance necessitates that of participatory development ways a remarkable achievement.
all public institutions and in as much as it provides the However, no one can deny that
their processes strive to serve government functions needed to the countrys contemporary socio-
all stakeholders within a promote participation and create the economic and political problems
responsible time frame. environment in which participatory are complex. There are a number
vi) Effective and efficient - Sixth processes take place. of serious problems that need to be
feature of good governance is met in the years ahead. These main
Good governance as a function
efficiency and effectiveness. of government does not refer
problems are: i) divisive tendencies,
Efficiency means doing works solely to support for participatory
ii) extremism, iii) unemployment,
at a first speed and effectiveness development; as participatory
iv) regionalism, v) illiteracy, vi)
means doing things effectively corruption and nepotism. Out of
processes evolve, good governance
focusing on results. Thus both these problems, corruption and
develops into such functioning that
timelines and result orientation nepotism are the major problem
supports wider and more mature
are to be ensured. of our country today. Many of us
peoples participation. In this sense,
vii) Equitable and inclusive - A have simply accepted it as a sad
participatory development promotes
societys well being depends reality. But unless we are able to
good governance in its turn. The
mostly on ensuring that all its fight corruption, the benefits of
projection of the concept of good
members feel that they have development can never be sheared
governance onto the national equitably and democratically.
a stake in it and do not feel system an orientation of a state
excluded from the mainstream then progressively boosts peoples The starting point of corruption
of society. This requires all trust in their government, inasmuch in public offices seems to be in
groups, particularly the most as, through good governance, the political arena beginning with
vulnerable, have opportunities government services improve in electoral corruption. The general
to improve or maintain their effectiveness and efficiency. Thus election decide who rules over
well being. in the long run, good governance more than 120 crores Indians. The
viii) Rule of law - The last feature evolves into stronger aspirations political parties in their quest for
of good governance is the for further democratization. The power spend more than thousand
rule of law, i.c. every body is strength of a states desire for crores of rupees on the Lok Sabha
equal before the law, on the democracy also influences the election yet nobody accounts for
one hand, and there should process of formation of political the bulk of the money so spent
be justice system through due and administrative structures and there is no accountability
process of law for all, on the and governments capability to anywhere. Nobody discloses the
other hand. It means that all translate this national stance into sources of the money. There are
rules and regulations should action. In turn, this, too, influences no proper accounts and no audit.
be similar to all the citizens in the evolution of participatory From where does the money come
similar circumstances. development. Participatory nobody know. Electoral corruption
Relationship between development and good governance in India seems to have increased
Participatory Development and are consequently interrelated, as in recent years primarily because
Good Governance - Participatory are the two component elements of high cost of campaigning and
development and good governance of good governance, the ideal questionable practices indulged in
are related in the following way: orientation of the state and the ideal by the political parties. The absence
participatory development, with its functioning of government. of proper regulation and monitoring

YOJANA January 2013 41

of the expenses both by candidates Panchayati Raj Institution is a The Administrative Vigilance
and the parties has given rise to a backbone of the rural development Division was established in 1955. It
widespread criticism that electoral in India. Panchayati Raj Institution assumed the overall responsibility
corruption has been increasing over is an institution which empowered and provided the necessary drive,
the years without any effective rural people and increased mass direction and coordination to
monitoring. Report highlights that participation in development ensure sustained and vigorous
the cost of conducting the Lok process. All centrally sponsored action by individual ministers
Sabha election has been estimated and state schemes are implemented and departments. The Central
to be close to Rs. 1100 crores. by the Panchayati Raj Institution in Vigilance Commission (CVC)
The figure for similar estimated rural India. But due to corruption in consists of three directorates, viz,
expenditure for conducting election Panchayats functionaries, benefits Directorate of general compliant
to the Lok Sabha in 2004 has of all programmes do not reach and redness, the Central Police
approximately Rs. 1093.06 crores. actual beneficiaries in rural India organization and the Directorate
Out of this government money and people are not interested of Vigilance. It undertake an
every general election spent more to participate in development enquiry into any transaction in
and more money by the political works. Similarly people who live which a public servant is suspected
parties, which is not accountable. 70 in urban areas are not interested or alleged to have acted for an
percent of the populations live in the to participate in development improper purpose or in a corrupt
rural India. Rural India continues to works. manner. It also investigates into any
suffer from resource deficits in such complaint against a public servant
Anti Corruption measures
basic spheres as health, education, who has exercised or refrained
in India - Indian democracy
drinking water, sanitation, housing from exercising his powers for
has taken various measures for
and infrastructure. There are improper or corrupt purposes.
anti corruption in public life.
corruption within the NREGS and Apart from this Central Vigilance
Government of India set up Special
the Indira Awas Yojana. Mr. Mohit Commission (CVC) there is a State
Police Establishment (SPE) in
Sen, a member of the Planning Vigilance Commission (SVC) in
1941, to investigate cases of bribery
Commission, has remarked that each state. The state vigilance
and corruption. On April, 1963, the
the Rural Employment Guarantee commission deals with matters
Central Bureau of Investigation
scheme suffers from low potential. within executive powers of the state
(CBI) was set up. The CBI plays
The fanfare with which no fewer concerned. At the Divisional level,
a supplementary rule to the states
than 100 centrally sponsored a Divisional Vigilance Board has
police forces. The cases which
schemes with in allocation of Rs. been set up. At the District level,
essentially and substantially involve
137000 crores (2010 -2011) were District vigilance Officer heads the
central government employees
announced had raised hopes of
or their officers, or certain state vigilance organizations.
accelerated rural development,
government employees are referred
conversion of liabilities into assets The Administrative Reforms
to the CBI. CBI can also take up
and reduction of social and economic Commission recommended in 1966
cases against employees of statutory
dispirits between the rural and urban the adaption of the Ombudsman
bodies or public undertakings
population. The programme were type of institution in India. The
established and financed by the
focused on poverty alleviation, Congress government under Mrs.
government in India.
universal education, employment, Indira Gandhi proposed to set up the
healthcare, infrastructure, drinking Tw o t y p e s o f v i g i l a n c e institution of Lokpal at the central
water, sanitation, social security, organizations at the department level, but the bill lapsed in1971.
rural electrification, urban renewal level exist: a) the Administrative This bill introduced in Parliament
mission, housing and rural Vigilance Division of Home in many times in 1977, 1985, 1989,
connectivity. The benefits of these Affairs and b) the Vigilance Units 1998, 2001and in a strong form in
flagship schemes have not trickled in the respective ministers and 2011. government of India drafted
down to the targeted beneficiaries department and their counterparts the bill and tabled in Lok Sabha in
due to of corruption. in the public sector undertakings. 2011. But this bill even today is

42 YOJANA January 2013

hung due to the unwillingness of combating corruption. India is a (D.A) at time in parity with current
our parliamentarians. land of tremendous contrasts, not market. On the other hand it is
least in the way she cherishes such also necessary to give appropriate
The government of India
values as sacrifice and spirituality incentives and pay structure to
introduced Public Procurement Bill
points proudly to their prominent elected representatives of central,
in Lok Sabha to check corruption
place in her past and boasts of her State and local level governments.
and ensure transparency in public
rich cultural heritage of honesty At present, parliamentarians and
procurement. The bill seeks to and purity. Today in the era of Legislators of some states have taken
regulates award of government globalization it is very necessary handsome incentive and pay. But
contracts of over Rs. 50 lakh with to cultivate this type of value added Local government representatives
the object of ensuring transparency, education which makes honest do not receive this type of incentive
accountability and probity. The mind of people; those are able to or pay. It is necessary to give
bill of objects and reasons will combat corruption. them this type of remuneration as
codify the basic norms to regulate
The Right to Information Act same as parliamentarian and state
public procurement and provide for
is a strong measure to combat Legislators are received.
deferring bidders found engaged
in corrupt practices. The bill also corruption in public life. It explains Corruption is a syndrome
provide for Jail term ranging from in information as any material in any that affects modern societies and
six month to five years for public form, including records, documents governments. It is an obstacle
servants found guilty of demanding means, emails, opinions, advices, to development. In this area the
and accepting bribes from bidders press releases, circulars, orders, log media has been solely responsible
of government contracts. books, contracts, reports, papers, for curbing adventurous officials
samples, modules, data material and politicians from dipping into
Conclusion and suggestions for held in any electronic form and the till which is intended to meet
combating corruption - Corruption information relating to any private development needs. Investigative
is not something that a government body which can be assessed by a Journalism is responsible for
on its own can eradicate. In any public authority under any other nipping in the bud many a corrupted
case political leaders simply use it law for the time being in force. So person.
as a quick, easy way to win votes, it is able to combat public officers
making catchy slogans for suits their from corruption. It is very necessary to take
political interests. Prime ministers initiative of civil society for
from the late Gulzari Lal Nanda to Monopoly power of the combating corruption from public
Dr. Manmohan Singh declared a war bureaucrats is required to be life. Anna Hazares movement
on corruption but achieved absolutely reduced. Mass participation in against corruption makes a new
nothing. The first condition of development process is able to dimension among civilians in
combating the corruption in public control the bad works of the India. Government is also today
life is to educate all people of bureaucrats. It is not desirable to
trying to takes same initiative by
India. Right to Education Act give a full authority to an individual
passing a strong law for combating
(2009) is a landmark initiative official. Officials should be given
corruption.
of the government to strengthen competing jurisdiction. It may so
the education system in India. happen that a client is not well It is very necessary to
It provides free and compulsory served by an official. He may go introduce social auditing in all
to another competitor which will public related works, which is one
education to all children between 6
tend to drive the levels of bribes important measure of combating
to 14 age groups. This act made it
to zero. corruption from public life. Free
mandatory to guardian of a child to
send their child to nearby school for and frank people participation in
Another effective way to
education. So, Right to Education local institutions able to reduce
reduce corruption is to generate
is able to educate everyone who corruption will from people life by
an incentive and appropriate pay
the process of social auditing. q
is able to combat corruption. structure for public officials. To
Value education is needed for give them Dearness allowances (E-mail: [email protected])

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