NATURE AND CHARACTERISTICS OF GOOD GOVERNANCE
3.3 OBJECTIVES OF GOOD GOVERNANCE
Good governance intricately enhances good policy-making and good policies which in turn enhance good governance (AAPAM, 2000: 48).
The reverse is also true, Le. bad policies result in bad governance and hinder good governance. Well-implemented policies are likely to create an environment in which good governance flourishes.
Good governance has many benefits; for example, it is seen as likely to facilitate the development of liberty and economic growth.
Cloete (1999b: 86-87) is of the view that there is no generally accepted set of objectives for good governance. Public services must be provided to improve the lives of the people and implement the objectives of the government. The policy objectives that must be achieved include the following:
• Representivity and equity in resource control and allocation;
• Developmental growth focus;
• Participatory, responsive, people-centred;
• Democratic rights, stability, legitimacy and transparency;
• Political and financial accountability;
• Professionalism and ethics;
• Flexible, effective, efficient and affordable processes;
• Co-ordination, integration and holism of services;
• Creative, competitive and entrepreneurial practices;
• Sustainability.
In AAPAM's view (2000: 24-25) good governance promotes sustainable development and improvements in the physical and economic environment. For example, under deficient governance, investors tend to seek quick returns on their investments by adupting short-term strategies.
3.3.1 Good governance as a quality of governance
According to Goldin and Heymans (in Maharaj 1999: 119-120) at least four conditions will decide whether governance reflects the quality of good governance required in a democratic South Africa.
The rust is the quality of democratic institutions and practices.
Government cannot govern in isolation from those it serves. It C8Jlnot drive good governance programmes without broad public support and participation. The electoral support for the state remains its primary source of legitimacy and accountability. The multi-faceted nature of good governance agenda demands, however, that government remain flexible and open to accommodate other forms of participation (Goldin & Heymans in Maharaj, 1999: 119). While elected democratic institutions must remain primarily accountable, they could be supplemented by other institutional innovations that strengthen the interface between government and civil society.
Secondly, the different spheres of government should be enabled to play their rightful roles, guided by resources and capacities. The Constitution and other legislation have firmly asserted the developmental roles of provincial and local governments.
Good governance programmes can best be pursued if these spheres are able to plan, budget and implement policies and programmes sensitive to their spheres of influence. Goldin and Heymans (in
Maharaj, 1999: 120) argue that the system of intergovernmental relations will be critical to managing development in all spheres. This may require more centrally driven policy-making and management at this stage. Thornhill (in Kuye et ai, 2002: 50) also supports this view.
According to him intergovernmental relations are not an event, but should rather be considered as a number of interrelated actions and interactions by politicians and appointed officials involved in the different spheres of government.
Thirdly, a good governance programme should never be a phrase that is repeated again and again. Its dynamism, flexibility and relevance will be secured through rigorous debate, a willingness to change and innovation. A young democracy like South Africa expects its leadership to listen to and engage its citizens while taking the lead to ensure that debates do not stall initiatives (Goldin and Heymans in Maharaj, 1999: 120).
Finally, the good governance programmes depend on partnerships.
Government is aware of its capacity constraints and faces so many formative challenges that it simply cannot deal with all the country's development needs. Private and community organisations have comparative strengths and capacities ready to be utilised in support of the good governance programmes. The state must ensure that services are accessible, that taxpayers do not get exploited by profiteers and that the public good is served. It must build capacity within all spheres of government to fulfill its political and delivery obligations. But it also has an interest in refining the regu18tory frameworks and incentives to enable it to draw on other resources (Goldin and Heymans in Maharaj, 1999: 120).
The foremost challenge is to refine and continuously improve frameworks while maintaining and accelerating the momentum of delivery.
3.3.2 Government reorientation and good governance
Changes in the governance context of African countries have had consequences for the entire government administration system, on the structures, functions, and processes for good governance. In practical terms, there has been a reorientation of governments throughout the continent. According to Adamolekun (1999: 12) the governance reorientation has four main features, namely (a) a reduction in the role of the state in national economic management;
(b) an enhanced role for subnational governments; (c) a new public- private balance in respect to the production and provision of goods and services; and (d) efforts aimed at achieving improved performance in public management.
3.3.2.1 Role of the state
The economic crisis of the late 1970s and 1980s and the lessons of international experience from the success of market-friendly economies have combined to force a redefinition of the role of the state in good governance.
Adamolekun (1999: 12) maintains that the state should provide an enabling environment for private sector economic activities, by implementing appropriate economic policy reforms and providing the necessary legal and regulatory framework.
3.3.2.2 Subnational governments
After independence, attention was focused on the central government in most African countries. This was consistent with the idea of the commanding role of the state. Subnational and local governments were generally underdeveloped. The governance reorientation of the 1990s is toward enhanced roles for subnational and local governments because of the failure of the centralised states (Adamolekun, 1999: 13).
3.3.2.3 Public-private balance
In most African countries in the 1960s and 1970s the private sector was generally underdeveloped. The domination of the national economy by the state was a necessity under these conditions.
According to Adamolekun (1999: 13-14) the new commitment to a market-friendly economy has moved virtually every African country in the direction of promoting private sector development. This in turn has led to the emergence of a new public-private balance: more involvement of the private sector in national economic management and some reduction of the state's role while emphasising its responsibility to provide a business-friendly policy environment and appropriate legal and regulatory frameworks.
3.3.2.4 Improved performance in public management
An objective of improved performance in public management is often linked to the reduced role of the state in controlling everything. Most countries have launched the 'new public management' movement.
The NPM, according to Adamolekun (1999: 14), seeks to apply market principles to governmental administration, with an emphasis on competition, contracting and customer orientation. It 81so emphasises merit-based recruitment and promotion and increased autonomy for managers with corresponding responsibility, performance-related pay and continuous skills development and upgrading. There is also an emphasis on performance measurement, with particular attention to the delivery of services.
3.3.3 Role and scope of the state in good governance
There is a senous and genuine concern that African governments have taken over more functions than their resources can handle, resulting in overstraining the limited capacity and impairment of good governance.
The issues of role and scope of the state in good governance seem to be very critical in most countries for three reasons.
Firstly, in most countries, especially African countries, the state has for a long time been the prime mover in socio-economic life.
Mutahaba et a1 (1993: 20) maintain that in the dawn of independence, the absence of other forces that could endanger dynamism in the economic and social spheres placed the pnmary responsibility for initiating, directing, and even performing the main societal functions on the state. By the 1970s, African governments became partially autonomous authority centers taking initiatives and making significant demands of their own in society.
The second reason relates to the nature of the environment within which the state in Africa prevails. There are structural constraints which demand that in any given society all sectors and agencies have
to be mobilised and involved, at different levels, in confronting the broader challenges. Within such a symbiosis, the definition of roles and scope for each sector becomes important (Mutahaba et aI, 1993:
20).
The third reason refers to the interface that prevails in the relationship between government and society. Since independence in most African countries the objective conditions were such that governments had to take over all the main functions of economic and social life. The government became the only recognised institution in socio-economic management. The demarcation between the various agencies was vague and sometimes arbitrary. Mutahaba et al (1993:
20) say the underlying factor here is the failure to design a proper interface which permits a mutual reinforcement of the role and scope of each factor in governance.