Governance Betrayal

Most keenly watched speech of the Prime Minister this 15^th August was specifically noticed for his comments on OROP. In exact words, the PM said “The issue of One Rank One Pension (OROP) has come before every government, each one has considered its proposal, and each and every government has made promises on it, but the problem is still pending to be resolved. After my assuming office as Prime Minister I have not been able to do this by now”.

Through the honest confession of helplessness in inking a decision on OROP, the most decisive leader of “Team India” belittled both the glory of the Red Fort and the occasion of 15^th August that signifies liberation. The red stone mammoth, must have wailed in humiliation when this lament came from no other than a leader, armed with a historic majority of 282 parliamentarians with practically no opposition. The reiteration of his in-principle commitment to OROP while was appreciated, the criminal delay in its implementation has left the nation to debate the compelling reasons behind sluggishness in policy implementations.

The surrender to “due process” by a man, who is convinced of “minimum government and maximum governance”, is not music to any ear that craves for responsive governance. It is definitely though a rude provocation to inquire into why implementation process in government is so painful, fractured and time consuming. The OROP issue surely is not a singular example.

The sordid treatment given to high profile 26/11 attacks is another in recent memory. The then Union Home Minister P Chidambaram termed the attacks, “a game-changer” “Zero tolerance” on terrorism, and assured of adequate resources for a “swift and decisive response” in future. Five years after this, Amir Khan, writing for the Indian Express in November 2014, reported that the Bombay High Court expressed displeasure for not carrying out changes to weapon policy even after the experience of the 26/11 terror attacks that left many police personnel dead as they were not adequately armed. A sense of betrayal thus is the common man’s conclusion.

Why this state of affairs?

One answer came from the man himself. On an earlier occasion the PM said “When I came to Delhi and noticed an insider view, I felt what it was and I was surprised to see it. It seemed as if dozens of separate governments are running at the same time in one main government. It appeared that everyone has its own fiefdom. I could observe disunity and conflict among them”.

No wonder, the judicial forums in the country are clogged with litigations borne out of indifference and inaction on the part of the Government (s). In terms of numbers, as on 01.03.2015 there were 61,300 cases pending before the Supreme Court - the highest judicial forum. Attributing this to growth, largely to transparency and an informed citizenry of recent times would be a fallacy. Let us face it; something somewhere is terribly wrong in the process of Governance.

Where does the malaise lie then?

The malaise probably is not with the vision and directions of the leadership. The rot lies with rusting institutions or implementation agencies that lack a system of accountability. There has been a remarkable growth in internalisation of the paradigm that procrastinating a decision or opting for a “group insurance” by forming committees is a safe, sustainable and profitable idea. The sense of urgency and responsibility, much needed in the current phase of development therefore has evaporated from a bureaucracy that is cushioned with security of job, tenure-linked promotion and secured pension.

In the fast changing world, where tweets shape news, decision making needs to be smarter, for India to attain and maintain a competitive edge over peer nations. For smart governance we need smart system that encourages performers and penalizes lousy souls. Sadly today’s “meritocratic bureaucracy” promotes only unblemished seniority in terms of number of years of attendance in office. The senior most bureaucratic position is occupied by virtue of an over rated rank, secured “once upon a time”. The methodology of seniority by the rank at the time of entry is designed to frustrate any attempts to count real life accomplishments that made a positive difference in the lives of citizens in the process of elevation in the career. Thus it is ensured that the soaring eagle of bureaucracy is the loyal rule book follower and not the one who is a continuously inquisitive, innovative and passionate learner.

The creamy Indian Administrative Service that leads shaping of decision making, oblivious of changing needs of the society is singularly keen in securing its own fort than open new vistas. With few exceptions, it has become more of an “Indian Hopping Service” having mastered the art of quickly slipping out of scene at the time of reckoning accountability. The result without a coordinated approach to setting objectives and standards, and no means of measuring public satisfaction, government initiatives are operated on an inconsistent basis with limited emphasis on improvements. The citizen expectation that their Bureaucracy will ensure professionalism and responsiveness in efficiently serving political governments is almost at its nadir. No wonder, secure jobs fail to earn positive appreciation by the general public.

On the political front, this loss of control over the implementing agencies can be detrimental to highly competitive politics that has been seen to be overthrown over trivialities like “price of onions” leave apart serious issues. The imperfections in arriving at intelligent and workable policy options towards quenching public demand by the bureaucracy apart from impacting public good, has the real threat of marring political careers of achievers in politics, who have a long road ahead.

The Road ahead

The structure and working of bedraggled bureaucracy therefore needs a ruthless inspection. The principles taught to a beginner in economics, in this context if put to practice holds a promise. On the global scale, the human development of recent decades achieved through competition in markets is indicative of the virtue of Competition. Competition has been central to the growth of markets, fostering innovation, productivity and growth. This in turn has lead to creation of wealth and a concomitant reduction of poverty. The resource-less nation known as a little red dot on the world map called Singapore is a practitioner of this idea of healthy competition. Any one returning from Singapore can vouch for its success that transformed a nation into the shortest span of time in recent history. In a unique successful implementation, Singapore bureaucracy ensures that only the best reaches the top. And let us not be surprised to take note that a junior in reality has an opportunity to supervise his one-time boss.

Another way forward is to take learnings from the Dubai Government Excellence Programme (DGEP).  The DGEP recognises and rewards exceptional government employees, departments and initiatives on a yearly basis. Distinguished Team Performance, Distinguished Administrative Initiative, Distinguished Government Employee, Innovators are specific category awards amongst others to recognise and encourage a bureaucracy to be responsive, responsible and accountable. Measuring progress has become something of a positive obsession for the Dubai Government. The DGEP has become a widely admired and followed programme, not only within government circles, but has also interestingly attracted interest from the private sectors. Much to its credit, the DGEP won the United Nations Public Service Award in 2007.

Home-made prescription towards transforming the Indian bureaucracy is contained in the recommendation of Administrative Reforms Commission that essentially argues for infusing competition. It is time to dust it. To translate “Maan ki baat” into “Kaam ki Baat”, taking the bull by the horns is the key. The bureaucracy then will be seen to be run dispassionately by passionate professionals whose identity is merit and not those three letter suffixes after names, and who in the words of our man at 7 Race Course Road are not an assembled entity, but an organic unity, an organic entity, a harmonious whole- with one aim, one mind, one direction, one energy. 

Published on 13th Sep by a friend who picked it up from here for a surprise birth day gift.

http://epaper.centralchronicle.com/index.php?pgno=4&date1=2015-09-13

RWANDISTAN

Published: Afghanistan Times 28 July 2013

UTTAM PRAKASH, RAHUL ARYA*

Imagine you are air dropped somewhere blind folded. As you open your eyes, you see grassy uplands and hills and take notice that the relief is mountainous. You also learn this is a landlocked country with a predominantly rural population. You wish to know more about the place and so you ask a passerby. He is in a hurry, but gives you some quick facts:

The country is heading towards what we can say a “failed state”

There are two major ethnic groups vying for power.

Two million people have died in genocide.

Social, political and economic structures have collapsed.

Until last year aid dependence is more than 40% of the budget.

There's a buzz about a constitutional amendment to enable a third term for the current President. The constitution only allows two terms.

People feel that the international community has not been fair to it.

The skill/capacity of the civil servants is low.

Did you guess it to be “Afghanistan” in 2013?

Sorry! We are referring to Rwanda of 1994, a small middle African country that is half the size of the province of Herat or Kandahar and a little bigger than that of Ghazni. Colonised by Germany in the 19th century, followed by Belgium in the 20th century, the country witnessed genocide in 1994 that killed an estimated million people which was over 10% of its population. Hutus and Tutsis, two major ethnic tribes bayed for blood of each other. Social, political and economic structures had collapsed. In 1994 Rwanda was written off as a failed state. There was indeed a buzz about a constitutional amendment for President Paul Kagame to have a third term. Few had trust in destiny of Rwanda and few believed in its recovery, for it to be able to become strong enough to stand on its own. The fallout of this tragedy was so severe that the then US President regretted, the West regretted, International community regretted for its failure to intervene and prevent this tragedy.

Fast forward to year 2013, Rwanda by every measure, is one of the most successful countries in Africa. Between 2005 and 2012, Rwanda reduced its poverty levels by 12.5% — the highest level ever recorded anywhere in the world. In 2010, Transparency International ranked Rwanda as the eighth cleanest out of 47 countries in Sub-Saharan Africa and 66th cleanest out of 178 in the world in terms of corruption. It is also the safest place to live in the world according to the Gallup’s World Poll report "Global States of Mind: New Metrics for world leaders" published in October 2012. Rwanda has the fastest broadband internet in Africa, according to Ookla’s NetIndex.  Its capital Kigali is popularly known as the safest, cleanest, fastest and more liveable city in Africa.

Post 1994 – what started as unpromising beginning, Rwanda proved its adversaries wrong and is walking strongly on the path of progress and development. A look at the Country Data Report, World Bank on six governance indicators – Voice and Accountability, Political Stability and Absence of Violence, Government Effectiveness, Regulatory Quality, Rule of Law, and Control of Corruption – Rwanda has done exceptionally well considering the 1994 baseline. The percentile growth in five indicators except in Voice and Accountability has seen remarkable growth moving from around 10 percentile in all the five indicators and moving up to almost 50 percentile while in Government Effectiveness and Control of Corruption, it is touching 60 and 70 percentile respectively. The economy has strengthened, with per-capita GDP (PPP) estimated at USD 1,592 in 2013, compared with $416 in 1994. Rule of law and efforts to clear red tape have given it a business friendly climate, leading journalists to call Rwanda the "Singapore of Africa".

Sounds like a fairy tale? You may wish to Google if you have any slightest doubt. The big question is, can Afghanistan go the Rwanda way? Is there something that can be learnt and replicated here? But more importantly, how was this done? Probably the most appropriate word that can explain this miracle is “determination”. The nation accepted its follies, made good of the opportunities available and led its determination to prosperity with determination. The determination of course was from the entire population united.

President Kagame speaking at Harvard Business School on 11^th March 2013 remarked: “It's all about the ambition you have. People in Rwanda cannot afford to waste any opportunity. Every day we are looking to see what is it that will make a difference for us. We had to take on responsibility of rebuilding the country. Even though we benefited from external support, we decided early on to take the lead. We had to take the lead in building the foundation necessary for the country. We knew if we didn’t take ownership, it wasn't going to last.”

The other important word apart from determination is “ownership”. Rwanda’s transformation story can give Afghans lessons about a population that is shaping its future and believing in  its ability to govern  itself in these two words ‘determination’ and ‘ownership’. More lessons can be learnt from the ways Rwandans became Singaporeans.

The Rwandan story can be read in the policy decisions taken post 1994. Similar to the “Afghanistan National Development Strategy (ANDS)”, the Rwandans developed the “Economic Development and Poverty Reduction Strategy (EDPRS)”. As the strategy is named the goal, clearly were two Economic Development and Poverty Reduction. The strategy thus was designed to accelerate economic growth and promote human development.

The Poverty Alleviation Programmes were designed as they call it “the Rwandan Way” The Rwandan way was unique as the programmes were designed to be heavily embedded in local norms and traditions. This promoted a sense of ownership of the projects, ensuring not only effective implementation, but also their long term sustainability. This ability to localise solutions to development to fit Rwanda’s local context, has been one of the major drivers to the economic transformation that has taken shape in Rwanda.

Some of the programmes worth taking note of are:

Vision 2020 Umurenge: This is aimed at eliminating extreme poverty by 2020; the programme involves public works, credit packages and direct support.  It is implemented at village level through participatory methods.

One cow per family (Giringa project):  In this project cows are distributed to poor families. Once that cow gives birth, the calf is given to a neighbour who is poor. The project was chosen considering the cattle culture of Rwanda. The milk from the cow improves nutrition and milk sales supplements income. The cow dung used as manure improves soil fertility leading to overall food security.

Umurenge SACCO: This is a nationwide cooperative savings scheme aimed at improving access to finance for the unbanked village population. Villagers make frequent contributions to this savings scheme. Once their savings reach a given threshold, the government contributes to the scheme. Members of the community then borrow from the SACCOs and later pay back in order to sustain the revolving funds.

Performance contracts (Imihigo): Imihigo seeks to promote self government and greater citizen engagement. Performance targets under ERDPS are set and agreed upon as performance contracts. Citizens actively participate in defining their preferences and priorities and are empowered to hold national government and the ministries accountable against commitments made. Local communities are also encouraged to come up with their own solutions to problems. Citizen empowerment thus is a central element in the implementation of the Rwanda’s Poverty reduction Strategy

From 1961 to 1990, Rwanda had an administered economy, which imposed severe restrictions on trade and foreign exchange transactions. In 1995, a number of economic reforms were implemented. Rwanda embraced a market economy and introduced trade reforms. Reforms to the ‘soft’ infrastructure for business and reducing business costs were seen as the first priority. Incentives were provided for FDI including export processing zones and industrial parks. Tariffs were reduced considerably with the average rate decreasing to 18 percent a significant reform when compared with an average tariff rate of 34.8 percent. A one-stop centre called Rwanda Development Board was set up for attracting foreign direct investment and increasing jobs in the different sectors of the economy. In order to identify and plan national priorities and strategies, the Rwandan Government organises an annual Leadership Retreat. The retreat involves the President and heads of government ministries aimed at achieving private sector-led growth in Rwanda. Major reforms that have assisted the business community include easing the process of starting a business, registering property, protection for investors, trade across borders, access to credit and paying taxes. Getting credit was made easier. Paying taxes was made easier by introducing online applications. The implementation of these various policies and reforms contributed to Rwanda’s improved ranking in the World Bank’s 2010 Doing Business Report from 143rd to 67th place.

Rwanda thus pursued a developmental state approach with the key objective as sustainable economic growth and social development. The main aim of EDPRS was to overcome the key constraints to economic growth identified through a growth diagnostic and investment climate analysis by: systematically reducing the operating costs of business; investing in the private sector’s capacity to innovate; and widening and strengthening the public sector.

As Eleanor Roosevelt said, “The future belongs to those who believe in the beauty of their dreams”. And the dreams were knit on the bedrock of the ugly history. To keep a constant reminder, Rwanda built a genocide memorial recording their bad experiences. In the words of their President Kagame, “The idea was in remembering, you create a consciousness that stops that thing from happening again. History should not be forgotten”. Certainly acknowledging pain and trauma strengthens the resolve to move further.

Rwanda’s vision is to build a knowledge-based economy and to become a private sector led middle income country by 2020. The question is can Afghanistan turn into a new avatar, shall we say Rwandistan? The answer is an emphatic YES provided we dare to dream to take off from the edge of an abyss. Because it is said, if a man can do it, a man can do it and the same applies to nations.

*The authors are Advisors with Civilian Technical Assistance Programme (CTAP) GoIRA. The views are personal.