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Social development and public policy
Ghai, Dharam
Ghai, Dharam
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DP89.pdf
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Abstract
"This paper is based on findings of the UNRISD research project on Social Development and Public Policy. The project was designed to improve our understanding of the reasons behind the superior social performance of some developing countries, and to reveal conditions under which social progress can occur independently of economic advance. The experiences of several countries (and one state within a federated country) whose achievements have aroused much interest and debate were examined: Chile, China, Costa Rica, Cuba, Kerala, Sri Lanka and Viet Nam. The project focused on their impressive performance in health and education, although other dimensions of social development such as social security, unemployment, incidence of poverty and gender disparities also received some attention in the case studies. This Discussion Paper considers these experiences using a common framework comprising historical, cultural and political economy dimensions. It gives particular attention to the political determinants of social policy, the amount and composition of expenditure devoted to social programmes and the institutional arrangements for financing, organizing and delivering social services. The paper first discusses the nature and extent of the educational and health attainments of these countries, contrasting them with the performance of other groups of countries. This is followed by a brief discussion of their historical and cultural legacies, as well as political processes, institutions and resource allocation. The paper then provides more detail on social policy, with illustrations drawn from the fields of primary health care and literacy. The subsequent sections deal with their experiences with poverty reduction and the social impact of stabilization and adjustment policies pursued during the past two decades. Costa Rica, Chile, Cuba, Kerala and Sri Lanka enjoyed a historical head-start in health and educational achievements. A political commitment to spreading the benefits of education and health to the entire population was crucial everywhere. The political forces contributing to wide provision of social services were diverse, including enlightened monarchy, a modernizing élite, social movements, political parties, trade unions, professional associations and emerging middle classes. Within this overall political context, cultural factors provided a favourable environment for social progress. In some cases, they took the form of a religion or a tradition placing high value on education and care for the less fortunate members of society. The status and autonomy of women were decisive in equitable access to health and educational facilities. In some countries, ethnic homogeneity made a contribution by preventing discrimination against and exploitation of some social groups. China and Viet Nam suffered from a historical disadvantage in the domain of health and education. Although Cuba had above average social indicators and relatively high per capita income prior to the revolution, it suffered from massive inequalities between ethnic groups, and rural and urban areas. The impressive social achievements of these countries can be directly attributed to the policies pursued by the communist revolutionary régimes, which, in all cases, were committed to reduction or elimination of economic and social inequalities and to the achievement of universal literacy, basic schooling and elementary health care. Politics is also central in the other four cases. A long tradition of liberal democracy, electoral competition among different parties for political power, the emergence of ii strong social movements and other institutions of civil society made significant contributions to the priority given to universal and free provision of key social services. Although Chile had a long interregnum of a repressive military régime, the military junta felt compelled to give priority to the disadvantaged groups in public nutrition, health and education programmes. The case studies also bring out the central importance of strong action by the public sector in the provision of certain health and education services. There was a great deal of diversity in the institutional frameworks for planning, organizing, financing and delivering social services. But in all cases, the state assumed responsibility for the provision of certain services critical to social development. It is interesting to note in this context that the amount of resources allocated to social programmes does not appear to have been decisive in explaining their social performance. A major conclusion to be drawn from the case studies is that the overall social policy and pattern of public social expenditure are responsible for superior social performance. A social policy that accords priority to maternal and child care, prevention of insect-borne and infectious diseases, improvement of health education, adult literacy, universal basic education and sanitary and hygienic conditions can have a quick and powerful impact on social indicators. To what extent are these lessons relevant and applicable to other countries? The fact that the sample incorporates enormous diversity in terms of political régimes, ethnic groups, social structures, cultural traditions, levels of development and rates of economic advance holds out hope that high educational and health standards can be achieved by countries under widely divergent conditions. The single most important common feature of their experience is the pursuit of social policies according priority to primary health care, adult literacy, basic education and sanitary and environmental improvements. These programmes are not too costly in terms of finance and skills. But they do require an effective public sector that can reach the entire population with services. At a deeper level, the pursuit of such policies is only possible where political circumstances generate strong pressures on the ruling groups to allocate resources for broad-based social programmes. This can happen under liberal democratic systems with a vibrant civil society, revolutionary régimes committed to social and economic equality and even authoritarian régimes seeking popular legitimacy or facing threats from opposition forces within or outside the country. The recent political changes in a large number of countries across the world conducive to the establishment of democratic systems, the growth of civil society institutions and the recognition of human rights provide a highly favourable environment for the pursuit of the kind of social policies and programmes discussed in this paper."(pg i-ii)
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1997-10
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With permission of the license/copyright holder