How have states attempted to bring civil society organisations into policy discussions and policy development? What lessons can be learned from these attempts? This chapter from the UN Department of Economic and Social Affairs World Public Sector Report 2008 examines initiatives to promote civic engagement in policy development. It argues that political leadership, institutional changes and capacity-building are of crucial importance for the success of participatory initiatives.
Many states are attempting to make national macroeconomic policy-making a participatory and multi-stakeholder process through the formation of Economic and Social Councils (ESCs). ESCs are consultative bodies designed to promote multi-stakeholder consultations on public policy and generally include representatives of businesses, civil society organizations, trade unions and government. ESCs that engage civil society in their processes can balance the needs of the market with the concerns of those the markets do not directly serve. As a result, ESCs have become a strategic means for broadening the base of multi-stakeholder participation in policy-making. Nevertheless, a number of ESCs in developing countries, particularly in sub-Saharan Africa, face difficulties resulting from low credibility, poor representation, underfunding and lack of linkages to the rural poor.
Other participatory initiatives to bring civil society organisations into policy discussions and policy development include:
- Poverty Reduction Strategy Papers (PRSPs). PSRPs involve intense participation as a method of incorporating the concerns of the poor into macroeconomic policies.
- National Human Development Reports (NHDRs). Governments are adopting participatory processes to prepare their NHDRs and to mainstream the key findings of these reports into macroeconomic policies.
- Sub-national or provincial/state level participation. Development is increasingly becoming a subject for sub-national government, where the value of civic engagement as an instrument of public governance is gaining increased recognition.
- Network governance. Sectors and actors can form networks to collaborate for mutual benefit in developing and advocating for policies on issues of joint interest.
- Deliberative democracy. Deliberative democracy refers to informed dialogue and negotiation around matters of policy. It can enable participants to appreciate the value-laden nature of policy issues and develop greater social responsibility.
- Direct democracy. Direct democracy involves initiating petitions to pass legislation by referendum and recall elected representatives before the end of their term. Direct democracy, however, has not necessarily empowered the poor.
The successes and shortcomings of various forms of civic engagement depend to a great extent on historical factors and specific cultural and institutional contexts. For this reason, transplanting or adopting models across cultures is often difficult, if not impossible. Lessons for participation in policy development include the following:
- Leadership and political commitment are of crucial importance for promoting civic engagement in policy development. Civic engagement initiatives have usually come from governments or have required government support to be viable and legitimate.
- Linking bottom-up consultative processes into multi-stakeholder decision-making forums such as ESCs could improve deliberative processes and produce pro-poor results.
- Strategic changes within the structures of government are vital to the successful incorporation of civic engagement into public governance. Capacity-building and changes in organisational behaviour are also important.
- The accreditation of civil society organisations and capacity-building in participation management for both civil servants and civil society require attention. The issue of free and unhindered access to information also requires consideration.
