development administration

DEVELOPMENT
ADMINISTRATION
PUBA 301
FIRST SEMESTER 2015
Manyaka RK
Khutso.manyaka@ul.ac.za
Tel: 015 268 3297
Cell: 078 565 5401

ASSIGNMENT
• Comprehensively and critically discuss the
originative context of the notion of a
Developmental State in contemporary
development discourse
• Specifications: 20 pages (excluding the
bibliography, 12’ Times New Roman, 1.5
spacing and well justified and Minimum of 15
sources)

Learning outcomes from the
assignment
• After the completion of this assignment, students should
be able to:-
>Understand the meaning of the concept of developmental
state as desired development model
>Understand how the concept of a developmental state is
being theorised by policy makers and academics alike in South
Africa
>Give a detailed account of the originative context of the idea
of a developmental state.
>Explain the salient features of a developmental state
>Describe the purpose of a developmental state
>Explain its relevance in contemporary development
discourse

Learning objectives
The focus of this lecture is on the notion of a
Development Administration. At the end of this
lecture, students should understand the following:-
o The meaning of the concept Development
Administration
o The nature & purpose of development
Administration
o Various facets and/or elements of Development
Administration and
o The nature of Development constraints &
problems in developing countries.

Introduction
• Governments have increased in sizes throughout
the world.
• This increase in sizes has had some serious
imbalances emerging between 1) the hopes of
the people and the realities on the ground and 2)
developments needs and their fulfilment.
• It is within this context that in order to carry out
the growing functions of government, the
administrative system needs to be adapted,
developed and even expanded to realise
development needs.

Cont’
• The post world war 2 period 1950’s and 1960’s was characterised by
heightened interests / confidence in the power of economic &
administrative systems and techniques of western origin.
• The cold war presented an ideal environment for the pursuit of
economic interests & desires to secure economic advantages by the
developed countries and multi-national cooperation's, mainly from
the west, in developing countries.
• It was within this context that Development administration
emerged. It emerged because there was a realisation in the
development discourse that governments and their bureaucracies
in less developed countries needed to be recreated, renewed and
revitalised for development & transformation to take place.

cont’
• The term Development Administration was
discovered in the mid-1950s.
• However, it was only in the early 1960s that
Development Administration gained popularity as
a distinct approach towards administering
development process under extremely situation
in developing countries.
• What then is the meaning of the concept
Development Administration? This vexed
question is addressed in the section that follows.

Meaning of Development
Administration (DA)
• It should be acknowledged that any meaningful
discussion depends on the clarity of concepts.
This is not so because concepts in the main are
contested terrains, clarification of concepts is
critical because according Maserumule
(2012:180) concepts are tools of thinking.
• The correct use of concepts is important to
improve our thinking and to undergird the
epistemic imperative of the discourse.

Meaning Conti’
• The term development Administration is defined differently by different
scholars. In other words, there are as many definitions as there are
authors.
• However, three definitions stands out thorough analysis of the discourse
of Development Administration
Development Administration refers to those activities of government that
promote economic growth, strengthen human & organisational capacities,
enhance quality in the distribution of opportunities & income (Milton Esman)
Development Administration refers to management of policies, programmes
and projects designed to achieve development goals and objectives ((GF
Gant)
Developments Administration is concerned with development policies,
programmes and projects in those conditions in which there are wide and
new demands as well as low capacities and severe obstacles for meeting
those demands (Bernard Schaffer)

Conti’
• The commonality in these three definitions is that
Development Administration is a “special kind of
administration” that is best suited to the needs &
challenges of developing countries-where there are
formidable obstacles in the road to development.
• What stands out clear in these definitions is that
Development Administration is premised on the idea that
there are significant & fundamental differences between
administrative process in developed & developing
countries.
• Development Administration questions the relevance of
classical/ traditional public administration systems,
concepts & methods to the rapidly changing demands &
challenges of development.

conti’
One crucial aspect of DA is that people are not only the
targets of development administration but are also viewed
as useful resources & beneficiaries of development projects,
they must actively participate in the development process.
The nature of development problems and challenges of
developing countries are highly complex, dynamic &
formidable.
Proponents of this view hold that it is imperative to find
appropriate institutions and organisations that are better
able to address these challenges.
Hence, there is a realisation that public institutions must be
re-created & restructured to adequately respond to the
developmental needs & aspirations of the people.

Conti’
It is often argued that development in developing countries is
not frustrated by inadequate financial resources but by
numerous inadequacies inherent in the administrative
machinery of the bureaucracies in developing countries.
It is therefore important that the administrative systems &
organisations be structured in such a way that they are
responsive to such problems.
This means that public organisations must conform to their
own socio-economic & political environment in order to
realise their administrative & development goals.
The shouldn’t be a one-size-fits-all approach.

Conti’
• The new thinking in development discourse puts more emphasis on
experimentation.
• This means that as a results of oceans of diversity, there can be no
best way/path to development (hence different countries will
follow different development routes)
• One other issue is that government needs to intervene in the
economy. Proponents of this view argues that government & their
bureaucracies in developing countries cannot afford to be passive
participants in the development process.
• Government needs to be actively involved in the design,
formulation & administration of development projects.
• Proponents of this view holds that governments should go beyond
the mere regulation of the economy and extend their role into the
realm of facilitating & inducing fundamental & structural changes.

Facets of Development
Administration
• Development Administration has got two major facets
namely: development of administration & Administration
of development.
• Development of Administration
Development of administration involves the strengthening &
improving administrative capacities as a means for achieving
developmental goals. The focus here is to develop administrators.
• Administration of Development
Administration of development implies that administrative
organisations are expected to act as instruments in the
implementation of development programmes, projects and
policies.

Conti’
• To this end, it can be argued that the two facets
of development administration constitute two
sides of the same coin.
• This means that administration cannot be
improved without changes in the environmental
constraints that hamper its effectiveness &
equally, the environment cannot be changed
unless and until administration of development
programmes is strengthened.

Elements of development
Administration
• Planned & coordinated efforts
Development Administration in operational terms
refers to organised efforts to carry-out development
programmes & projects in the direction of nation
building & socio-economic development
It is important to acknowledge that such efforts needs
to be channelled towards developing human & material
resources as part and parcel of national development.
For progress to be attained in this regard, planning and
coordination should be considered critical in such
organising efforts..

CONT’
Planning & coordination in this regard is crucial as it
facilitates the identification of major functions/projects
to be carried out as well as the alignment of such
programmes.
In developing countries where human & material
resources are scarce, governments are increasingly
under tremendous pressure to adopt & adapt planning
techniques as crucial in promoting socio-economic
development. NDP is a case in point

• Goal-orientated administration
One of the critical aspects of administrative functions of PUBA
is policy making. Policy Making is critical as it set goals and
objectives of administrative actions.
Development Administration does not only involve effective
and efficient carrying out of functions, it also involve
formulation of clear goals and objectives that guide the
administrative action.
It must be goal-orientated administration with emphasis on
achieving socio-economic goals.
However, in most instances, bureaucratic administration is
rule bound & procedure orientated offering resistance to
change.

• Management capacities
One of the facets of development administration puts
more emphasis on the development of administrators.
This involves creating & enhancing management
capacities of administrators as a means for achieving
development goals.
The focus of DA is on improving the skills and
knowledge of development orientated administrators
so that they are able to effectively respond to the
growing needs of the people.

Elements
• Progressivism
The element of progressiveness of goals is an
accepted feature of development administration.
Progressivism in this case means greater
participation of the people in development process.
It also entails training & development of
administrators with a focus on preparing
administration for future tasks.
This essentially requires forecast of new
competencies in the wake of changing technology &
methods.

Elements
• Public participation
Participation is another key element of development
administration.
Progressive realisation of development goals by developing
economies would entail a far greater participation of the
people.
In political democracies, public participation would imply the
strengthening of pressure groups, political parties & respect
for public opinion in government efforts.
It is therefore expected of DA machinery to create & promote
such conditions that will facilitate greater participation in the
process of social & economic change and in delivery of public
services.

Public participation
Cont’
• To this end, it can be argued that participation of people in
the formulation, implementation, monitoring & evaluation
of programmes & projects attuned to benefit them is
critical feature of development administration.
• However, it is important to note that for participation to be
effective, members of the public should be familiar with
the problems to be addressed.
• They must also demonstrate willingness & ability to
participate.
• If Public participation can be made a central feature of
development administration, development administration
will be grass-roots orientated.

Elements
• Creativity & innovativeness
Another important element in development administration is
creativity & innovativeness.
Creativity in this regard is understood as the ability & power to
develop new ideas.
Innovation generally implies the application of such ideas.
Creativity & innovation therefore emphasises the new way of doing
things.
Once goals have been agreed upon and new priorities determined,
innovation is needed.
It is within this context that development administration as an
instrumentality of government, lays emphasis on the adoption of
new structures, procedures, policies, plans and programmes which
will help in achieving developmental objectives with the greatest
possible facilitation.

Elements
• Responsiveness & accountability
The traditional administrative system was criticised
for the simple reason that administrators tended to
be routine minded, stagnant and generally lacking
in the enthusiasm and ability for innovation.
DA requires administrators who are dynamic,
innovative & development conscious enough to
perform their duties in the administration of
development.
DA is therefore required to be responsive and
accountable.

Elements
• People-centred administration
DA must be people centred because it is aimed at serving
the needs & interests of the people.
This is because development programmes & projects are
designed by planners and administrators with the aim of
benefiting people.
It is within this context that DA seeks to put
administrators with requisite capacities to mediate &
respond to substantive demands from members of the
public.
DA must consistently respond to the growing demands,
challenges & expectations from the people.

Development Constraints in
developing countries
• Colonial & western pattern of development
• Lack of skilled personnel & administrative staff
• Centralised bureaucratic structures
• Inadequate political will & support to improve
administrative systems
• Multiplicity of administrative agencies
• Limited public participation
• Lack of motivation
• Corruption

Further Reading
For further reading on this thematic area, students
are strongly advised to consult the following
sources:
Chapter 3, Sapru, RK (2002)Development
Administration
Chapter 13 & 14, National Planning Commission
(2012) National Development Plan
Chapter 2, Kotze, D.A (1997) Development
Administration & Management: A holistic approach.
Pretoria: Van Schaik

THE IDEA OF DEVELOPMENTAL
STATE

Introduction
• There is a considerable debate in South Africa as well
as in many developing countries about the prospects of
future development.
• This debate largely emanates from the realisation that
the current development path pursued by these states
does not yield the desired benefits for the majority of
the population of the third world.
• Development in most of these countries is said to be
stagnant.
• The discussion seeks to introduces students on the
current debate concerned with the challenge of
building a developmental state in South Africa.

Conceptualisation of the notion of
Developmental state
• The concept of a developmental state has become a mantra
for government officials, policy makers and academics
(Andani, 2012).
• This is understandable because the usage of the concept in
the Public Administration discourse in South Africa is fairly
new.
• There was no mention of the concept in the discourse that
shaped and guided the multi-party negotiation process in
the early 1990s
• This is in spite of reports that the ANC, one of the major
players in the negotiations, had entertained ideas that are
associated with a developmental state while in exile

Cont’
• This consideration should, as Maserumule (2012)
argues, encourage us to ask questions as follows:-
– Why did the concept of DS vanished from the
discourse in spite of the fact it occupied the centre
stage of the discourse in exile?
– Were the national democratic and reconciliation
projects more important than a developmental
project?
– Was this a missed opportunity on part of the ANC to
seize their strategic political advantage of the
negotiation process to forge a consensus on a
developmental state and its vision?

Cont’
• DS has generated a widespread debate among
policy makers and academics.
• To better understand the gist of the current
thinking on developmental state, it is of
critical importance that the originative context
of term be established.

(cont’)
• According to Madumo (2012), the current
thinking on the discourse of a developmental
state originated in East Asia in the 20th
Century.
• The concept of a developmental state was
coined by Chalmers Johnson in 1982 (Dlamini,
2008; Kauzya, 2008; Dassah, 2011) to describe
Japan’s successful “development scenario and
industrial process” (Dassah, 2011: 590).

(cont’)
• Johnson’s description primarily appreciates and
acknowledges the critical and transformative role played by
an “active and interventionist” state (Dassah, 2011: 590 &
Tsheola, 2012) of Japan in leading and directing a
successful and impressive development trajectory.
• Johnson credits the Japanese state, and not the market
forces, for the country’s high and sustained economic
growth rates and development that has contributed
immensely towards realising the development needs of
Japan.
• The socio-economic successes of East Asian countries have
drawn a considerable attention to the concept of a
developmental state as a possible model for developing
countries.

What is a developmental State?
• The idea of the developmental is premised on
the centrality of the government driving
development objectives and goals of the
nation through the state.
• It is not anti-capitalism but it pro-regulating /
pro-intervening in the affairs of the economy
in the interest of the developmental goals of
the nation whatever they may be.

Cont’
• It is the idea that the State is the main driver
of development as opposed to the idea that
free-market is the propeller of development.
• The latter is the position of GEAR while the
former is much more related to RDP as was
the principal policy of the ANC when it came
to power in 1994.
• A policy which was implemented until 1996
when GEAR was introduced.

cont’
• The defeat of the RDP policy by the Mbeki faction within
the ANC put the ANC and South Africa down the neo-liberal
route of today.
• The RDP policy was South Africa's signal to the
international markets and the West that we had truly
embarked on the path towards a developmental State.
• Instead, the signal of GEAR, which substituted for and
replaced the RDP policy, which the NDP is repeating and
resending, is to telegraph again to the international
markets and the West (investors especially) that we remain
tied to the hips to the Washington Consensus and its
neoliberal economic policy framework, and that we are
open to do business with them without caring for a
developmental State.

Cont’
• In his Mai l& Guardian article of 2008, Joel
Netshitenzhe revealed that the Mbeki
government had already started the process of
crafting a national developmental plan and a
strategic vision, and that Mbeki's Cabinet devoted
the January 2008 Cabinet Lekgotla to discussing
specifically this issue
• Joel went on to serve on the Zuma-appointed
National Planning Commission (NPC), which came
up with the Diagnostic Report and finally the
NDP.

Cont’
• So the link between GEAR and the NDP, in terms
of personnel, eg Trevor Manuel and Joel
Netshitenzhe, and policy thinking, eg neo-liberal
economics, bowing before the Washington
Consensus, and idolizing as well as sacralising the
moneyed investors, all this at the expense of SA's
poor and unemployment, is more than direct
• It is complicit and explicit.
• The NDP is the proud successor of GEAR

(cont’)
• The ANC’s engagement with the notion of a DS is
largely based on the constructs that describe the
socio-economic progress made by East Asian
countries in realising their developmental needs.
• DS has generated a widespread debate among
policy makers and academics
• However, Maserumule (2012) points out that the
concept is convoluted by the fact that it is
enmeshed in numerous misconceptions.

(cont’)
• For example, the theorisation of DS in South
Africa is as follows:-
– as a democratic state,
– or that it is anti-thesis of democracy,
– a service delivery state and
– or that all states are developmental
There is a general agreement that the promotion of a
developmental state is buttressed by a strong sense of
realisation that it could contribute immensely towards
addressing the numerous socio-economic hardships
facing the significant majority of the people in South
Africa

Democratic developmental state
• There is a consensus in PUBA discourse on the
notion of developmental state that South Africa
and indeed African countries requires the so
called a democratic developmental state (DDS)
• This is informed largely by a consideration that
the traditional model of an autocratic DS as
observed in the East Asian examples seems
unsuitable for Africa.
• This is attributed to the fact that their
authoritarian nature allowed for a very minimal
public participation.

cont
• Hence, it is argued that the differences
between the Asian-type authoritarian DS and
what some scholars increasingly refer to as
DDS should be noted and be considered to be
of critical importance.
• It is desirable for African countries to consider
adopting and implementing DSs that are
democratic, particularly in terms of allowing
space for public and civic engagement

Cont’
• The other argument that is made about the
necessity of creating a DS is that all the countries
that are presently considered in terms of the
dominant paradigm, have also benefited from
state-led injection of vital resources in their initial
stages of development.
• Interestingly, the same countries are today, the
champions and advocates of free-market and
neo-liberalism

• DS model seem to be the most appropriate for
Africa not only because of its appeal to most
countries.
• It is seen as the most effective vehicle for
undertaking positive and fundamental changes
without merely relying on the proverbial notion
of the “invisible hand of the market”
• This understandable because much of the
continent consists of largely poor, agrarian and
underdeveloped countries that undoubtedly
require significant state intervention and support

Cont’
• It is important to caution however that this
will not happen without onslaught from
developed countries and financial institutions
such as the IMF, World Bank etc.
• This is understandable considering the
enormous influence of developed countries
on the development trajectory of developing
countries

Questions to Ponder
• Comprehensively discuss the origin of the
notion of a developmental state
• Explain the misconceptions associated with
the theorisation of the notion of a
developmental state in South Africa
• Why is it necessary foe African countries to
theorise developmental state as democratic
developmental state?

development administration

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