la debilidad del estado Francis Fukuyama

7/30/2019 la debilidad del estado Francis Fukuyama

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State-Building:The Missing Dimensions of Stateness

Francis Fukuyama

Johns Hopkins UniversitySchool of Advanced International Studies


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Functions of the StateAddressing market failure Improving equity

Minimal Functions Providing pure public goods

Protecting the

poor

Defense

Antipoverty

programs

Law and Order Disaster reliefProperty Rights

Macroeconomic management

Public Health

Intermediate Functions

Addressing

externalities:

Regulating

monopoly:

Overcoming

imperfect information:

Providing social

insurance

Providing social

insurance:

education utility regulation Insurance

Redistributive

pensions

environmental protection anti-trust Financial regulation

Family

allowances

Consumer protection

Unemployment

insurance

Activist Functions

Coordinating private

activity: Redistribution:

Fostering markets

Asset

redistribution

Cluster initiatives

Source: World Bank, World Development Report, 1997


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The Scope of State Functions

Minim

alFunctions

Interm

ediateFunctions

ActivistFunctions

Providingpurepublicgoods

Defen

se,

Lawand

order

Propertyrights

Macro

economicm

anagement

Public

health

Improvingequity

Protec

tingthepoo

r

Addressingextern

alities

Education,environment

RegulatingMonopoly

Overcomingimpe

rfecteducation

Insurance,

financialregulation

Social

Insurance

Industrialpolicy

Wealthredistribution

X-axis


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Two Dimensions of Stateness

Strength

ofStateI

nstitutions

Scope of State Functions


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State Capacity

Defense

Law

andO

rder

Property

Rights

prote

cting

thep

oor

Macr

oecono

micm

anag

ement

Publi

cHealth

educ

ation

finan

cialr

egula

tion

redistrib

utive

pen

sions

envir

onme

ntal

protection

unem

ploym

entin

surance

assetr

edist

ribution

Foste

ringm

arkets

Cluster

initia

tives

state function

capacity


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Stateness and Efficiency

Strength

ofStateInstitutions

Quadrant I Quadrant II

Quadrant III Quadrant IV



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The Stateness Matrix

Strength

ofStateInstitutions

France

JapanUnited States

USSR

Turkey

Brazil

Sierra Leone



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Change over Time

Strength

ofStateInstitutions

Japan 1980


USSR 1980

Japan 2001

New Zealand 1981

New Zealand 1995

Russia 2000


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Reform Paths

Strength

ofStateInstitutions

Path I

Path IV

Path III

Path II



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Tax Extraction Rates v. Per Capita GDP


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Components of Institutional Capacity

component discipline transferability

Organizational design and

management

management; public

administration; economics high

Institutional design

political science;

economics; law medium

Basis of legitimation political science medium-low

Social and cultural factors sociology; anthropology low


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Weak States and the Black Hole

of Public Administration

Central issue of all organizational theory isdelegated discretion

Underlying issue in socialism debate

(Hayek), corporate structure (Chandler),

federalism

Contemporary approach brings this under aprincipal-agent framework


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Principal-Agent Theory

Coase, theory of the firm 1937 Alchian and Demsetz, firms as nexus of

contracts 1972

Williamson, opportunism and bounded

rationality

Jensen and Meckling, agency costs 1976

Fama, markets for managers 1980


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Domains of Organizational

Uncertainty

Ambiguity of goals Impossibility of erecting formal system of

monitoring and incentives

Inability to determine appropriate degree of

delegation ex ante


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Public Sector Outputs

Low

Specificity

High

Quadrant I Quadrant II

Quadrant III Quadrant IV

Low Transaction volume High


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Monitorability of Public Sector Outputs

Low

Specificity

High

Central banking

Aircraft maintenance

Telecoms

Railroads

Highway maintenance

Foreign affairs Court systems

Primary school teaching

University education Preventative medicine

Guidance counseling

Low Transaction volume High


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Consequences of Organizational

Ambiguity

Need to understand better where differentpublic sector activities fall in the matrix

Seek to fix problems that are actually solvable

New approaches to activities for which

there are no best practices

Need to teach development differently


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What follows if public

administration is not a science?

Need for metis (Scott) Does not necessarily imply leaving localinstitutions in place

Requires rather contextual judgment aboutapplicability of foreign models

Need to think about the structure ofdecision-making rather than content ofdecisions


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Applications

Japan: MacArthurs decision to keep theEmperor

versus the clean break in Germany

Iraq: disbanding the Iraqi Army

Iraq: tribalism in the Sunni triangle


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Making Things Worse

IFIs and donor community complicit indestruction of institutional capacity

Contradiction between objectives of

capacity-building and provision of services

Need to rethink aims and emphasis of Phase

II nation-building


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Implications for Democracy

Promotion

Need to rethink 1990s emphasis on civilsociety

Good theory but questionable allocation of

resources

Need to deal first with problem of weak

states Party-building ahead of civil society promotion

la debilidad del estado Francis Fukuyama

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