Governance

The term governance can be used specifically to describe changes in the nature and role of the state following the public-sector reforms of the 1980s and 1990s. Typically, these reforms are said to have led to a shift from a hierarchic bureaucracy toward a greater use of markets, quasi-markets, and networks, especially in the delivery of public services. The effects of the reforms were intensified by global changes, including an increase in transnational economic activity and the rise of regional institutions such as the European Union (EU). So understood, governance expresses a widespread belief that the state increasingly depends on other organizations to secure its intentions, deliver its policies, and establish a pattern of rule.

By analogy, governance also can be used to describe any pattern of rule that arises either when the state is dependent upon others or when the state plays little or no role. For example, the term international governance often refers to the pattern of rule found at the global level where the United Nations (UN) is too weak to resemble the kind of state that can impose its will on its territory. Likewise, the term corporate governance refers to patterns of rule within businesses—that is, to the systems, institutions, and norms by which corporations are directed and controlled. So understood, governance expresses a growing awareness of the ways in which diffuse forms of power and authority can secure order even in the absence of state activity.

More generally still, governance can be used to refer to all patterns of rule, including the kind of [Page 365]hierarchic state that is often thought to have existed before the public-sector reforms of the 1980s and 1990s. This general use of governance enables theorists to explore abstract analyses of the construction of social orders, social coordination, or social practices irrespective of their specific content. They can divorce such abstract analyses from specific questions about, say, the state, the international system, or the corporation. However, if we are to use governance in this general way, perhaps we need to describe the changes in the state since the 1980s using an alternative phrase, such as “the new governance.”

Whether we focus on the new governance, weak states, or patterns of rule in general, the concept of governance raises issues about public policy and democracy. The increased role of nonstate actors in the delivery of public services has led to a concern to improve the ability of the state to oversee these other actors. The state has become more interested in various strategies for creating and managing networks and partnerships. It has set up all kinds of arrangements for auditing and regulating other organizations. In the eyes of many observers, there has been an audit explosion. In addition, the increased role of nonelected actors in policy making suggests that we need to think about the extent to which we want to hold them democratically accountable and about the mechanisms by which we might do so. Similarly, accounts of growing transnational and international constraints on states suggest that we need to rethink the nature of social inclusion and social justice. Political institutions from the World Bank to the EU now use terms such as good governance to convey their aspirations for a better world.

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