In his infamous book, The Anti-Politics Machine, James Ferguson argues that World Bank development policy and the practice of development projects in Lesotho were dominated by the effects of bureaucratic power. Following Foucault, bureaucracies like the World Bank, function to depoliticise a vast array of messy social and political phenomena rendering them amenable to technical solutions. The argument follows that the operation of bureaucratic power is necessary for the very functioning of such organisations, it is not saying that development practitioners intentionally depoliticise phenomena or advance their own biases, but that these effects are necessary if bureaucracies are to function in the first place. For instance Lesotho was treated as a kind of sealed container in which contributions from migrant labour in South Africa were discounted in economic assessments.
Here is a photo of James and his book.
How bureaucratic power operates in the day-to-day of development work can be better understood by considering two different ways in which knowledge can be produced: research and expertise. Expertise advances a privileged form of objectivity. Expertise falls back on a number of epistemological assumptions such that knowledge serves utility for those producing it.
These assumptions, usually found in development policy models, tend to include: the regularisation of units of analysis, that cause and effect relationships are largely deterministic, and finally that social and political phenomena exist in closed systems such that intervening causal variables or phenomena are excluded. These assumptions help form a positivist model of knowledge, useful for giving the appearance of hindsight and making the social world appear more stable than it ever could be. It helps make the case that various kinds of development projects will work, that we can predict accurately how they will work, and that any unintended consequences will be highly unlikely. When errors do occur they are usually rationalised as arising from some inescapable disconnect between policy and practice. The policy model itself isn’t wrong, only the execution of the policy is: “The policy is right, it’s just that, in practice, we can’t implement it successfully for X, Y, Z reason”. The policy model—and those who produced it—are elevated to a privileged position where their conceptual biases are never incorrect.
Post-conflict reconstruction in Sierra Leone is a case in point. In Sierra Leone’s National Recovery Strategy paper, co-author Karen Moore suggests:
“Society is in a plastic state, like half-melted wax, out of which anything can be moulded”
Such analogies are amenable to liberal peace-builders. They represent the image of a clean slate upon which initiatives like governance decentralization will operate effectively. Of course such expertise belies the research which points out customary institutions that preceded the civil war and that have proven resilient before, during and after conflict (Sawyer 2008; Logan 2009: 103, 2011) continue to enjoy a high degree of legitimacy across a number of governance functions, such as dispute resolution (Sawyer 2008: 396).
Max Weber, influential theorist of the state
Kristof Kurz (2010) has taken this further by demonstrating how humanitarian relief efforts in Sierra Leone perceives conflict and crisis vis-à-vis a neo-institutional logic that locates politics at the level of elites, reduces persons to individualised utility-maximisers, and that understands crisis as originating in a failure of formal-Weberian institutions, largely confining state history to the period during and after Siaka Stevens rule. Historical contingency, culture, identity, and more importantly, patrimonial relations; that constitute a politics of customary unwritten rules of the game, are effaced from humanitarian organisations’ conception of crisis, and yet these politics fundamentally account for Sierra Leonean’s everyday frames of reference. What matters for expertise, then, are particular forms of representation that depoliticize phenomena rendering them amenable to technical solutions.
The papers outlined below highlight this in a number of ways, particularly in Partha Chatterjee’s concern with “civil society”. In Sierra Leone, for example, privilege is given to concepts like “social capital”, the “Weberian state” and “community cohesion”, which arguably treat the embodied political experience of Sierra Leoneans as epiphenomenal to this conceptual basis. On obvious phenomena are the ways in which basic needs are structured by a ‘moral economy of needs assessment and benefit prioritisation’ in which recipients have a proclivity to perform certain needs in the interest of attracting humanitarian aid (Fanthorpe 2005: 40). Hoffman (2011: 46) stresses this disconnection creates unintended expectations among both ex-combatants and civilians.
For example the former Aberdeen Road camp in Freetown was synonymous with amputee victims and garnered wide media attention. Humanitarian aid targeted Aberdeen Road for funding projects and cash donations. Consequently camp numbers dramatically increased and ethnographic evidence purports that, despite the provision of artificial limbs and cash donations, many amputees still ‘developed a mode of narrating and displaying their violations prominently’ (ibid). A similar logic is seen in DDR programmes. Cash is received in exchange for handing over a weapon. Militia commanders rented surplus weapons to those who hadn’t participated in fighting, taking a commission for the service. Again, phenomena are depoliticised, rendered amenable to technical solutions. Danny Hoffman’s recent book highlights a number of anecdotes, such as one young boy claiming a pepper shaker is a hand grenade to claim money, see page 149 (I think).
Research, in contrast, considers knowledge production as only ever partial and always situated. There is no, as Donna Haraway’s argument for situated knowledge and the passionately detached research suggests, gods eye view of the world, rather knowledge production is analogous to fumbling around in the dark.
Donna getting passionate
Expertise is quicker, conceptually more reductive and tends to distort methodology in a variety of ways to make knowledge production suit the interests of the producer i.e. to make knowledge appear more useful than it is. Research takes longer, is more explicit in its conceptual and theoretical assumptions, and is at pains to achieve methodological vigour and transparency.
The examples presented below all, in different ways, return to the question of expertise in development policy and practice. Namely they consider what the functions (i.e. uses) of different forms of knowledge production are for different kinds of development agencies. This is not to say that development work does not have significant positive effects, but that the possibility for a proper critique of policy and practice from within such organisations is incredibly limited.
The Story of a not so DfIDent Development Consultant
In late 2002 David Mosse finished the first draft of a book, Cultivating Development (see here), detailing an ethnographic account of his time working with the Department for International Development (DfID) in India.
He worked on one of DfID’s flagship aid projects, from design to implementation, from 1990 until 2001. Mosse wanted to understand how particular modes of expertise and forms of administrative rationality informed development and aid work. He focused on the relationship between development policy and practice, in particular participatory approaches to development that were popular at the time. What followed were repeated attempts to delay the book’s publication on the grounds the book was ‘unfair, biased, contained statements that were defamatory and would seriously damage the professional reputation of individuals and institutions, and would harm work among poor tribals in India’. Mosse’s critique, in his book Cultivating Development, contains several important arguments.
First that policy models could not organise practice. How the agency was organised, and the system of relationships afforded by the agencies’ political logic and culture, led to project workers routinely contradicting official policy, targets and controls, substituting for anticipated community self-reliance in the organisation of practice.
Second, policy functioned largely to mobilise and maintain political support, rather than to guide practice. The contradictory interests of a range of actors were brought together by using a number of conceptual and linguistic devices that nullified these contradictions in policy, thereby making the execution of policy in practice impossible.
Third, development projects functioned to maintain particular systems of representation. Events were interpreted to fit theory, such that project work sustained particular policy models, not ‘directing action but following it’:
‘Through such expert discourse unruly practice is stabilized, and the gap between policy and practice constantly negotiated away.’
Finally, taking the above points together, “failure” is not seen by project workers as the inability to translate policy models and designs into practice, but of
‘a certain disarticulation between practices and their rationalizing models. Failure, as I discovered, is a failure of interpretation.’
Mosse is not evaluating development projects in terms of whether they helped or did not help the targeted recipients, but rather he is concerned with the ways in which the ‘success’ of development projects is socially constructed and produced. It is not to say such projects do not have positive effects for its recipients, but instead to highlight that the project did not work because of the way in which it was designed: ‘good policy was not implementable. None the less, policy is absolutely central to what happens in development arenas’.
It is confusion in Mosse’s colleague’s interpretation of the criteria for success and failure in his analysis, coupled with concerns that the evidential basis of his claims were weak given his failure to disclose the intentions of his work in a “participatory” manner, which dogs their objections. Mosse took up this point in a recent Malonowski lecture at LSE, you can find the accompanying article here. The point is reflected in one DfID members comment:
how could ‘the participation consultant [Mosse], not want to review the project experience in a fully participatory manner?’
Mosse’s analysis is aiming to critique socially constructed categories of analysis, not to conduct an evaluation according to them – something the project workers failed to understand.
What the emotional, and often quite personal, responses of Mosse’s former colleagues ironically revealed was the very confirmation of his thesis:
“it also occurred to me that my critics were themselves enacting the very argument they objected to, offering extraordinary confirmation of the key point that authoritative actors work hardest to defend projects as ‘systems of representations’, not only against the destabilizing contingencies of practice, but also now against competing (ethnographic) representations existing potentially within the same public space […]From their positivist perspective, talk of alternative points of view simply dealt in the currency of ‘spurious facts’ or ‘biased interpretations’ which, as I was told, ‘fail to meet the normal standards of social science research”
Paul Collier said it, so it must be true
Hobbes and the Congo is one of my favourite papers (see here). Severin Autesserre, perhaps taking inspiration from the first half of James Ferguson’s book, conducted a three year ethnography to analyse the discursive frames used by policy makers and practitioners for interpreting the causes and effects of local violence. These being the frames of reference, or common ways of understanding, which inform strategies of international intervention. Autesserre concludes that:
‘international actors labeled the Congo a “postconflict” situation; they believed that violence there was innate and therefore acceptable even in peacetime; they conceptualized international intervention as exclusively concerned with the national and international realms; and they saw holding elections, as opposed to local conflict resolution, as a workable, appropriate, and effective tool for state- and peacebuilding. This frame authorized and justified specific practices and policies while precluding others, notably local conflict resolution, ultimately dooming the peacebuilding efforts’.
Particularly interesting are the ways in which postgraduate development studies programmes inform the thinking of aid workers. Autesserre finds that the majority of peace-building practitioners explained violence according to a crude interpretation of Collier and Hoeffler’s (2004) explanatory model: that local groups were motivate by greed (control of mineral resources) and so the causes of local violence should be addressed as a law and order problem by national authorities. Some NGOs in Sierra Leone still think the civil war was caused by blood diamonds…
You can bank on another coup
Boubacar N’Diaye’s paper, To midwife – and abort – a democracy, considers political transition after Mauritania’s 2005 military coup (see here). With a history of deeply entrenched military involvement in politics, a policy of “delayed self-succession” helped stall the path toward democratisation and creation of its accompanying institutions of governance. One of the factors N’Diaye highlights as perpetuating this trend is the World Bank’s lack of a political mandate, which privileges macro-economic stability but does not consider pre-existing political conditions.
99 youth organisations but a civil society org ain’t one
“Civil Society” is a popular, yet much abused, concept in development vocabulary. Often civil society broadly refers to a set of institutions independent of the state and family. It can encompass a whole host of non-governmental organisations, from “capacity building” to “advocacy”. It can, however, be appropriated by the state, as the case of GNGO’s (Governmental Non-Governmental Organisations) in Azerbaijan has shown. Drawing on long-term ethnographic fieldwork in India, Chatterjee argues in his book The politics of the governed: reflections on popular politics in most of the world, that civil society lacks any real analytical or explanatory value, reflecting a privileged form of political organisation for the urban middle classes.
Political organisation in most of the world—“the politics of the governed”—is better understood with reference to political society. Chatterjee observes a two-fold shift in Indian politics during the 1980s.
First the emerging predominance of governmental technologies in providing welfare, which is independent of citizens’ participation in the sovereignty of state. Second, a shift from discrete well-organised political mobilisation (e.g. political parties) to more transient, loose and informal mobilisations around specific issues. Opposed to citizenship defined vis-à-vis civil society, these new forms of political mobilisation pertain to two broad characteristics.
First the governed mobilise around empirically defined and recognisable population groups. Such groups are organised into countable entities, reflecting categories constructed and enumerated (in surveys) by NGOs. A good example is the wide variety of different youth associations in Sierra Leone. Second, they constitute moral communities i.e. demands for services are framed according to some kind of moral discourse. This is often reflected in youth’s language of non-violence: “no fεt”, “wi ᴐl wan” etc. which arguably stem from a disproportionate number of violence sensitisation programmes, in which non-violence becomes a pre-condition for development. For Chatterjee such groups do not belong to civil society in the sense that Hegel and Marx posited. Instead, in demanding services, these groups often necessarily violate legal regulations, but do not ask that private property be abolished in principle. Rather they expect the state to make exceptions for particular activities, thereby producing a whole set of paralegal arrangements. He suggests:
“They do not demand that the right to private property in land be abolished or that the regulations on trade licenses and sales taxes be set aside. Rather, they demand that their cases be treated as exceptions. When the state acknowledges these demands, it too must do so not by the simple application of administrative rules but rather by a political decision to declare an exception.” (Chaterjee 2008: 61).
The slow metre-by-metre movement of Abacha street vendors off the street, whilst not entirely removing them, is a good example in Freetown. In the current decade, with a proliferation of new governmental technologies like NGOs, the effects of primitive accumulation—e.g. alienation, loss of livelihoods, land grabs—are, whilst somewhat inevitable, are unacceptable for those that govern. In combination with the aforementioned exceptions, a whole raft of measures and initiatives are put in the service of reversing the effects of primitive accumulation, in order to help support and maintain the livelihoods of marginalised groups. Such measures include loans and micro credits, and schemes aimed at the commercialisation of agriculture.
In this sense, Chatterjee proposes thinking about two forms of capital which underpin a more accurate definition of civil society. The first, corporate capital, operates through civil society in the interests of urban middle classes that propagate the imperatives of continued capital accumulation. The second, non-corporate capital, operates through political society; and while not eliminating the profit motive per se, is geared towards accumulating capital and organising politically in ways that maintain pre-existing livelihoods.
In all, Chatterjee is saying aid organisations carry a great deal of conceptual baggage; that, arguably covers for the fact they do not come close to challenging, or for that matter understanding, the root causes of poverty and inequality. Rather they act as a buffer, not challenging the status quo, but safeguarding against effects in society that are empirically and morally impermissible for those that govern.
The Politics of Famine
In his 1997 book ‘Famine Crimes: Politics and the Disaster Relief Industry in Africa’, Alex de Waal draws on the work of Amartya Sen (the capabilities approach) arguing that citizens have limited means for holding their governments accountable for famine. Unintentionally, humanitarian agencies further marginalise accountability by superseding responsibility to technical experts.
Such agencies, de Waal argues, are driven by their own institutional interests and narrowly defined interpretations of social responsibility. In effect, humanitarian responses fail to address the political causes of famine, often strengthening authoritarian regimes and leaving citizens powerless to hold government authorities to account.
Gangs of the World, Unite!
In their critique of the 2012 Word Bank Development Report (see here), Gareth Jones and Dennis Rodgers highlight how the Bank fails to delineate between conflict and violence, lumps different forms of violence together, and has an intriguingly parochial and self-referential biography. For instance, none of Charles Tilly’s works feature in the reports bibliography.






















