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Power Relations and Good Governance: a Social Network Analysis of the Evolution of the Integrity in Public Office Act in the Commonwealth of Dominica

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Power Relations and Good Governance: a Social Network Analysis of the Evolution of the Integrity in Public Office Act in the Commonwealth of Dominica POWER RELATIONS AND GOOD GOVERNANCE: A SOCIAL NETWORK ANALYSIS OF THE EVOLUTION OF THE INTEGRITY IN PUBLIC OFFICE ACT IN THE COMMONWEALTH OF DOMINICA Thèse Gérard JEAN-JACQUES Doctorat en science politique Philosophiae doctor (Ph.D) Québec, Canada © Gérard Jean-Jacques, 2016 POWER RELATIONS AND GOOD GOVERNANCE: A SOCIAL NETWORK ANALYSIS OF THE EVOLUTION OF THE INTEGRITY IN PUBLIC OFFICE ACT IN THE COMMONWEALTH OF DOMINICA Thèse Gérard JEAN-JACQUES Sous la direction de: Louis IMBEAU, directeur de recherche Mathieu OUIMET, codirecteur de recherche RÉSUMÉ: La Banque mondiale propose la bonne gouvernance comme la stratégie visant à corriger les maux de la mauvaise gouvernance et de faciliter le développement dans les pays en développement (Carayannis, Pirzadeh, Popescu & 2012; & Hilyard Wilks 1998; Leftwich 1993; Banque mondiale, 1989). Dans cette perspective, la réforme institutionnelle et une arène de la politique publique plus inclusive sont deux stratégies critiques qui visent à établir la bonne gouvernance, selon la Banque et d'autres institutions de Bretton Woods. Le problème, c’est que beaucoup de ces pays en voie de développement ne possèdent pas l'architecture institutionnelle préalable à ces nouvelles mesures. Cette thèse étudie et explique comment un état en voie de développement, le Commonwealth de la Dominique, s’est lancé dans un projet de loi visant l'intégrité dans la fonction publique. Cette loi, la Loi sur l'intégrité dans la fonction publique (IPO) a été adoptée en 2003 et mis en œuvre en 2008. Cette thèse analyse les relations de pouvoir entre les acteurs dominants autour de évolution de la loi et donc, elle emploie une combinaison de technique de l'analyse des réseaux sociaux et de la recherche qualitative pour répondre à la question principale: Pourquoi l'État a-t-il développé et mis en œuvre la conception actuelle de la IPO (2003)? Cette question est d'autant plus significative quand nous considérons que contrairement à la recherche existante sur le sujet, l'IPO dominiquaise diverge considérablement dans la structure du l'IPO type idéal. Nous affirmons que les acteurs "rationnels," conscients de leur position structurelle dans un réseau d'acteurs, ont utilisé leurs ressources de pouvoir pour façonner l'institution afin qu'elle serve leurs intérêts et ceux et leurs alliés. De plus, nous émettons l'hypothèse que: d'abord, le choix d'une agence spécialisée contre la corruption et la conception ultérieure de cette institution reflètent les préférences des acteurs dominants qui ont participé à la création de ladite institution et la seconde, notre hypothèse rivale, les caractéristiques des modèles alternatifs d'institutions de l'intégrité publique sont celles des acteurs non dominants. Nos résultats sont mitigés. Le jeu de pouvoir a été limité à un petit groupe d’acteurs dominants qui ont cherché à utiliser la création de la loi pour assurer leur légitimité et la survie politique. Sans surprise, aucun acteur n’a avancé un modèle alternatif. Nous avons conclu donc que la loi est la conséquence d’un jeu de pouvoir partisan. Cette recherche répond à la pénurie de recherche sur la conception des institutions de l'intégrité publique, qui semblent privilégier en grande partie un biais organisationnel et structurel. De plus, en étudiant le sujet du point de vue des relations de pouvoir (le pouvoir, lui-même, vu sous l’angle actanciel et structurel), la thèse apporte de la rigueur conceptuelle, méthodologique, et analytique au discours sur la création de ces institutions par l’étude de leur genèse des perspectives tant actancielles que structurelles. En outre, les résultats renforcent notre iii capacité de prédire quand et avec quelle intensité un acteur déploierait ses ressources de pouvoir. iv ABSTRACT: The World Bank proposes good governance as the strategy to correcting the evils of bad governance and to facilitate development in developing states (Carayannis, Pirzadeh, & Popescu 2012; Hilyard & Wilks 1998; Leftwich 1993; World Bank 1989). From this perspective, institutional reform and a more inclusive public policy arena are two critical strategies that will likely lead to good governance, according to the Bank and other Bretton Woods institutions. The problem is that many of these states do not have the pre-requisite institutional architecture to accommodate such measures. This thesis studies and discusses how one developing state, the Commonwealth of Dominica, approached the development of an institution to oversee integrity in public office. This Act, the Integrity in Public Office Act (IPO) was passed in 2003 and implemented in 2008. The focus in the thesis is on power relations among dominant actors surrounding the IPO consequently, it employs a combination of social network analysis and qualitative research techniques to answer the principal question: Why did the state develop and implement the current design of the IPO (2003)? This question is all the more significant when we consider that contrary to existing research on the subject, the Dominican IPO diverges considerably in structure from the ideal-type IPO. We argue that “rational” actors, cognizant of their structural position in a network of actors, have used their power resources to shape the institution so that it serves them and their allies. We hypothesized that: First, the choice of a specialised anti-corruption agency and the subsequent design of that agency reflect the preferences of the dominant actors who were involved in the creation of the IPO and second, our rival hypothesis, the characteristics of alternative options and models of public integrity institutions are those of the non-dominant actors. Our results are mixed. Power play was limited among a small group of dominant actors who sought to use the creation of the Act as an opportunity for political legitimacy and survival. Not surprisingly, there was no alternative model advanced. We concluded therefore that the Act resulted from a purely partisan agenda. This research responds to the paucity of studies on the design of institutions of public integrity, which largely seem to have an organisational and structural bias. In addition, by embracing the topic from the perspective of power relations, the thesis adds conceptual, methodological, and analytical rigour to discourses on the creation of such institutions by studying their evolution from both agential and structural perspectives. Finally, the results offer us an opportunity to predict when and in what intensity actors will deploy their power resources. v TABLE OF CONTENTS RÉSUMÉ ........................................................................................ III ABSTRACT .......................................................................................................... v TABLE OF CONTENTS .................................................................... VI LIST OF TABLES ............................................................................ IX LIST OF FIGURES ........................................................................... X REMERCIEMENTS ......................................................................... XI INTRODUCTION .............................................................................. 1 The Commonwealth of Dominica ......................................................................... 6 Integrity in Public Office Act (2003) ..................................................................... 9 Structure of the IPO ................................................................................................. 12 Purpose, Research Question, and Thesis Statement ........................................... 14 Justification for the Research ............................................................................ 15 Summary ................................................................................................................. 17 Structure of the Thesis ...................................................................................... 18 Summary of the Introduction ............................................................................ 19 CHAPTER 1: CONCEPTUALISATION .............................................. 20 1.1 Public Integrity ............................................................................................ 20 1.2 Institutions: Choice and Design ................................................................... 23 1.3 Purpose of Integrity Bodies................................................................................. 24 1.4 Typology of IPOs .......................................................................................... 26 1.5 Ideal-Type .......................................................................................................... 30 1.6 Summary to Chapter 1 ................................................................................. 32 CHAPTER 2: EXPLAINING CHOICE: THEORIZING ABOUT CREATING THE IPO ....................................................................................... 33 2.1 Theorizing about Integrity Management ....................................................... 39 2.2 Structure – Agency ...................................................................................... 40 2.3 Power .......................................................................................................... 42 2.4 Theories of Power in Networks of Actors ...................................................... 44 2.5 Strong and Weak Ties .......................................................................................
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