ESID Working Paper No. 82 Competitive clientelism and the politics of core public sector reform in Ghana Daniel Appiah1 and Abdul-Gafaru Abdulai2 March 2017 1 University of Ghana Business School, Department of Public Administration and Health Services Management Email correspondence:
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[email protected] Effective States and Inclusive Development Research Centre (ESID) Global Development Institute, School of Environment, Education and Development, The University of Manchester, Oxford Road, Manchester M13 9PL, UK www.effective-states.org Competitive clientelism and the politics of core public sector reform in Ghana Abstract Although Ghana has implemented several donor-sponsored public sector reforms (PSRs) in an attempt to improve core areas of state functionality, the impact of such reforms remains generally disappointing. In this paper, we show that the nature of the political settlement in Ghana, described as one of ‘competitive clientelism’, is central to understanding the country’s limited success in improving the effectiveness of public institutions. Faced with a credible threat of losing power to excluded factions in competitive elections, reform initiatives tend to be driven largely by the logic of the maintenance of ruling governments, rather than by their potential to enhance the effectiveness of state institutions. This has often resulted in decisions that undermine reform efforts, ranging from needless and costly institutional duplications to the politicisation of the bureaucracy through patronage-based appointments, and the wholesale removal of public servants perceived to be associated with previous regimes.