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Electricity Generation and Distribution in Thailand: Policy Making, Policy Actors and Conflict in the Policy Process

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Electricity Generation and Distribution in Thailand: Policy Making, Policy Actors and Conflict in the Policy Process Electricity Generation and Distribution in Thailand: Policy Making, Policy Actors and Conflict in the Policy Process Thanyawat Rattanasak A thesis submitted in fulfillment of the requirements for the degree of Doctor of Philosophy in Social Science and Policy The University of New South Wales August 2009 PLEASE TYPE THE UNIVERSITY OF NEW SOUTH WALES Thesis/Project Report Sheet Surname or Family name: RATTANASAK First name: THANY AW AT Other name/s: Abbreviation for degree as given in the University calendar: PhD School: SOCIAL SCIENCE AND INTERNATIONAL STUDIES Faculty: ART AND SOCIAL SCIENCE Title: ELECTRICITY GENERATION AND DISTRIBUTION IN THAILAND: POLICY MAKING, POLICY ACTORS AND CONFLICT IN THE POLICY PROCESS Abstract 350 words maximum: (PLEASE TYPE) This thesis is an analysis of the development of Thailand's electricity industry power generation policy, its institutions and the policy process. It also examines the policy actors ,,working within the process, and their roles, power and influence, factors that have shaped the distinctive characteristics of the electricity industry in Thailand today, an industry that is being confronted by increased opposition to its development from a range of community groups concerned with adverse environmental and social impacts. My research used Historical- Institutionalism and Policy Network Analysis to guide the investigation. A qualitative research methodology, including the examination of documentary evidence and the interviewing of 25 key informants, was used to improve our knowledge of the policy process, and to reveal the nature of the conflicts that have emerged within the Thai policy-making bureaucracy, a bureaucracy that controls the electricity industry, and between these policy actors, the elected and military governments, and other parts of the Thai community. ·My research found that the development of Thailand's electricity generation policy has been complex; influenced by socio- economic and political , factors, as well as by external factors such as conditionalities imposed by foreign governments and multinational lending agencies. These factors have constrained the political institutions and political elites who play a key role in setting the rules for the restructuring of the industry. As Thailand has developed to become more democratic, the emergence of new groups of policy-makers, such as elected-politicians and civil society, has brought about a change in electricity policy direction, and in the structure of the industry. The research identified four key groups of policy actors participating in the Thai electricity policy arena, including first the 'old energy aristocrats'; officials in EGAT who established the industry. They were followed by the officials in EPPO who had a more commercial orientation and who challenged the earlier ideas, leading to proposals to privatize the industry. Civic Society Organisations (CSOs) emerged in the 1970s to challenge the large energy projects proposed by the Government. The CSO's were supported by elected-politicians, particularly the politicians from Thai Rak Thai Party that tried to take control of the industry for their own ends in the 1990s. Each of these policy participants developed their own discourses to influence policy-making and public opinion. To reveal the nature of the challenges faced in developing the electricity industry in Thailand, this thesis focuses on a number of case studies of large electricity development projects, including the Nam Choan and Pak Mun Dam Projects, the Prachub Kirikhan Power Plant Projects, and the Wiang Haeng Coal Mine Development Project. The studies reveal evidence of the significant negative impacts that these projects had and continue to have, on the communities and environment adjacent to them, and on Thai society more generally. These problems emerged due to the fact that the policy institutions were, and still are, dominated by technocrats and political elites, with limited public participation in either the policy decisions made, or the policy developmenl process. My thesis concludes that conflicts in relation to the electricity industry policy process are likely to grow in future years, and so makes a number of SUl!l!estions as to how these issues mi!!ht be addressed. Declaration relating to deposition of project report/thesis I am fully aware of the policy of the University relating to the retention and use of higher degree project reports and theses, namely that the University retains the copies submitted for examination and is free to allow them to be consulted or borrowed. Subject to the provisions of the Copyright Act 1968, the University may issue a project report or thesis in whole or in part, in photostat or microfilm or other copying medium. I also authorise the publication by University Microfilms ofa 350 word abstract in Dissertation Abstracts International (applicable to doctorates only). · The University recognises that there may be exceptional circumstances requiring restrictions on copying or conditions on use. Requests for restriction for a period ofup to 2 years must be made in writing to the Registar. Requests for a longer period of restriction may be considered in exceptional circumstances if accompanied by a letter of support from the Supervisor or Head of School. Such requests must be submitted with the thesis/project report Registrar and Deputy Principal N:\FLORENCE\ABSTRACT i Originality Statement ‘I hereby declare that this submission is my own work and to the best of my knowledge contains no materials previously published or written by another person, or substantial proportions of material which have been accepted for the award of any other degree or diploma at UNSW or any other educational institution, except where due acknowledgement is made in the thesis. Any contribution made to the research by others with whom I have worked at UNSW or elsewhere, is explicitly acknowledged in the thesis. I also declare that the intellectual content of this thesis is the product of my own work, except to the extent that assistance from others in the project’s design and conception, or in style, presentation and linguistic expression is acknowledged.’ Copyright Statement ‘I hereby grant to the University of New South Wales or its agents the right to archive and to make available my thesis or dissertation in whole or part in the University libraries in all forms of media, now or hereafter known, subject to the provisions of the Copyright Act 1968. I retain all propriety rights, such as patent rights. I also retain the right to use in future works (such as articles or books) all or part of this thesis or dissertation. I also authorize University Microfilms to use the abstract of my thesis in Dissertations Abstract International. I have either used no substantial portions of copyright material in my thesis or I have obtained permission to use copyright material; where permission had not been granted I have applied/will apply for a partial restriction of the digital copy of my thesis or dissertation.’ Authenticity Statement ‘I certify that the Library deposit copy is a direct equivalent of the final officially approved version of my thesis. No emendation of content has occurred and if there are any minor variations in formatting, they are the result of the conversion to digital format.’ Signed Date ii Abstract Many analysts have attempted to develop a systematic approach towards understanding the public policy framework in Thailand, and the impact of policies on Thai society and the environment. However, approaches so far have been limited in scope, and little has been done to investigate Thailand’s electricity development policy approach, and its impact on society and natural resources in Thailand. This thesis contributes to filling this knowledge gap through undertaking an analysis of the development of Thailand’s electricity industry power generation policy, its institutions and the policy process. It also examines the policy actors working within the process, and their roles, power and influence, factors that have shaped the distinctive characteristics of the electricity industry in Thailand today, an industry that is being confronted by increased opposition to its development from a range of community groups concerned with adverse environmental and social impacts on it. My research here uses Historical Institutionalism and Policy Network Analysis to guide the investigation. A qualitative research methodology, including the examination of documentary evidence and the interviewing of 25 key informants, was used to improve our knowledge of the policy process, and to reveal the nature of the conflicts that have emerged within the Thai policy-making bureaucracy, a bureaucracy that controls the electricity industry, and between these policy actors, the elected and military governments, and other parts of the Thai community. My research found that the development of Thailand’s electricity generation policy has been complex; influenced by socio-economic and political factors, as well as by external factors such as conditionalities imposed by foreign governments and multinational lending agencies. These factors have constrained the political institutions and political elites who play a key role in setting the rules for the restructuring of the industry. As Thailand has developed to become more democratic, the emergence of new groups of policy-makers, such as elected-politicians and civil society, has brought about a change in electricity policy direction, and in the structure
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