Bureaucracies for Development: Oxymoron Or Reality? Studies on State Capacity in Challenging Governance Contexts
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Studies on State Capacity in challenging governance contexts DISSERTATION to obtain the degree of Doctor at the Maastricht University, on the authority of the Rector Magnificus Prof. Dr. L. L. G. Soete in accordance with the decision of the Board of Deans, to be defended in public on Wednesday 29 October 2014, at 14.00 hrs. by Luciana V. Cingolani Promoter: Prof. dr. Thomas Christiansen Cosupervisor: Dr. Kaj Thomsson Assessment Committee: Prof. dr. Adam Szirmai (Chairman); Dr. Lutz Krebs; Dr. Jan H. Meyer-Sahling, University of Nottingham; Prof. dr. Steven van de Walle, Erasmus University Rotterdam. To Alex and our little Lara 4 Acknowledgements As everyone in the academic industry knows, writing a dissertation is nothing but a collective process masked under an individual effort. I would like to com- mence by thanking the members of the Assessment Committee for dedicating substantial time to evaluate and help improve this book: Prof. dr. Adam Szirmai, Prof. dr. Steven Van de Walle, Dr. Lutz Krebs and Dr. Jan-Hinrik Meyer-Sahling. I am also immensely grateful to my promoter Thomas Christiensen and my su- pervisor Kaj Thomsson for their guidance, patience and priceless time. Thanks to Kaj for being fully and actively involved in my Phd process from begin- ning to end, and for the fruitful ideas that always emerged from our meetings. Thanks to Thomas for believing in my work at all times, and the (very neces- sary) boosts of confidence this translated into. The three of us have different backgrounds and interests, and we had to step out of our comfort zones to make the research go forward. I am particularly proud and grateful for this collective effort. I would like to highlight the role of the management of both UNU-MERIT and the School of Governance in providing a wonderful environment to work in. Thanks to Mindel van de Laar for a great deal of trust and flexibility. Also, the unbreakable professionalism of people like Eveline in de Braek, Herman Pijpers, Eric Engelen and Howard Hudson made everything easier on a daily basis. Thanks in particular to Eveline for acting as a sort of ‘academic midwife’ towards the last and most exhausting part of the Phd process. My gratitude is also extended to my colleagues and counterparts in the Project on Institutions and Long-Term growth funded by the French Development Agency (AFD): Bart Verspagen, Franziska Gassmann, Adam Szirmai, De- nis de Crombrugghe, Kristine Farla, Biniam Bedasso, Richard Bluhm and Samyukta Bhupatiraju. I learnt a great deal from and with them. Thanks also in particular to Nicolas Meisel and Thomas Roca from AFD for their enor- mous dedication when reading and re-reading my drafts. This was a luxury that not every Phd fellow gets to enjoy. Luckily, there are many colleagues who helped in my development as a re- 5 searcher, and with whom I had very productive exchanges. Thanks to Bo Rothstein, Carl Dahlstr¨om, Marina Nistotskaya and Marcia Grimes from the Quality of Government Institute and their kind invitation to present one of the papers at their institute. I am also grateful to J¨org Faust for his invi- tation to present at the German Development Institute (DIE), and to Luis Camacho, Armin von Schiller, Lili Banholzer, and other seminar participants for their fantastic feedback. To Carlos Scartascini for his support and our insightful talks, and to Sebastian Dellepiane for our common concerns and ideas on Argentina. To Saskia Ruth, Maria Spirova, Frank de Zwart, Eva Wegner, Julia Fleischer, Jaree Pinthong, Francesco Stolfi, Anka Kekez Kostro and other participants at the ECPR Joint Sessions on Clientelism. To Laurenz Ennser-Jedenastik and James Melton at EPSA. Thanks also to Niamh Hardi- man from University College Dublin, Michelle D’Arcy from Trinity College Dublin, Christiane Arndt from the OECD, and to Mary Shirley, Alexandra and Lee Benham, Scott Wallsten and Dean Lueck from the Ronald Coase Institute. More than anything, I am indebted to my family and friends. Special credit goes to my parents for being as supportive as always, perhaps this time un- derstanding that I had to leave for a long time. Thanks to my sister Ana, for providing an excellent example of how a Phd can be the start of a strong and consistent career, where research contributes to society. At the same time, thanks also to my brother Ernesto for exemplifying that a Phd is just a Phd, and can as well be the start of a complete career shift. We are all ok with our brother Lisandro not having a Phd, although it must be difficult... I am also immensely grateful to my soulmate Alex and our most precious new arrival Lara. Thanks for the joy and happiness that accompanied the ending of the Phd. Thank you for being smart, cool, generous, and a list of adjectives that would be embarrassingly long. Thanks also to my parents-in-law and Lena for being sweet and welcoming every time. A lovely and wonderful group of friends made the Phd experience unforget- table. My heart is grateful to Irina, Patricia, Ilire, Andrea and Kristine, with whom I shared nothing but great moments. To Irina and Patricia, I am spe- cially thankful for honoring me with accepting the role of paranymphs. Thanks to the Argentine (and quasi Argentine) crew: Julieta, Agustin, Francesca, Ale and Lilia; and my MERIT and MGSoG friends and colleagues Jennifer, Gior- gio, Josy, Samyukta, Omar, Sonila and Cheng. Also to my cohort friends with whom we shared a difficult but fun first year: Silja, Carlos, Guney, Manoj, Ozge, Sonja and Katie. Thanks to Marco for our squash games! Thanks also to my wonderful office mates: Oxana, Sachin, Flo, Ilire and Richard for keep- ing the office a thought-provoking and good snacking place. Thanks to the 6 Iranian sweethearts Sepideh, Shuan and Iman. Thank you dearly, neighbor Shuan, for an almost life-saving strategic intervention one random day at 7 am. Special thanks to Eze for his unparalleled help and support during my first year. Thanks to Antje and Stuart for hosting me when I first arrived in Maastricht. I already dedicated the dissertation to my partner and our baby Lara. On more impersonal terms, I would also like to dedicate the book to a very strange animal: all those men and women who insist on being part of the solution to something, when all the incentives are to become part of the problem. So what if they cannot be explained. Luciana V. Cingolani Frankfurt, September 2014 7 8 Contents Introduction 11 Chapter 1: The State of State Capacity: a review of concepts, evi- dence and measures Luciana Cingolani 23 Chapter 2: Minding Weber more than ever? The impacts of State Capacity and Bureaucratic Autonomy on development goals Luciana Cingolani, Kaj Thomsson and Denis de Crombrugghe 75 Chapter 3: Meddle or Tie your Hands? Bureaucratic technologies for Adaptability and Predictability in Argentina and Brazil Luciana Cingolani 113 Chapter 4: The Anti-corruption Office of Argentina: Momentous, idle... and momentous again? Luciana Cingolani 149 Value creation of the research 179 Abstract (in Dutch) 183 Short biography 185 9 10 Introduction n unorthodox but perhaps extremely time-efficient way to know whether A a particular phenomenon is truly important for the development agenda these days, is to see whether Pope Francis I has already addressed it. Apart from encouraging breast-feeding and questioning the situation of African migrants in Italy, this man acquainted with an unusually large number of world issues has also spared some time to highlight the importance of equal treatment by the civil service. As he refused to travel on Vatican documents and rather initiated some paperwork to renew his native passport, he publicly requested the national authorities not to enjoy any preferential treatment.