Public Governance in the Conditions of Globalization Challenges

UDC: 35.077

Bielska Tetiana Valentynіvna, Doctor of Science in Public Administra- tion, Associate Professor of the Depart- ment of Management and Administration, O. M. Beketov National University of Urban Economy in Kharkiv, Ukraine, 61002, Kharkiv, 17, Str. Marshal Bazhanov, tel.: (066) 450 62 12, e-mail: [email protected] ORCID: 0000-0002-2792-4700 Бєльська Тетяна Валентинівна, доктор наук з державного управління, доцент кафедри менеджменту і адмі- ністрування, Харківський національ- ний університет міського господарства ім. О. М. Бекетова, Україна, 61002, м. Хар- ків, вул. Маршала Бажанова, 17, тел.: (066) 450 62 12, e-mail: [email protected] ORCID: 0000-0002-2792-4700 Бельская Татьяна Валентиновна, доктор наук по государственному управлению, доцент кафедры менеджмента и ад- министрирования, Харьковский национальный университет городского хозяйства им. А. Н. Бекетова, Украина, 61002, г. Харьков, ул. Маршала Бажанова, 17, тел.: (066) 450 62 12, e-mail: [email protected] ORCID: 0000-0002-2792-4700

PUBLIC GOVERNANCE IN THE CONDITIONS OF GLOBALIZATION CHALLENGES

Abstract. The article states that globalization changes understanding of the concept of “governance”, territorial membership is no more the epicenter of politics because symmetry between the territorial borders and the political power collapses; it is indicated that the driving forces of the modernization of the global governance process are the large private business represented by multinational corporations and global civil society; it is argued that cultural values and identities play an increasingly important role in the modern world; the population that lives in a certain territory is a permanent community, united on a territorial basis, and defines the public, private, and social spheres of life; the emphasis is placed on the fact that the public policy of territorial associations should be aimed to ensure the order in the society, coordination and realization of various social interests and achievement of public consent; it is

49 creating a strategy that defines the main goals of the community to improve the quality of public policy. Keywords: public administration, public policy, globalization, global civil society, transnational corporations, values, “good governance,” “anticipatory governance”. ПУБЛІЧНЕ УПРАВЛІННЯ В УМОВАХ ГЛОБАЛІЗАЦІЙНИХ ВИКЛИКІВ Анотація. Визначено, що глобалізація змінює розуміння поняття “управ- ління”, епіцентри політики не мають більше територіальної належності, оскільки симетрія між територіальними кордонами та політичною владою руйнується; доведено, що рушійними силами модернізації глобально-управ- лінського процесу виступають великий приватний бізнес в особі трансна- ціональних корпорацій і глобальне громадянське суспільство. Аргументова- но, що здебільшого роль у сучасному світі відіграють культурні цінності та ідентичності; населення, що проживає на певній території становить постійне співтовариство, об’єднане за територіальною ознакою, й визначає публічну, приватну, соціальну сфери життя. Акцентовано увагу на тому, що публічна політика територіальних об’єднань має бути спрямована на забезпечення по- рядку в суспільстві, узгодження й реалізацію різноманітних соціальних ін- тересів і досягнення громадської злагоди; для підвищення якості публічної політики створюється стратегія, що визначає головні цілі спільноти. Ключові слова: публічне управління, публічна політика, глобалізація, глобальне громадянське суспільство, транснаціональні корпорації, цінності, “гарне управління”, “передбачуване врядування”. ПУБЛИЧНОЕ УПРАВЛЕНИЕ В УСЛОВИЯХ ГЛОБАЛИЗАЦИОННЫХ ВЫЗОВОВ Аннотация. Определено, что глобализация меняет понимание понятия “управление”, эпицентры политики не имеют больше территориальной при- надлежности, поскольку симметрия между территориальными границами и политической властью разрушается; доказано, что движущими силами модернизации глобально-управленческого процесса выступают большой частный бизнес в лице транснациональных корпораций и глобальное гра- жданское общество; аргументировано, все большую роль в современном ми- ре играют культурные ценности и идентичности; население, проживающее на определенной территории, представляет собой постоянное сообщество, объединенное по территориальному признаку, оно определяет публичную, частную, социальную сферы жизни. Акцентировано внимание на том, что публичная политика территориальных объединений должна быть направ- лена на обеспечение порядка в обществе, согласование и реализацию раз- личных социальных интересов и достижение общественного согласия; для повышения качества публичной политики создается стратегия, определяю- щая главные цели сообщества.

50 Ключевые слова: публичное управление, публичная политика, глобали- зация, глобальное гражданское общество, транснациональные корпорации, ценности, “хорошее управление”, “прогнозирующее управление”.

Target setting. Governance in to- Kin [5], J. Rozenau [6], E. Toffler [7], day's world is facing the challenges of M. Edwards [8], and others. However, globalization, among scientists and pol- it is necessary more clearly to define the iticians there are doubts about the vi- theoretical foundations of the research ability of management structures that problem — the peculiarities of public were characteristic of previous histori- administration in the context of global cal periods of human development. The challenges. major driving forces of changes of the The purpose of the article — is the global governance process are the large consideration of the theoretical foun- private business that is represented by dations of public administration in the multinational corporations and global context of global challenges that can civil society. These circumstances lead be the basis for decision making at the to the transformation of the world global and regional levels. order — it is not already built around The statement of basic materials. politico-ideological blocs of states, as Guy Peters and Jon Pierr in the book it was in the twentieth century, but “Governance, Politics and the State” around world civilizations. define that governance — is how soci- Analysis of the recent research ety functions now, will operate in an in- and publications. The most famous sci- creasingly complex world where states entific intelligence about the existence must interact more and influence other of world civilizations is “Dimension of actors and institutions to achieve re- Europe” by O. Shpengler, “Understand- sults. ing the History” by A. Toynbee [1] and To paraphrase Susan Strange’s ar- “Collision of Civilizations and the Re- gument about the collapse of the state, structuring of the World Order” by the authors talk about “upward move- S. Huntington [2]. Systematizing his- ment,” “downward movement” and tory, A. Toynbee convincingly proved “outward movement” within the gover- that history of humanity is developing nance process, in order to visualize not as a direct line of gradual progress, challenges to national states, respec- but as a cyclic-wave coexistence of in- tively, from transnational forces, subna- dividual civilizations — closed socie- tional governments, non-governmental ties, based on religion and the forms of organizations and other components of its realization. The problem of global civil society [9, p. 83–87]. modernization, the transformation They note that thinking in the con- of society and the prospects of social cepts of binary positions “state-society” development is studied by scholars or “public-private” is archaic and con- such as H. Bull [3], E. Giddens [4], J. stitutes a barrier for governance. Guy

51 Peters and Jon Pierre distinguish four ated, formalized or permitted by the governance structures: governance as a political power of the state. What dis- hierarchy, as a market, both as a network tinguishes these different embodiments and as a community. Based primarily of managerial types from each other is on literature on political economy and the desire to manage without politics public policy, they argue that manage- in the form in which it was determined ment through hierarchy, which is state in the modern era, namely, without the administration, is giving way to other struggle for power, mediated, forma- management structures in response to a lized or permitted by the political pow- series of different pressures. The argu- er of the state. ments in favor of the new management R. Falk is building his model of hu- point to a series of elements that lead man management on the achievements to a shift from the states towards mar- of the business sector in the interna- kets and, to a lesser extent, to networks. tional arena. In his view, business fo- These elements include the “crisis” of rums contribute to the growth of the public finances in most industrialized number of leading world economic countries in the 1990’s, the collapse institutions, such as the International of attempts at state intervention in Monetary Fund and the World Trade response to population expectations, Organization, which provide an “arena globalization and social changes. Elimi- for discussion and recommendations nating the distinction between public for the shaping of global politics” [12, and private, the state and markets, the p. 215]. The R. Falk’s model is based national level, and other levels of politi- on cooperation between the public and cal institutions are simply presented as business sectors in the form of world the effects of processes that seem to live assemblies that could solve various their own lives [Ibid.]. global problems by ignoring the rheto- According to G. Pocheptsov, “the ric of illegitimacy. complexity of the objects with which A brave proposal, of course, is sub- management is concerned is taking ject to criticism. The following argu- place. Today, we have complex objects ments are put forward against it: 1) the for management, but we do not have business sector is a rational agent, who adequate tools to work with them” [10]. seeks to maximize its profits in a com- P. Hirst describes the types of mana- petitive market, while public organi- gement, from the management of eco- zations, trade unions and other asso- nomic development, corporate govern- ciations are more inclined to “political ance and international regimes to the sentiment”, 2) business sector — a pri- kind that he calls “social management vate part in the state, separated from it, through negotiations” [11, p. 18]. What but in our state it is highly politicized distinguishes these different embodi- and selective today. In addition, the ments of managerial types from each election of global charges (as an exam- other is the desire to manage without ple, the model of the European Parlia- politics in the form in which it was de- ment) entails enormous consequences: termined in the modern era, namely even if this assembly is truly reliable without the struggle for power, medi- and represents the elite of the society,

52 this does not automatically mean that only form of membership. Rather, ‘net- it will be flawless [13]. works”, which form the basis for many According to D. Achibugi, in today’s management-related arguments, are world, global meetings should only volatile, flexible and mobile [15, p. 139]. serve as an advisory role on the world There is also the idea that individuals arena, but not a function of legislative belong to many different communities power, because this excludes the pos- that are quite possible to come into sibility of abuse of power. In addition, conflict with each other. the meeting will focus only on the most Modern civilization theories con- important or urgent issues, such as cli- vince that in the modern world van- mate change, poverty, hunger, health, quish classical ideologies, and econo- trafficking, labor migration, trade rules, mic, ideological contradictions gradu- humanitarian assistance, etc. ally lose meaning and influence on However, taking in to account only public policy. Cultural values and iden- a few issues that seem the most relevant tities play an increasingly important means to leave people ignorant of cer- role in the modern world. Actually, hu- tain issues and give into the mercy of man history itself does not start from oppressive regime sin terms of human the birth of man as a biological being, rights protection. “Disadvantaged”, as but from the moment of man’s sense D. Achibugi calls them, migrants and of time, immersing it into the world of all other groups should benefit the common-value basis of life, in the very novelty for the global civil society, be- life of man and whole civilizations in cause these people remained outside the time-values. system only because their problems are This constant focus on self-improve- not global in nature [14, p. 11].Thus, a ment, self-reliance, self-affirmation be- global civil society must appear in any comes the meaning of life in general. form as an inhomogeneous organism, Each civilization, according to A. Toyn- which is a composition of the set of bee, passes the stages of genesis, growth, mini-organisms that are forming as a fragmentation and decomposition, the global world of ideas, beliefs, ideas, ide- emergence and fall of universal states, als and thoughts of citizens. This is a world churches. The main conclusions promising plan of world order. But the of the theory of A. Toynbee should be global civil society is not a plan itself; recognized: firstly, the genesis of civili- it is a part of a major restructuring of zations requires the efforts of more than the international system and the world one race; secondly, the state is always order. an element of a larger system — a soci- The population that lives in a cer- ety and arises only after the appearance tain territory is a permanent commu- of society nity that is territorially defined and That is why the limits of civilization provides some form of public and pri- are always wider both in space and in vate spheres that are dominant over time, than any national states, state- vast areas of social life. The relevant cities or political unions; thirdly, no community is constantly changing, civilization covers the whole of human- and individuals are not limited to the ity and the entire Earth; fourthly, none

53 of the civilizations is ‘the best one”, and values of the country while preserving although they are forced to interact own national and cultural uniqueness. with each other, their full merger into They went in the nineteenth cen- the “unity of civilizations” is impossible tury by the way of rejection. China and [16]. Japan, self-isolation was characteristic Under these conditions, according of the twentieth century for the USSR. to Z. Bzezhinsky, “the possibility of Now it is clear that such way in the global anarchy is inevitable and real” conditions of globalization is false and [17, p. 195]. The theory of civilizations leads to a lag in all life indicators. West- of political development was obtained ernization implies the abandonment of in studies by S. Huntington. The Ame- entire strata of local culture that are rican political scientist argues that in incompatible with democratic values. the modern world, the main criterion Turkey has precisely used this way for differences between people is their since 1920, based on the initiative of cultural affiliation with a particular K. Ataturk, radical cultural reforms civilization, or identity, consisting of were carried out up to the abandon- linguistic, ethnic, historical, religious, ment of the classical Arabic alphabet. institutional elements. On the way to unconditional Wes- The scientist also questions the ternization there is a threat of struc- widespread belief that trade, invest- tural breakdown crises and disintegra- ment, communication, etc., create the tion, which show the countries of Latin preconditions for the formation of a sin- America and Africa, “where decades gle civilization. On the contrary, he ar- and centuries of European principles gues that “people define their identity and standards of lifestyle were unviable, with what they are not”, namely, than and where there was a need to revive people know the world more, than more the usual social institutions and norms they feel their own uniqueness and try to ensure the viability of societies” [19, to protect it [18]. p. 26]. Analysis of changes of the struc- Three centuries later, the influence tural elements of consciousness in the of Western civilization in world politics, process of socio-historical development according to S. Huntington, led to erro- allowed determining their influence on neous conclusions about the universa- the civil society and socio-power rela- lity and exclusive “correctness” of West- tions at the modern global stage of de- ern values for all mankind. Attempts velopment of the civilization. to impose on humanity the culture of Modernization (or trying to com- Western civilization and the way of or- bine fundamental values, achievement ganization of society led in some coun- of own culture with Western technolo- tries to confront civilizations, to reject gies and practices) is the most success- another culture of civilization and ful development strategy of the 21st self isolation; in others, there is a West- century. Implementation of the modernization or assimilation process ac- ernization in Japan, South Korea, Sin- cording to the western, European model gapore, Malaysia and other countries in some countries before moderniza- has allowed not only to rapidly narrow tion, namely, the modernization of the the economic gap (for Japan — even to

54 become one of the world’s economic sions. These trends are gaining particu- leaders), but also to shift the military- lar relevance in Ukraine that is located political and demographic balance in its “at the epicenter of the planetary eco- favor. nomic crisis, under the progressive The Civilization theory explains the press the national crisis is getting deep- peculiarities of political processes in er” [21, p. 3]. independent Ukraine, which initially Authorities, in the process of histori- proclaimed the course for moderniza- cal development, used various resourc- tion. After all, in Ukraine (S. Hunting- es and methods of influence on people. ton in his work devotes considerable at- Today, the fundamental issues in sci- tention to Ukraine as a “split country”), ence acquire the fundamental ques- the breakdown of civilizations, which tions of human nature, in particular the was initiated by the Brest Union in study of psychological differences, the 1596. About four centuries, the Right study of archetypal structural elements Bank of Ukraine existed as a member of consciousness, the direction of con- of European states, absorbed the state- sciousness development, the manipula- management traditions of Western civ- tion of consciousness and the formation ilization based on Catholic and Protes- of value systems for use in political sci- tant religious values. At the same time, ence, sociology, psychology and public the state-management traditions of the administration. Left-Bank Ukraine adopted the princi- An objective political process that ples of the collectivist ethics of the Or- led to the destruction of the founda- thodox civilization. This difference in tions of civil society was the approval civilizations did not manifest itself dur- of a biopolitical paradigm. As a result of ing the period of Stalin totalitarianism this, in the political discourse the no- and Brezhnev’s authoritarianism, but it tion of “people” was ostracized by the naturally appeared during the time of notion of “population”. The phenome- an independent democratic Ukraine. non of biopolitics is closely linked with However, it would be very simplis- the present situation of man. Philoso- tic to explain the split of Ukrainian phers and anthropologists increasingly society with only unscrupulous politi- pay attention to the fact that biotech- cians and the “black piar” of political nology interferes in human nature and technologists. The root of the problem change it radically. is much deeper. It has been understood In modern philosophy and politi- by Western philosophers and analysts cal science, they are often referred to long time ago, but it still does not want the understanding of biopolitics that to be seen by the majority of the politi- we encounter in the works of M. Fou- cal elite [20]. cault. According to him, biopolitics The modern world space, trends is a combination of political means of in its development and management, influence on the biological origin of largely determined by the growing role man and control of him/her in order to of global civil society and the world realize certain political and social in- community in the adoption of impor- terests. Biopolitics reaches the essence tant national and international deci- of sovereign power that has important

55 privileges such as the right of life and about the need for a “liberal eugenics” death. that can only be developed in a society In the work “Will for Truth” of liberal democracy. M. Foucault pays attention to the Archetypes, discovered by K. Jung, fact that power is the power over life. are the key to understand the socio- “Never the wars have been as bloody as cultural values and peculiarities of peo- now since the XIX century, and never ple. The important science topic is the before, on other equal terms, the rul- study of archetypal structural elements ing regimes did not produce such mass of consciousness and the formation of massacres in relation to their own value systems for use in public admi- peoples” [22, p. 240]. nistration. Since archetypal images in “The wars are not conducted any- modern conditions are means of ma- more in the name of the sovereign, naging people, the curiosity about the which must be protected, they are now issue of archetypes among scientists in conducted in the name of all; whole peo- the field of public administration and ples are trampling with each other, they society is increasing. kill each other in the name of the need The archetypal structural elements to live. The fighters have become vital. of consciousness are a concentrated Many regimes succeeded in launching expression of various parameters of of so many wars, forcing them to kill the social life of people for millennia. many people based on the role of con- Thus, the Spanish scientist H. Ortega- trolling life and survival, bodies and i-Gasset believed that “power means descendants” [ibid., p. 240–241]. The domination of thoughts and views” [25, power becomes the biopower, when it p. 117]. At the same time, it is inter- begins to manage health, fertility, hy- preted as the ability of agents of power giene, sexuality, etc. [23, p. 13]. to embody or impose certain political The question of hidden mechanisms decisions through dominance. of manipulation of consciousness is Among contemporary scholars ap- widely discussed during the political, peared the idea that the nature of pow- ideological, methodological and legal er is a mystery of real, not stylized self- discussions that take place in the con- confidence that is capable of creating a text of the revival of eugenics — the special aura, plunging into which one science of controlling human heredity decisively governs (rule), and others [24]. selflessly obey, following any orders [26, Attempts to influence the person p. 4], or “the ability and opportunity to by genetic engineering were made dur- exercise their will, to have a decisive ing the “Cold War” , in the 1960sof the influence on the activities, behavior of twentieth century, when the USSR and people” [27, p. 87]. Namely, dominance USA have developed a genetic or eth- and subjugation are rooted in the hu- nic weapon. The problem of biotechnol- man nature, in archetypal structural ogy has recently been interested for the elements of human consciousness. American political scientist F. Fukuy- There is developing of new tech- ama and the German philosopher and nologies of power and transformation sociologist Y. Habermas, who talk of power-management relations. “The

56 political field, — notes L. Herasin, — virtualization not only of the society, suddenly lost energy, which provided but also a generated personality in this the opportunity to rule and willingness society. The Internet serves as a mean to obedience”. An unusual situation of to transform and manage the individu- semantic vacuum has developed in the al, the society, in general. Management power relations [28, p. 4]. That is, in a in the systems of virtual mass commu- global society, political power is not the nication in the information society goes embodiment of the highest necessity. to the level of democratic relations; L. Furth puts forward the theory of therefore the Internet is often called “Presumed government” and proposes the “vector of democratization” and a way of fighting it the two-compo- even the “zone of anarchy”. nent phenomenon — acceleration and With the help of new forms of social- complication, which together creates a power interactions, citizens can express threat to coordinated governance. The their position on various issues, includ- various departments of the Cabinet ing issues of management and self- of Ministers, in particular the Minis- organization. The network can become try of Defense, have internal planning a “virtual parliament”. Communication systems that are close to the intended in the net equates the participants and management. Such systems are not it is its democratic nature. available at the national level. The availability of information, of As a result of this, the government is course, makes our civic responsibilities increasingly limited to resolving large- more meaningful and revives democra- scale crises and loses its ability to shape cy [31]. The main function of “democ- a policy that allows for future plan- racy” in the context of globalization — ning. At the national level, there is no the alienation of society from the state, mechanism to bring predictability and its expansion to “global civil society” policy closer to effective relations [29, and the advancement of the global gov- p. 31]. Lack of systematic worsens the ernance. ability of the government to think and D. Achibuti sets out his arguments act strategically and threatens national in favor of global citizenship leader- security. ship, despite the lack of democracy. The The changes are conditioned by the deficit of democracy is understood as globalization of society, led to the crea- the lack of legitimacy due to the low tion of a new theory of public adminis- turnout in the elections. The European tration that involves expanding of the Union (EU) presented its model at the circle of decision-makers. “Governance” global level as an example for replica- and “Good governance” are understood tion, but the lack of legitimacy in the as “institutions through which citizens perception of citizens creates serious and groups express their interests, ex- obstacles to the institutional develop- ercise legitimate rights, perform duties, ment of this international entity. and balance between differences” [30, The global civil society is a real- p. 54]. ity because of four reasons: 1) it is, for Modernity is characterized by the J. Scholte, “supraterritoriàl” [32, p. 8] — will of the society to be virtual, with interterritorial organization of citizens,

57 based on universal moral principles; which the power is placed in a certain 2) acts on the basis of the principle of place in order to be under control and equality at the supranational level, this citizens would have the access to it [34]. is the main rule in the international However, management-related ex- arena and does not apply to domestic amples obviously cannot meet the or- policy; 3) it allows expanding of the der, the problem of constitutionaliza- social geography [ibid., p. 9], without tion of management lies in the fact that violating the territorial boundaries of it is completely unclear in what form it national states; 4) it is based on the will or can be organized at the supra- philosophy of cosmopolitanism, accepts state level. the fact that human diversity that ex- The purpose of a global civil society ists within and between communities, is not to restrict the role of the state, which extends the boundaries, ulti- but to increase the responsibility of mately is accessible to a wide circle of political institutions. It is a democratic mankind [33]. alternative to globalization “from the O. Matei convinces that the idea of bottom” as a response to globalization the global civil society is based on the “from above”. Like society, it is un- combination of two basic elements of thinkable without a relationship with cosmopolitanism — moral universa- the state [35, p. 55]. lism and institutional building. So, the Together with the expansion of the global civil society is the result of cos- sphere of influence of civil society and mopolitan philosophical thought. To- strengthening of its status as the main day, it can be created without reorgan- subject of institutionalization of chan- izing the current international system, ges in the modern society at the stage of preserving its cosmopolitan character. its transition to postmodernity, there is More precisely, according to O. Matei, globalization of the processes of institu- a universal civil society is an ideal sys- tionalization [36, p. 93]. tem of civic participation and gover- According to E. Giddens, on the nance. basis of mass symbolic interaction and An important element of the evolu- general information culture, a global tion of liberal democracy in the Modern social system arises, while the pre- era was the process by which a citizen dominant national state goes back to began to be defined as a constituent the past [37]. part of the political community with Indeed, many modern theorists have appropriate definitions of rights and opinion that global civil society is a duties related to citizenship. This pro- democratic alternative to globalization cess can be defined as constitutional- “from the bottom” as a response to glo- ism. The development of the state is the balization “from above”. At the same integral part in this period. time, V. Stepanenko points out that “it The classic work about constitu- is impossible not to notice the peculiar tionalism is the work of M. D. C. Weil, projection of the traditional disposition “Constitutionalism and the separation of civil society — a state that would be of powers”, which formulates a fun- transferred to the world level in the damental goals, the search of ways in relationship the global society (global

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