Regionalism and Social Development

Viviene Taylor

Introduction

Chairperson and distinguished delegates, I am pleased to have an opportunity to share with you some thoughts on regionalism and social development. In the context of widespread poverty, growing inequalities within and between countries and the uneven impacts of this phase of globalisation we need to examine how social development, underwritten by a people centred approach, can influence existing and emerging regional blocs. Moreover, there is a new urgency given the scale of the poverty and social exclusion experienced in countries, especially in the south, to move away from the belief that regional co-operation should only be limited to issues of economic integration, trade negotiations and security.

Firstly the concept of regionalism requires examination. Regionalism in the sense that I am using it is more than a geographical location of states. It is also more than a constellation of states seeking to develop economic and trade benefits. It is a process that is socio political in forging a new development agenda that is geared to addressing some of the most critical social problems affecting the majority of poor people, especially women and children. The critical challenge therefore confronting many of our countries is how to develop a type of regionalism that will strengthen and at the same time diversify co-operation in ways that will ensure benefits for nation states as well as for regions experiencing common problems.

The genesis of regionalism in the south goes back to after the Second World War and was shaped by the liberation and anti colonial movements' idea of collective self -reliance. The Afro-Asian Conference at Bandung in 1955, the founding of the non Aligned Movement in 1961 and the Group of 77 in 1964 were some of the early initiatives to develop a process that would ensure collective action for common regional problems and concerns. The emergence of South-South links in the 1960s in Latin America and the Caribbean, through the Latin American Free Trade Association and the Caribbean Community, were also attempts to expand development or economic opportunities, in the face of ongoing economic marginalisation

While some of this history may inform emerging regional groupings, the changed geo-political landscape and the impacts of globalisation have also significantly influenced regional alignments.

The Changed Geo-Political Environment

New alignments amongst regional and global institutions of, largely, economic governance pose complex challenges for social development. Globalisation creates new opportunities and generates greater risks as national borders become permeable and the traditional role of the nation state is challenged. At the same time, processes of social development and poverty eradication depend on the extent to which the poorest countries are able to manage the process of global integration in the interests of the majorities of poor people.

Countries in Africa and indeed in the south are trying to proactively position themselves in a "globalised world with uni-polar characteristics". Evident in this positioning is the recognition that the level of complexity in the type of relationships required at a bilateral and multilateral level demands a better understanding of the strategic social development challenges facing countries and regions1.

Central among these challenges, is how to locate regional initiatives in a world that has undergone a shift from a bipolar East-West Cold War dichotomy (or tripolar configuration, if the third world is included), to one in which there seems to be only one global hegemonic power . In this context the challenge is to find critical spaces to engage in a regional and global arena in ways that would promote both national interests as well as consolidate a relationship within the global economic south to ensure pro poor development2.

Regionalism and the African Renaissance

For example, overlaying Southern Africa's status as a regional power is the reality of globalisation. The worldwide spread of industrial production and new information technologies, accompanied and promoted by the rapid and unimpeded mobility of capital, unfettered free trade, the global reach and authority of transnational corporations and the digitalisation of money has implications for social development.

This process - concentrated in an essentially Euro-American (except for Japan) condominium of post-industrial economies - forms the core of the global system3. The relative or strategic importance of states is also a factor in the realignments that shape emerging power blocs4. As Africa's pre-eminent economic power (with a GDP three times that of Nigeria and Egypt), South Africa, by some definitions, is also considered a 'pivotal state'5.

The extent to which these processes and its contradictory consequences shape regionalism in southern Africa and thus impact upon human development is dependent on a number of factors6.

The significance or otherwise attributed to states such as South Africa and Nigeria gains relevance in the context of the African Renaissance. The assertion of African states of their role in the global arena is characterised by attempts to proactively work against the continued marginalisation of Africa and what is termed "Afro pessimism". Reconceptualising social development and poverty eradication strategies within an African Renaissance agenda at once provides a background of political and moral legitimacy for social policy interventions.

Moreover, the 'African Renaissance' could chart the way for the prospect of pan-Africanism revisited. Key to these issues is whether countries proceed along a path of competitive regionalism or cooperative regionalism, especially within the geopolitical 'Cape to Cairo' axis of eastern and southern Africa. This will depend on the extent to which the region prioritises an agenda for human development alongside the need for regional economic growth.

It is also important to note that the African renaissance strategy includes the development of a national and sub-regional programme. As an initiative it provides scope for networking and exchanges with African researchers and professionals throughout the Continent. It is a programme that also embraces an outreach to the African diaspora; a dimension that could co-ordinate an African renaissance agenda with South-South co-operation strategies.

A Regional Response to Social Development and Poverty

Social development and social policy considerations are gaining prominence as countries attempt to address increasing poverty, unemployment and social inequality. While social policy and development tend to be under-emphasised in the discourse on globalisation in the past, there is growing consensus among both donors and developing countries that globalisation requires new thinking about social policy responses at the national, regional and international levels. (ODI, 2000).

The discussions leading up to and after the World Summit on Social Development (WSSD) prompted the need for a critical analysis of social development within a changing global context and the increasing inter dependence of national economies. A central issue is the capacity of states to develop and manage policies and programmes to promote human development through institutions and structures that generally do not have the capacity or the resources to do this.

Building on the gains of the WSSD and the other United Nations Conferences of the 1990s therefore means establishing an enabling social, economic and political environment for national and regional social development. In the Southern African Development Community Social Development and Welfare Ministers came together to in December 1999 to identify and find ways of addressing the increasing fragmentation, poverty, alienation and vulnerability of the people in the region to the devastating impact of HIV/AIDS.

Motivated by the need to deal with common problems that go beyond geographical, economic and social boundaries the social sector ministers in the SADC region are working on a protocol that would facilitate regional social development processes. This protocol includes a definition of social development, the principles and approach that would inform regional engagements and an agreed framework for programmatic action. It provides a basis for countries in the region to give effect to their commitments made at the UN Social Summit in 1995 and the UN Post Social Summit Conference held in Geneva in 2000.

Importantly, the regional agenda for social development is based on a concerted dialogue on critical issues identified by the countries themselves and debated within the context of regional and country specificity. A guiding principle that informed the regional discussions was that the agenda and outcomes on social policy and development should be led and directed by the region and not by external forces.

Some Principles to Guide a Regional Agenda for Social Development

Social development within the regional context is defined as an integrated holistic process. Captured in the definition is the aim of improving the quality of life of all, particularly those who are excluded from mainstream society as a result of poverty, gender discrimination, unemployment, racism and other forms of inequality and discrimination. The definition also focuses on and prioritises the need for the social, economic, physical, cultural, spiritual, moral and political development of people in the region.

Moreover, while it spells out objectives designed to work towards the well being of all members of society, particular emphasis is accorded to the disadvantaged and vulnerable. Human rights, democratic, transparent and accountable governance alongside the active participation of citizens and civil society organisations in the design and implementation of a regional social development agenda are made explicit. Further, the development of a regional social development agenda is also seen as a necessary precondition for dealing with increased social fragmentation, poverty, disasters and crises and for the promotion of sustainable economic processes.

The Challenges of Regionalism and Social Development for Poverty Eradication

Firstly, regional cooperation should be based on more than the current trend of securing markets for economic growth and security. There should be a concerted, systematic attempt to develop national and regional consciousness on the links between macro economic concerns and social policy imperatives.

Secondly, democracy, peace and security as well as an active regional agenda to address poverty and HIV/AIDS must be central to a regional strategy for social development. Thirdly regional social development initiatives whether they are SADC driven or elsewhere, require effective co-ordination, technical and financial resources as well as institutional space and capacity.

Fourthly, urgent steps need to be taken to ensure capacity building and effective use of development aid on common problems in the region. Capacity building is not only required for officials but also at the level of political and community leadership.

Fifthly, a regionally integrated human development strategy calls for shared responsibility with the broad range of civil society organisations and the private sector. Such a strategy has to be based on country and regional needs to address short and long term development goals. The participation of community representatives and organisations in new partnerships with governments and business could be enhanced through the provision of financial assistance and by identifying connecting points for such engagement. Furthermore, the tendency to substitute issues of distribution (power and resources) with the need for efficient management within the public and non-governmental sectors is cause for concern. In developing a shared responsibility for transformation, it is important for all partners to understand that different sectors bring different but critical qualities to the process. The role of governments cannot be substituted by civil society organisations or by market forces on the basis of efficiency arguments

Sixthly attention has to be given to the need to improve information flows and communication processes in the region. This is not only in relation to official processes but also with the full range of civil society organisations in the region. Ensuring that citizens are empowered with appropriate information and knowledge to access their rights and entitlements is an imperative in building a people driven social development process. Consolidating regional relations within a human rights framework to address social development is also vital. A particular challenge for the region is ensuring that a progressive agenda of internal and external renewal will be located within a human rights framework.

In recasting a regional role for social development in the global system countries have the complex task of negotiating both spaces and agendas that will ensure political credibility, moral legitimacy and a people centred development path that is sustainable and socially just. The challenges therefore are many. They include the urgent need to satisfy the popular expectations raised through international commitments. Effective ways must be found to mediate the wide range of competing political, social and economic pressures that continue to be advanced by different social forces in our countries. There is a need to work together to reconcile the almost universal tension between the internal needs of bureaucracy and the needs of citizens, in order to accelerate service provision within a caring and enabling framework. There is also a need to negotiate the difficult path between political democratisation and economic liberalisation.

Moreover, governments need to resolve the discontinuity between policy objectives and outcomes. In doing this they need to distinguish more clearly between ineffective implementation (resulting from a lack of capacity, particularly funds, rather than a commitment to the implementation of government policy) and non-implementation (resulting from a lack of compliance with such policy). As efforts are made to implement regional agendas for social development, it will also be important to devise appropriate and differentiated strategies to address these two issues.

The need for more effective forms of partnership between states and civil society has been bolstered by recent research7, which has demonstrated that the increased capacity of states is positively, rather than inversely, correlated with the increased vitality of civil society. As civil society grows more robust, the capacity of states to govern is increased.

Attempts to shore up a platform of stability have encountered the enduring reality that our societies are shaped not only by the activities of states committed to fulfilling the aspirations of the majority of their citizens, but also by the activated interests and demands of conflicting social forces.

Notes

1. Department of Foreign Affairs. Thematic Reviews, Strategic Planning: Creation of Wealth and Security, Pretoria, 1999, p.3. Draft statement of South Africa's goals in addressing the challenge of globalization.
   
2. S.P. Huntington. "The Lonely Superpower," Foreign Affairs, March/April 1999, p. 35.
3. This definition builds on Hein Marais' discussion of "The Battleground of the Economy" in his book, South Africa, Limits to Change: The Political Economy of Transformation (Zed/UCT Press, 1998), pp. 100-145.
   
4. See for instance Taylor, V, 2000, Marketisation of Governance, DAWN/ SADEP Cape Town
   
5. "What it all hinges on," Economist, April 10, 1999, p.9. Review of The Pivotal States: A New Framework for U.S. Policy in the Developing World. Eds. Robert Chace, Emily Hill, Paul Kennedy. Norton, 1999. 448 pp.
   
6. Ibid., p.36.
   
7. Rodrik [1996] 'Why do more open economies have bigger governments?' Working Paper 5537 of the National Bureau of Economic Research, Cambridge: Massachusetts; Evans [1996] 'Government Action, Social Capital and Development: Reviewing the Evidence on Synergy' in The World Bank [1997]; The World Bank [1997] World Development Report 1997: The State in a Changing World, Oxford: Oxford University