Briones - Globalization, Nationalism and Public Administration
Briones - Globalization, Nationalism and Public Administration
Briones - Globalization, Nationalism and Public Administration
October 1997)
•
Globalization, Nationalism and
Public Administration:
Challenge and Response
LEONOR MAGTOLIS BRIONES':'
. • national scale .
Einführung
As we near the end of the second millennium and prepare for the third
thousand years of life on this planet, debates have heightened on the directions
of "our common future." One word which has elicited a wide range of conflicting
reactions is globalization. Another word is nationalism. National, regional and
global conferences are continually held on the implications of globalization for
the inhabitants of this fragile planet. Debates and exchanges take place almost
• daily in different fora and media-print, radio, TV, and of course, the Internet.
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2 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
It is very likely that globalization and nationalism will be among the most
powerful forces which will shape our lives, individually and collectively, in the
near and distant future. It is appropriate for theoreticians and practitioners of
public administration to examine these two forces as they impact on the lives of
the Filipino people.
This overview paper is divided into four major parts. The first part deals •
with concepts of globalization. The wide range of concepts is grouped into two
parallel streams: mainstream concepts and emerging concepts. The second
part of the paper identifies the challenges and opportunities of globalization in
four main areas: the economy; political institutions and governance; social
institutions and culture; and science and technology. Human development is
the unifying thread which integrates these four areas. The third part of the
paper is on nationalism. It reviews current thinking on new nationalism. The
fourth and last part focuses on the challenges to the theory and practice of
public administration.
The paper ends with remarks on the practice of using the image of animals •
to portray national goals, i.e., the Philippines' aspiration to be a tiger economy.
Concepts of Globalization
Mainstream Concepts
•
Mainstream concepts view globalization as primarily an economic,
particularly trade and business phenomenon. Globalization did not descend on
national economies in one fell swoop. The process has been going on for at least
two decades. In recent times, globalization was accelerated by spectacular
advances in science, technology and information.
January-October •
GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 3
• North, so much so that people are now talking about the erasing of the
traditional North-South cleavage and pointing to the rise of the South
in the North just as the elites of the South tied to the world economy
constituted an emerging North in the South (Bello 1997: 4-5).
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Emerging Concepts
The second set of concepts does not limit the globalization process to macro
and microeconomic phenomena. For example, Sarah Timpson, Resident
Representative of the United Nations Development Program (UNDP), views •
international movements, actions and initiatives on democracy, human rights,
environmental and social development as part of globalization.
The work of the UNDP and other United Nations (UN) organizations has
contributed much to the globalization of the above concerns. The series of
global UN summits on social development, women, population and housing has •
focused global attention on these concerns. Governments have made
commitments and set specific targets as their contribution to global solutions.
January-October •
GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 5
• summit in Vancouver, Canada will also see alternative NGO summits. The only
difference is that the Canadian government is giving NGOs full access to the
formal Summit as well as permission to hold alternative conferences. These
parallel NGO meetings bring attention to issues which are left out in meetings
of governments and international institutions.
The above are only a few examples of many NGO initiatives at the
.. , national, regional and global levels which have resulted in the globalization of
issues related to democracy, human rights, environment and social
development. They are equally active players in the process of globalization -
whether economic, political, social or cultural.
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 7
•
• of countries which underwent structural adjustment and the consequent
In the Philippines, the late seventies and early eighties saw the emergence
'. of NGOs and people's organizations (POs). These groups sprang from the real
experience of jobless growth, poverty, social disintegration, gender-related
problems and environmental destruction which came in the wake of structural
adjustment.
Prior to the ratification of GATT by the Senate, the Philippines had been
actively involved in negotiations and meetings like the Uruguay Round. NGOs
had been campaigning and bringing to public attention the dangers of
unfettered globalization. However, it took the GATT debates to galvanize the
attention of Filipino citizens and focus their interest on globalization.
When it became evident that the vaunted safety nets were not
forthcoming, erstwhile defenders of GATT turned vociferous critics.
The debates on GATT prepared the public for even more bitter debates
about APEC. While government had a headstart in the information campaign on
APEC, eventually media covered the positions of the three major NGO groups
opposing APEC. The position of government was that the commitments
submitted to the APEC Summit will complete the globalization process and
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pave the way to prosperity for all Filipinos. The position of APEC opponents
•
ranged from total rejection of the commitments of government to warnings that
the country was ill-prepared to implement them and that there would be more
winners than losers. Concerns were also expressed about sustainable
environment and gender issue.
All the above views and more are propounded by various members of the
University of the Philippines community. The university can serve as a venue
January-October
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 9
i"t
I
It is accepted by all who are involved in the debate that globalization does
not only transform economies; political institutions also undergo profound
changes, with consequent implications for governance.
The alternative view agrees with the analysis that the present structure
and administrative capacity of the government is not sufficient to deal with the
complex problems, demands and consequences of globalization. However, it
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Globalization will give free rein to the forces of the market. However, the
market can only bless those who can play-those who have goods to sell and
those who have the income to buy. Increasingly, large sections of the ~
population are excluded from the market by poverty, unemployment and other •
factors. The government cannot ignore this phenomenon of exclusion of more
and more people from meaningful participation in society.
Public Finance. Even public finance has not been spared from the
transforming effect of globalization. On taxes, calls have been made for taxes
on global commons, as well as taxes designed to raise resources for the
rehabilitation of the environment. Governments are enjoined by the UN to set
aside specific portions of their budget or commit a percentage of their gross
national product (GNP) for social development and for global concerns.
•
The wide array of financial arrangements which has emerged in the wake
of globalization has opened new vistas for resource generation. At the same
time, problems of accountability are increasing due to complex organizational
arrangements in public programs and projects.
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 11
For the past decade, the call has been for downsizing. Private businesses
started the trend with ruthless reductions in staff in the grim battle for
survival. In the United States alone, hundreds of thousands of employees were
booted out as corporations downsized in order to sharpen their competitive
edge. Governments followed the trend and adopted the call for downsizing.
The Role of Civil Society. In recent times, civil society has enlarged its
participation in governance in the face of the minimalization of governments .
• Parr notes:
, In the globalizing world of the 21st century, the civil society takes on
an increasingly powerful role in development and in influencing
policies. Globalization has meant a retreat in the role of the state, as
market forces determine the course of growth. This rearrangement of
roles, between the market, the state and people gives more space for
the civil society to organize itself to effectively voice the interests of
the people and of the common good. It also gives more responsibility to
the civil society to take up the interests of the people whose voices
would otherwise be overwhelmed and drowned by the powers of
business interests and of the politically powerful (Parr 1997: 1-2).
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The main players in the dominant globalization process are big business,
•
governments and international institutions. Reactions to the underside of
globalization have come mainly from civil society. As global, regional and
national governance mechanisms emerge, civil society has likewise organized
itself on a global, regional and national scale.
Thus, social institutions and culture are now transformed by media and
technology. The observation has been made that media have now taken over
the functions of social institutions which serve as the bedrock of society. •
Institutions like the family, organized religion and education have been
profoundly transformed. It is said that media disseminate knowledge and
information at a much faster rate than regular institutions of learning. Anyone ,
interested in religion will have infinitely more choices in the Internet than ,
going to church. Concepts of the family are also undergoing transformation. .
January-October
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 13
Drug-related crimes like mass murders have become part of the daily fare.
Societies all over the world, including the Philippines agonize over apparently
senseless and unexplainable crimes. Violence against women and children is
apparently on the rise in the Philippines and elsewhere.
Mass suicides are not new. What is new is the increase in incidence in
different parts of the world, e.g., the United States (U.S.), Canada, France,
Switzerland and Japan.
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and bewildering cultural changes appear to exacerbate anomie among the youth
•
in certain societies, at this time. Suicide statistics in Australia and New
Zealand are even more disturbing than those of the U.S. and Japan. All these
are symptoms of disease in the global fabric of society.
One aspect of the current debate is whether poverty has worsened with
structural adjustment and other policies designed to enhance globalization. The
answer is a resounding yes from UN organizations, NGOs, POs and other •
advocacy groups. Mainstream economists argue back that poverty would be
much, much worse without structural adjustment.
The debate has been raging for more than ten years on a global scale.
NGOs regularly stormed the annual meetings of the WB and the IMF and
presented arguments as well as alternative programs. Two years ago, the WB
finally relented and grudgingly agreed that there had been mistakes in
structural adjustment programs in certain countries. The WB President agreed
to conduct a tripartite evaluation of selected countries to determine the success
or failure of structural adjustment. A major area to be examined is its impact
on poverty.
January-October
•
I
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~ GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 15
• necessarily blessed by technology, they are threatened by it. The office and
factory as areas of work are in the process of transformation as more and more
people work in their homes and other places.
Those who are employed are beset with insecurities; those who are
unemployed are driven to desperation. The drive to compete and deal with the
stresses of unemployment is the cause of physical as well as social illness.
Work is creation; in many ways, it is life itself. If the end of work is near, and
the future of work is uncertain, what is there to look forward to?
All over the world, social institutions are breaking up. All over the world
also, hope is reborn in many ways and in many forms. Even as people are
engulfed in consumerism, alternative lifestyles are emerging. Even as the
• 1997
Pllse l'SftARr
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It has been noted that globalization has been going on for decades.
However, spectacular breakthroughs in science, technology and information
accelerated the process. While change is a fact of life, change is now occurring
at a dizzying speed. Thus, globalization is going on not only in trade, business
and investment; practically all facets of human endeavor are now being
globalized. •
In the overweening drive to stay ahead, the human costs are tremendous.
Surviving in the third millennium can mean running in a race without end,
where there are no final victors, only temporary winners. Competition is not
only with others-whether individuals, firms, communities or governments-
more often, competition is with oneself.
Since the products of science and technology are goods which have
financial costs, these tend to be available only to those who can pay for them.
Those who have limited resources can only content themselves with leftovers,
January-October •
GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 17
• throwaways and second-hand gadgets. Thus, the gap between those who have
access to science and technology and those who don't is widening. It is possible
to have technologically advanced areas as well as "Jurassic" areas-all in one
country. This is evident for example in countries like Mexico. This can also
happen in the Philippines. Advanced areas can even move faster while lagging
areas will be left behind in the garbage bin of science and technology.
The Bottom Line. What is the bottom line for globalization and science
and technology? They must serve humanity-and not just one country or one
sector, one region or one community. Expansion of the frontiers of knowledge
must be available to all. The greatest gains in science and technology are in the
preservation of life. Exciting discoveries in health and medicine must bring
relief and enhance the lives of all mankind and not just the few who can afford
them. Equally wonderful advances in food production have to be shared with
the global community. The present situation of people starving to death while
others are throwing away leftovers is intolerable.
• In other words, science and technology must enhance and enrich the
quality of life of all who live in this planet. Thus, it will indeed be a blessing to
all.
Human Development
For seven years, the UNDP has been issuing a Human Development
Report which makes it possible to track the progress of a country, a region and
the community of nations as a whole. Human development adds the variables
of education and health to income as a gauge for measuring development.
1997
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gender. Thus the need to "engender human development" was given special
•
attention.
The era of globalization has seen the surge of nationalism in many parts
of the globe. As in the earlier topics discussed, there are also two parallel
streams of thought on nationalism:
In the Philippines, there are many variations between these two streams.
It is no big deal for business corporations to change nationalities if it will
enhance corporate profits. It is said that a number of firms owned by Filipinos
are actually registered in Hong Kong or elsewhere. Thus, they can register as
foreign firms in the Philippines and avail themselves of come-ons and
sweeteners which are usually dangled to foreigners.
January-October
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 19
Big ticket deals in privatization have brought to the fore the real
possibility that strategic sectors of the economy will be controlled by non-
Filipinos. The prospect brings discomfort to many while others don't see what
the point is all about.
But why the need for new nationalism? For example, one dimension is
anti-imperialism, we have to take the classic "Stages of Imperialism" a few
steps further. Products used to be identified with specific countries, e.g., U.S.,
Japan, or what have you. Now products are composites of parts made in
different countries. Firms used to be identified with countries, e.g., General
Electric with the U.S., Toyota with Japan, Mercedes Benz with Germany, and
so on. Now we have multinational ownership of firms. A mother corporation
• might be American, the daughter might be French and the grandchild
corporation might be Singaporean or Japanese. An airplane can have a
hundred parts made by a hundred different corporations from a hundred
different countries.
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In the Philippines, civil society has been very active in literally serving the
people's interests. It can play an important role in identifying the building
blocks of new nationalism.
January-October
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 21
• When I took up public administration during the sixties, the borders of the
field were fairly clear and well-defined. We students had no doubt about what
we meant when we used the term public administration. How should we now
define public administration in a borderless, globalizing world?
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Clarifying Concepts on the Role of the State, the Private Sector and Civil
Society. The role of the state has been the subject of vigorous debate. Views
range from the idea of the minimalist state, the concept of a transformed role
for the state, and the traditional view that the state must playa dominant role
•
in the economy.
At present, it is the government and the NGOs which are debating publicly »
I
on the role of the state. The challenge is for theoreticians and practitioners in
the field of public administration to join the "conversation" on this key issue.
Nowadays, the delivery of public goods and services is not limited to the
government. Both the private business sector and civil society are actively
engaged in the production, marketing and distribution of public goods. Thus
concepts of what private sector and civil society mean are also changing. The
earlier definition of private sector was "everything outside government." At
present, the current definition of civil society is "everything outside government
and the private business sector." With boundaries blurring among government,
civil society and the private sector, how is one distinguished from the others?
January-October
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 23
•
• and regulations, formal structures, permanency and so on. With the advent of
advances in science and technology, particularly in information technology,
many aspects of the bureaucracy are undergoing transformation .
...
For example, more and more people are able to do their work at home
through computers, e-mail and the Internet. This has implications on civil
service rules, working hours, and even requirements for government offices and
buildings. As one expert in public administration puts it, if the routine
functions of government will eventually be performed by computers and robots,
will there be need for large administrative staffs? The implications for capacity
building and requirements for different skills boggle the imagination. What will
the bureaucracy of the third millennium be like?
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The 1997 Human Development Report confirms what the NGOs and
•
individual academics have been saying all along: globalization has its dark
side. In developing countries, it is characterized by bad policy, bad terms and
bad rules. Thus, benefits for poor people are very uncertain. The Report
contains a special feature on the impact of liberalization in the corn producing
areas in the Visayas and Mindanao (Human Development Report 1997: 86).
Impact on the major losers, like corn, is just one of the areas urgently needing
review.
So far, two reports (for 1996 and 1997) have been completed. These
-
reports were submitted to the Commission on Social Development. One of the
more interesting findings is on infant mortality and maternal mortality.
Governments, including the Philippines, have made commitments to reduce
these by 50 percent by the year 2000. Interestingly, in the case of the
Philippines, instead of getting reduced, maternal mortality is rising.
Correspondingly, infant mortality is likewise rising. This is confirmed by
studies conducted by Professor Herrin which are cited by the Philippine
•
Institute of Development Studies (Manasan, Llanto and Nuqui 1996: 104-108).
January-October
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GLOBALIZATION, NATIONALISM AND PUBLIC ADMINISTRATION 25
• the bureaucracy to its minimal size. But it must be recognized that even as
waste, extravagance and unconscionable expenditures are eliminated,
government must help losers and potential winners participate in the global
arena. It must formulate policies and implement programs which will enable
them to benefit from the expected blessings of globalization. This is a
responsibility that government cannot retreat from.
Not many studies have been made on the national budget allocations and
actual expenditures. The national budget is the most eloquent expression of
government's priorities and commitments. Again, a group of NGOs in the
Philippines is examining budget priorities in relation to specific social
• development requirements. This is a very challenging area for public
administration policy study groups.
Finally, the role of NGOs, private volunteer organizations (PVOs) and POs
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26 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
I
Decentralization as a process has been building up in the Philippines for
•
nearly five decades. It will be most fascinating to see how decentralization will
further develop within the framework of globalization.
I
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