transnational actors and anti-poverty policymaking in ghana

218 Pages·2015·1.03 MB·English

TRANSNATIONAL ACTORS AND ANTI-POVERTY POLICYMAKING IN GHANA:
AN IDEATIONAL PERSPECTIVE

A Thesis Submitted to the College of
Graduate Studies and Research
In Partial Fulfillment of the Requirements
For the Degree of Doctor of Philosophy
In the Johnson Shoyama Graduate School of Public Policy
University of Saskatchewan
Saskatoon
By
ROSINA K. FOLI

 Copyright Rosina Foli, September, 2015. All rights reserved.
Permission to Use
In presenting this thesis in partial fulfilment of the requirements for a Postgraduate degree from
the University of Saskatchewan, I agree that the Libraries of this University may make it freely
available for inspection. I further agree that permission for copying of this thesis in any manner,
in whole or in part, for scholarly purposes may be granted by the professor or professors who
supervised my thesis work or, in their absence, by the Head of the Department or the Dean of the
College in which my thesis work was done. It is understood that any copying or publication or
use of this thesis or parts thereof for financial gain shall not be allowed without my written
permission. It is also understood that due recognition shall be given to me and to the University
of Saskatchewan in any scholarly use which may be made of any material in my thesis.
Requests for permission to copy or to make other use of material in this thesis in whole or part
should be addressed to:
The Director of Johnson Shoyama Graduate School of Public Policy
University of Saskatchewan Campus
Diefenbaker Building
101 Diefenbaker Place
Saskatoon, SK, Canada, S7N 5B8
i
Abstract
The influence of transnational actors (TNAs) on the policy process in most sub-Saharan African
(SSA) countries is widely acknowledged. Yet, studies examining this phenomenon focus mainly
on the imposition of policy conditionality and under explore other mechanisms such as ideational
processes, which mediate the relationship between national and transnational actors. Focusing on
two poverty alleviation policies implemented in Ghana – Livelihood Empowerment Against
Poverty (LEAP), and Ghana Poverty Reduction Strategy (GPRS) –, this study draws on the
Transnational Policy Process (TPP) Framework to explore the ideational mechanisms that were
instrumental in the development of these two social policies. In order to do so, qualitative case
study research methods involving interviews and document reviews are used. This thesis argues
that policymaking is multi-causal, which means that focusing exclusively on conditionalities
without accounting for the role of ideational and other factors obscure our understanding of the
policy process in developing countries. By examining the policy process in Ghana, this study
ascertains that, beyond imposition of policies through conditionalities, TNAs also deploy other
mechanisms that are mainly ideational in nature. Ideational channels include conferences, field
trips, technical cooperation, training and capacity building, as well as collaboration with civil
society organizations. Beyond these, TNAs use their memberships in policy structures, such as
Ghana’s cross-sectoral planning groups (CSPGs) and sector working groups (SWGs) as a crucial
platform to purvey policy innovations. Additionally, in some cases, the mechanisms are also
coupled to improve effectiveness. The study also shows the mediating role of national
institutions and contexts more generally, a role that makes the adoption of new policy ideas a
necessary part of the policy process. Moreover, there is an indication that using ideational
ii
mechanisms promotes a sense of policy ownership among national policymakers who actively
participate in shaping policies in partnership with transnational actors.
iii
Acknowledgements
O give thanks unto the Lord, for He is good;
for His mercy endures for ever. I Chronicles 16:33
The course of my program has not always been smooth but God has been very good to me! All
praise and thanks be to God Almighty.
There are many people who have contributed in various unique ways throughout my PhD
program at the Johnson Shoyama Graduate School of Public Policy (JSGS). My sincere thanks
go to my supervisor, Prof. Daniel Béland, who accepted to work with me, providing
encouragement and guidance from the very beginning. Prof. Béland, I am grateful for your
continuous support of my PhD and related research, for financial support, and for your patience
and motivation. Your guidance helped me in all of my research and the writing of this
dissertation. I could not have imagined having a better advisor and mentor for my PhD study.
For my committee members, Prof. Patience Elabor-Idemudia, Prof. Lihui Zhang, and Prof.
Jeremy Rayner, I appreciate your commitment to take time off the loads of work that you already
had, to read my work, providing highly excellent comments and suggestions, which helped me to
shape and reshape my dissertation. I appreciate the contribution and suggestions of my external
examiner Prof. Donald Ray towards reviewing my work. Thank you for the diverse insights and
perspectives that enriched my work.
I acknowledge financial support I received through the Nexen Scholarship and the George and
Arlene Loewen Family Bursaries. Prof. Béland likewise provided me with the much needed
research assistant position to enable me finance my studies particularly at a time when I had no
funding.
I am thankful for the faculty and staff of the JSGS, for their encouragement and assistance during
the program. The various classes combined to provide excellent training in the course of my
study. To my colleague Ishmael Wireko, thank you for those informed discussions, for reviewing
and commenting on my drafts.
My gratitude extends to all respondents who spent time answering the questions I had about
transnational actors in the Ghanaian policy process.
I would like to gratefully acknowledge Prof. Kwame Ninsin for gently nudging me in the right
direction even at the most difficult time in my academic journey. I also appreciate Prof. Kwame
Boafo-Arthur and Prof. J. Atsu Ayee for their motivation.
A special thanks to my family for showering me with love and for being there whenever I need
someone to talk to. Although dad left early, you all contributed in diverse ways to see me
through my education. My deepest appreciation goes to my mother Dope Gamado and my sister
Grace Foli-Amuzu for their prayers and moral support. I am especially thankful to my husband,
Robert Kofie, for his sacrifices and confidence that I can successfully complete my program of
study.
iv
Table of Contents
Abstract ......................................................................................................................................................... ii
Acknowledgements ...................................................................................................................................... iv
List of Tables ............................................................................................................................................. viii
List of Figures ............................................................................................................................................ viii
List of Abbreviations ................................................................................................................................... ix
Chapter I: Introduction Transnational Actors and Policymaking in Sub-Saharan Africa ............................. 1
A. Introduction ....................................................................................................................................... 1
B. Scholarly Context .............................................................................................................................. 2
C. Problem Definition and Research Questions .................................................................................... 4
D. Contribution of the Thesis................................................................................................................. 7
E. Plan of Thesis .................................................................................................................................... 9
Chapter II: Overview of the Policymaking in Ghana: Actors, Institutions and Processes .......................... 12
A. Introduction ..................................................................................................................................... 12
B. The Trajectory of Ghana’s Policy Environment ............................................................................. 13
1. Pre-Independence ........................................................................................................................ 13
2. Independence .............................................................................................................................. 18
3. Post-Independence ...................................................................................................................... 23
C. TNAs and Policymaking ................................................................................................................. 34
D. Conclusion ...................................................................................................................................... 36
Chapter III: Transnational Actors and National Policymaking – Existing Explanations............................ 39
A. Introduction ..................................................................................................................................... 39
B. Existing Perspectives ...................................................................................................................... 41
1. The Structural Perspective .......................................................................................................... 42
2. Institutional Perspective .............................................................................................................. 48
3. Psychological Perspective ........................................................................................................... 51
4. Ideational Perspective ................................................................................................................. 55
C. Analytical Framework..................................................................................................................... 62
D. Conclusion ...................................................................................................................................... 71
Chapter IV: Methodology ........................................................................................................................... 74
A. Introduction ..................................................................................................................................... 74
B. Qualitative Research Methods ........................................................................................................ 75
v
C. Case Selection ................................................................................................................................. 77
1. GPRS I & II ................................................................................................................................ 78
2. LEAP........................................................................................................................................... 80
D. Rationale for Case Selection ........................................................................................................... 80
E. Data Generation .............................................................................................................................. 82
F. Data Analysis .................................................................................................................................. 86
G. Conclusion ...................................................................................................................................... 89
Chapter V: TNAs and Policymaking in Ghana - The Case of Ghana Poverty Reduction Strategy (GPRS)
.................................................................................................................................................................... 92
A. Introduction ..................................................................................................................................... 92
B. Evolution of Poverty Reduction Strategy Papers ............................................................................ 93
1. To Be or Not To Be: Ghana Declaring Herself HIPC .............................................................. 100
2. Ghana Poverty Reduction Strategy Papers ............................................................................... 107
C. Transnational actors and the GPRS .............................................................................................. 114
D. Conclusion .................................................................................................................................... 122
Chapter VI: TNAs and Policymaking in Ghana - The Case of the Livelihood Empowerment Against
Poverty (LEAP) ........................................................................................................................................ 126
A. Introduction ................................................................................................................................... 126
B. Cash Transfers Gaining Momentum ............................................................................................. 128
C. LEAPing Out of Poverty – Conditional and Unconditional Cash Transfer in Ghana .................. 132
1. The Decision to Pursue Social Protection through LEAP ........................................................ 132
2. Generating Support for LEAP ................................................................................................... 138
D. Transnational Actors and LEAP in Ghana .................................................................................... 143
E. Conclusion .................................................................................................................................... 150
Chapter VII Conclusion: Lessons and Implications.................................................................................. 155
A. Introduction ................................................................................................................................... 155
B. The Transnational Policy Process and Policymaking in Ghana .................................................... 158
C. Conditionalities, Idea Peddling and the Role of CSOs ................................................................. 165
D. Policy Recommendations .............................................................................................................. 170
E. Limitations and Future Research .................................................................................................. 171
F. Concluding Remarks ..................................................................................................................... 173
References ................................................................................................................................................. 175
vi
Appendices ................................................................................................................................................ 202
1. Appendix 1 ................................................................................................................................ 202
vii
List of Tables
Table 1 Types of Explanation .................................................................................................... 41
Table 2 The GPRS and TNAs .................................................................................................. 123
Table 3 TNAs and LEAP ......................................................................................................... 152
List of Figures
Figure 1 Transnational Policy Process Framework .................................................................. 70
viii
List of Abbreviations
AfDB African Development Bank
AFRC Armed Forces Revolutionary Council
AG Attorney General
AIDS Acquired Immune Deficiency Syndrome
ARPS Aborigines Right Protection Society
AU African Union
CAQDAs Computer Assisted Qualitative Data Analysis
CASA Citizens Assessment of Structural Adjustment
CCTs Conditional Cash Transfers
CDD-Ghana Ghana Center for Democratic Development
CDF Comprehensive Development Framework
CG Consultative Group
CGM Consultative Group Meeting
CLIC Community LEAP Implementation Committee
CPC-UNC The Carolina Population Center – University of North Carolina
CPP Convention Peoples Party
CSOs Civil Society Organisations
CSPGs Cross Sectoral Planning Groups
CSPS Center for Social Policy Studies
DAC Development Assistant Committee
DFID Department for International Development, United Kingdom
DLIC District LEAP Implementation Committee
DPs Development Partners
DSA Debt Sustainability Analysis
DSW Department of Social Welfare
ECOSOC United Nations Economic and Social Council
EPRI Economic Policy Research Institute
ER/SAPs Economic Recovery and Structural Adjustment Programmes
ERP Economic Recovery Programme
FDI Foreign Direct Investment

ix