Governments throughout much of Africa operate in the interest of only one section of the population, writes Clionadh Raleigh
During his African tour this week, Taoiseach Bertie Ahern stated that, regardless of corruption, the Government had to deal with African governments. After all, however poorly governments run their countries, they are responsible for their people. This was partially a response to the questions over Irish aid and partially to concerns over Kenya's elections.
What is happening in Kenya is very much in line with African politics in general. In most African countries, powerful players are manipulating a defunct and dysfunctional political system for the benefit of very few. Government corruption is rife. Disorder is a useful political tool, creating mayhem and making reconciliation across opposing political party lines unlikely.
But regardless of whether Mwai Kibaki or Raila Odinga eventually becomes president, many groups in Kenya will believe that the government does not represent them and politics as usual will resume. These events are not uncommon in Kenya: during former president Daniel arap Moi's "democratic" rule, he forcibly removed members of the opposition's ethnic community from prime voting areas.
The debate over Kenya, and Irish aid in Africa in general, showcases a myriad of opinions about how Ireland should encourage development. Irish aid has noble aims, including building schools, treating HIV/Aids and encouraging "good governance". But effective governance underpins the success of all other development goals. However, it is by far the most difficult factor to improve.
What is missing from the impassioned discussions in aid agencies, non-governmental organisations and government (and in this paper) is a recognition that African countries are modernising without developing. The institutions Irish aid hopes to encourage, such as democracy, government transparency, a formal economic sector and peacebuilding, are only superficially adopted by many governments. Governments are increasingly entrenched in regional and ethnic politics to survive.
The main problem is that the bedrocks of developed government - political legitimacy, national sovereignty and transparency (to some degree) - are missing in most African countries. Instead, the underlying logic of governing remains exploiting government resources for the benefit of powerful regional or ethnic alliances. The notion that "government" is there to provide public goods, such as schools, hospitals, infrastructure and representation for all citizens is missing. The leaders of African countries too often believe that they own the resources within it, and can distribute them in a way that benefits their hold on power.
Without recognising and dealing with this fact, external aid for development will not reach people and free and fair elections are impossible. African political systems must stop representing only the ethnic groups of the leader. Aid distribution must be tailored to the degree to which we can presume that governments are willing to develop and govern across their country, regardless of ethnic or regional affiliations. Development aid must, if necessary, bypass governments unwilling to make that change.
In turn, we must recognise various degrees of statehood in Africa, from well-functioning developed countries like South Africa to "phantom" states such as the Central African Republic. Without such an external focus on the process of governing, sub-Saharan African countries will continue to vacillate between functioning and failing with unsettling frequency. Conflict is the end result of unstable governments.
The governance challenge may seem overwhelming, but it is not. Effectively used aid can sustain communities and build capacity at local level, allowing communities to counter national corruption. Ireland's significant aid budget and sustained interest in Africa has the potential to transform one of the world's most pressing problems.
Dr Clionadh Raleigh is a researcher at the department of government in the University of Essex
- In Monday's Head2Head, John O'Shea of Goal and Hans Zomer of Dóchas debate how best to channel aid to Africa