ANIMAL HEALTH SERVICES: FINDING THE BALANCE BETWEEN PUBLIC AND PRIVATE DELIVERY

Growing fiscal deficits and greater awareness of the huge economiccost of often-inefficient government activities have renewedinterest in transferring the delivery of important servicesfrom the public to the private sector in developing countries.This article, drawn from a longer study, offers a frameworkfor determining the appropriate roles of the public and privatesectors in delivering animal health services, such as veterinarysurveillance, disease vector control, vaccination, clinicaltreatment of sick animals, inspection of livestock products,and veterinary research and extension. The profitability and therefore the supply of private veterinaryservices is governed by several factors arising from economiesof scale, such as the size of the livestock enterprises in thelocality, the nature of potential or actual diseases, and thetypes of animals raised in the production systems. Thus, inareas where private veterinary work is unprofitable or whereother types of market failure occur, economic or social concernsmay make some type of public intervention necessary. The transferof animal health services from the public to the private sectormust be done selectively, and government support may be neededto ensure the success of such transfers.      

Weak Links in the Chain II: A Prescription for Health Policy in Poor Countries

In an earlier article, the authors outline some reasons forthe disappointingly small effects of primary health care programsand identified two weak links standing between spending andincreased health care. The first was the inability to translatepublic expenditure on health care into real services due toinherent difficulties of monitoring and controlling the behaviorof public employees. The second was the "crowding out" of privatemarkets for health care, markets that exist predominantly atthe primary health care level. This article presents an approach to public policy in healththat comes directly from the literature on public economics.It identifies two characteristic market failures in health.The first is the existence of large externalities in the controlof many infectious diseases that are mostly addressed by standardpublic health interventions. The second is the widespread breakdownof insurance markets that leave people exposed to catastrophicfinancial losses. Other essential considerations in settingpriorities in health are the degree to which policies addresspoverty and inequality and the practicality of implementingpolicies given limited administrative capacities. Prioritiesbased on these criteria tend to differ substantially from thosecommonly prescribed by the international community.      

Deforestation and Forest Land Use: A Comment

Hyde, Amacher, and Magrath (1996) imply that deforestation andtimber rents (logging revenue minus logging costs other thantimber fees) are not subjects that justify policymakers' attention,arguing that market responses limit the scope of deforestationand that rents are usually small. But they fail to recognizethat land markets will not develop efficiently, nor will efficientlevels of forestry investments occur, when policy distortionsand other factors obstruct the conversion of open-access foreststo private or communal ownership. For these reasons rates ofdeforestation can be far above optimal levels. Contrary to theauthors' claims, timber rents often (although not always) arelarge in developing countries. Moreover, the allocation of rentsbetween loggers and the government owners of public forestscan indeed affect the profitability of forestry (and thus deforestation),the intensity of timber harvesting, and national welfare.      

Agricultural Extension: Good Intentions and Hard Realities

What considerations lead policymakers to invest in agriculturalextension as a key public responsibility, and what factors andagency incentives explain differences in extension system performance?To help answer these questions, this article provides a frameworkoutlining farmers' demand for information, the public goodscharacter of extension services, and the organizational andpolitical attributes affecting the performance of extensionsystems. This conceptual framework is used to analyze severalextension modalities and their likely and actual effectiveness.The analysis highlights the efficiency gains that can come fromlocally decentralized delivery systems with incentive structuresbased on largely private provision, although in most poorercountries extension services will remain publicly funded.      

Public Intervention in Health Insurance Markets: Theory and Four Examples from Latin America

This article examines rationales for public intervention inhealth insurance markets from the perspective of public economics.It draws on the literature of organizational design to examinealternative public intervention strategies, including issuesof contracting, purchaser provider splits, and regulation ofcompetition. Health insurance reforms in four Latin Americancountries are then considered in light of the insights providedby the theoretical literature.      

BEYOND RATE OF RETURN: REORIENTING PROJECT APPRAISAL

Traditional approaches to project appraisal fail in practiceto address two fundamental questions: whether a project belongsin the public or the private sector; and what effect any externalassistance associated with the project has on the country'sdevelopment. The first issue is of general interest to bothnational policymakers and international donors. If the governmentprovides a good or service that would otherwise have been providedby the private sector, the net contribution of the public projectcould be low. The second issue is of particular concern to donors.If financial resources are fungible, the project being appraisedmight well have been undertaken with out external financing.In this case, donor funds are actually financing some other,unappraised project. Both cases argue for a shift in the emphasisof project evaluation away from a concern with precise rate-of-returncalculations and toward broader sectoral analyses and publicexpenditure reviews. In this context, three areas critical forproper project appraisal include a consideration of the rationalefor public intervention, the fiscal impact of the project, andthe fungibility of external assistance.      

Public Social Spending in Africa: Do the Poor Benefit?

Education and health care are basic services essential in anyeffort to combat poverty and are often subsidized with publicfunds to help achieve that purpose. This paper examines theeffectiveness of public social spending on education and healthcare in several African countries and finds that these programsfavor not the poor, but those who are better-off. It concludesthat this targeting problem cannot be solved simply by adjustingthe subsidy program. The constraints that prevent the poor fromtaking advantage of these services must also be addressed ifthe public subsidies are to be effective.      

ALTERNATIVE FORMS OF EXTERNAL FINANCE: A SURVEY

For many developing countries, alternative forms of externalfinance—all forms of finance that are not guaranteed byor mediated through the public sector—have become increasinglyimportant as traditional financing to the public sector hasebbed. Yet a survey of the literature reveals few recent analyticalinsights about alternative financing, which includes foreigndirect investment, project lending, portfolio investment, closed-endequity funds, private nonguaranteed debt, licensing, joint ventures,quasi-equity contracts, and other forms of private, nonrecourselending to private borrowers. The literature offers little solidguidance for distinguishing between alternative and traditionalfinancing with respect to country risk, for establishing themost appropriate and efficient incentive structures and restrictionsin the host country, or for identifying the optimal financingmodes for international firms investing in developing countries.This gap in the analytical literature has important implicationsfor policy formulation. It is not always clear whether a countryis developing incentives and establishing safeguards (for ensuringadherence to project performance requirements) that are mosteffective in attracting alternative forms of finance.      

WAGE CONTROLS DURING THE TRANSITION FROM CENTRAL PLANNING TO A MARKET ECONOMY

Wage controls have been integral to the stabilization programsof the formerly socialist countries of Central and Eastern Europethat are now moving toward market economies. The usual rationalefor such restraints in "heterodox" stabilization efforts hasbeen the need to break the momentum of inflationary expectations.In economies in transition the pervasive weakness of governanceof state enterprises supplies an added imperative: the controlsare needed to hold the line against pressures for excessivewage increases, which must ultimately be paid for by decapitalizationof firms, reduction of tax revenues, or accumulation of enterprisedebt. Examination of the design and enforcement of various systemsof wage control leads to the conclusion that wage controls inevitablydistort decisions on employment and work effort. These distortions,moreover, are the result of the same features of state enterprisesthat necessitate wage controls in the first place. Ultimately,the only way to avoid such distortions is to remove uncertaintyabout the timing of privatization, to ensure that workers andmanagement have a well-defined stake in the newly privatizedfirms, and to establish financial discipline over the enterprises.      

THE PUBLIC SUBSIDIZATION OF EDUCATION AND HEALTH IN DEVELOPING COUNTRIES: A Review of Equity and Efficiency

The public sector in developing countries has traditionallyplayed an important role in the financing of educational andhealth services. This review finds, however, that the shareof public subsidies in these two sectors is not progressive,that is, proportionately higher for individuals in the lowersocioeconomic groups. This distribution persists despite explicitpolicies of universal free provision in many countries. Thearticle argues that the extent and pattern of public spendingcontribute to underinvestment and to a misallocation of scarceresources within the education and health sectors.      

Democracy, Public Expenditures, and the Poor: Understanding Political Incentives for Providing Public Services

The incentives of politicians to provide broad public goodsand reduce poverty vary across countries. Even in democracies,politicians often have incentives to divert resources to politicalrents and private transfers that benefit a few citizens at theexpense of many. These distortions can be traced to imperfectionsin political markets that are greater in some countries thanin others. This article reviews the theory and evidence on theimpact on political incentives of incomplete information forvoters, the lack of credibility of political promises, and socialpolarization. The analysis has implications for policy and forreforms to improve public goods provision and reduce poverty.      

GOVERNMENT SPENDING IN DEVELOPING COUNTRIES: Trends, Causes, and Consequences

Throughout the twentieth century governments have been spendingever larger proportions of national income. Three issues arisein discussions about the growth of such spending as it pertainsto developing countries: How does it compare with expenditurein industrial nations? What explains the growth in spendingby developing country governments? And what are the effectson economic growth? Government expenditure as a share of GDPin low- and middle-income countries, on average, is lower thancomparable shares in industrial market economies and, with fewexceptions, is growing. Many factors, including ideology, demographics,a positive income elasticity for public goods, the rising costof public goods relative to private goods, and perhaps developmenttheory and practice, explain this growth. As for the relationshipbetween government expenditure and economic growth, the empiricalevidence does not reveal any strong correlation. The size ofgovernment may engender strong ideological debate, but the positionthat the aggregate level of government expenditure is a significantdeterminant of growth rates receives little support.      

New Models for Old-Age Security: Experiments, Evidence, and Unanswered Questions

The escalating costs of traditional social security systemsare forcing countries to reevaluate the formal programs thatprovide income maintenance support to the aging. This articlesuggests a reform strategy built around three systems, or "pillars,"to provide old-age security—a public pillar with mandatoa private, mandatory savings plan, and a voluntary savings system.Three variations of this model are being implemented in differentcountries: the Latin American model, in which individual workerschoose an investment manager for their retirement finds; theOECD model, in which employers, union trustees, or both choosethe investment manager for an entire company or occupation;and the Swedish notional account model, a reformed pay-as-you-gofirst pillar that may be supplemented by a second, funded pillar.Preliminary empirical evidence on the efficiency and growtheffects of pension reform, mostly from Chile, indicates thatthe impact on national saving and financial market developmentand, through these, economic growth, has been positive and possiblylarge. Problems concerning high administrative costs and regulationsthat distort investment decisions remain to be resolved, however.      

Public Sector Reform in New Zealand and Its Relevance to Developing Countries

Does New Zealand's success story have lessons for developingcountries contemplating public sector reform? That questionusually elicits one of two reactions, both inadvisable in theauthors' view. The first reaction is to be impressed with theefficacy of the reforms and conclude that they should be adopteduncritically in other countries. The second reaction is thatthe special conditions existing in New Zealand are such thatnone of its reform experience is relevant to others. The authorstake a middle position, maintaining that poorer countries canindeed extrapolate from the experience of their higher incomeneighbor despite the different conditions under which they haveto operate. New Zealand's comprehensive overhaul of its publicsector affords both general principles and specific elementsrelevant to countries looking to improve the quality, efficiency,and cost effectiveness of their public service sectors, anda careful analysis of those reforms can ascertain what mightbe transferable and what principles might apply.      

ENTREPRENEURS AND ENTREPRENEURSHIP IN AFRICA

The article examines the widespread belief that indigenous entrepreneurshipis less well represented in African countries than in otherparts of the developing world. The evidence shows no dearthof ability among Africans to identify business opportunitiesand to act upon them—the two quintessential characteristicsof entrepreneurship. But the management problems these businesseshave sometimes encountered suggest that there may be a continuingrole for expatriates, provided the industries are fundamentallysound. Small businesses appear to have a better chance of successand are more viable than some of the heavily protected and subsidizedtransnational enterprises. The article finds that successful industrial entrepreneurs havecome from a variety of religious, cultural, and educationalorigins. It casts doubt on the efficacy of training programsto teach entrepreneurial skill and argues instead that a liberaleconomic regime is more likely to encourage entrepreneurship.Equally important is a well-grounded and widely dispersed growthof income, especially among small-scale cultivators, which leadsto a growth of demand for what small businesses produce.      

THE RELATIVE EFFICIENCY OF PRIVATE AND PUBLIC SCHOOLS IN DEVELOPING COUNTRIES

Aside from revenue mobilization, one of the arguments for allowingthe private sector to assume a larger role in the provisionof education is that it would increase efficiency, as administratorsbecome more responsive to the needs of students and their parents.But what is the evidence? Based on case studies that compareprivate and public secondary education in Colombia, the DominicanRepublic, the Philippines, Tanzania, and Thailand, private schoolstudents generally outperform public school students on standardizedmath and language tests. This finding holds even after holdingconstant for the fact that, on average, private school studentsin these countries come from more advantaged backgrounds thantheir public. school counterparts. In addition, preliminaryevidence shows that the unit costs of private schools are lowerthan those of public schools. Although these results cannot,in themselves, be used as arguments for massive privatization,they indicate that governments should reconsider policies thatrestrain private sector participation in education. Furtherresearch is needed to determine whether some teaching and administrativepractices in private schools are applicable to public schools.      

How Research Can Assist Policy: The Case of Economic Reforms in Uganda

Research has had a powerful impact on policy in Uganda, affectingthe climate of opinion, improving the quality of the policydebate, and helping focus public policy and intervention onpoverty reduction. Uganda's successful use of knowledge andresearch to help set public policy priorities demonstrates thateven a poor postconflict country can, in a relatively shortperiod of time, create an effective information base and feedbackmechanisms for decisionmaking.      

From Government to Regulatory Governance: Privatization and the Residual Role of the State

This article reviews the state of thinking on the governancerole of public ownership and control. Optimal governance systemsdepend on the path of institutional development. Nevertheless,the transfer of operational control over productive assets tothe private sector often yields a desirable governance system,because it may be more difficult for citizens to constrain politicalabuse than for governments to regulate private activity. Inweak institutional environments, however, the process needsto be structured to avoid capture of the regulatory process.The speed of transfer should be matched to progress in developinga strong regulatory governance system, to which certain residualrights of intervention must be vested. After all, "institutions"are simply governance mechanisms with some degree of autonomyfrom both political and private interests. The gradual creationof institutions partially shielded from political power mustbecome central to the development of an optimal mode of regulatorygovernance. The article presents suggestions for establishingaccountability in regulatory governance, in particular by creatingan internal control system based on a rotating board with representativesof users, producers, and civil society, in a process involvingfrequent reporting and disclosure. JEL codes: G38, L33, L51     

Is There a Case for Industrial Policy? A Critical Survey

What are the underlying rationales for industrial policy? Doesempirical evidence support the use of industrial policy forcorrecting market failures that plague the process of industrialization?This article addresses these questions through a critical surveyof the analytical literature on industrial policy. It also reviewssome recent industry successes and argues that public interventionshave played only a limited role. Moreover, the recent ascendanceand dominance of international production networks in the sectorsin which developing countries once had considerable successimplies a further limitation on the potential role of industrialpolicies as traditionally understood. Overall, there appearsto be little empirical support for an activist government policyeven though market failures exist that can, in principle, justifythe use of industrial policy.      

THE ROLES OF THE PRIVATE AND PUBLIC SECTORS IN ENHANCING THE PERFORMANCE OF SEED SYSTEMS

Seeds are crop-based agriculture's most important input, yetfew developing countries have succeeded in establishing efficientseed production and supply systems. In many developing countriesthe large-scale, centralized state farms and public seed corporationsestablished to multiply and disseminate improved seeds of selectedcrops have proved ineffectual, failing to meet the diverse cropand varietal requirements of farmers. Governments and assistingagencies are currently reassessing their strategies, payinggreater attention to the potential contributions of privatefirms, cooperatives, other nongovernmental organizations (NGOs),and farmers themselves. This article contributes to that reassessment. It defines thescope for involving the private sector in an array of seed-relatedactivities, identifies critical and complementary roles forthe public sector, and reviews seed system development in industrialand developing countries, with a primary focus on institutionaldimensions. The article advocates a phased withdrawal of thepublic sector from the commercial side of seed production andmarketing, while recognizing a continued important role forthe public sector in plant breeding research, germplasm andvarietal maintenance, training, quality control, and consumerprotection.