Accounting for success and failure in policy implementation: The role of commitment in India's MGNREGA

Deepta Chopra

Development Policy Review, 2019, vol. 37, issue 6, 789-811

Abstract: Commitment or political will is often notable by its absence. While lack of commitment is a key factor in policy failure, it has been challenging to identify and operationalize how commitment can shape successful implementation. This article applies Brinkerhoff's (2000) framework of expressions of commitment to explain how commitment of policy elites shape policy implementation processes. Evidence for five characteristics of commitment traces these expressions from two types of policy elites — politicians and bureaucrats. Primary data from four Indian states were used—Chhatisgarh, Assam, Bihar and Andhra Pradesh—to examine the case of the Mahatma Gandhi National Rural Employment Act (MGNREGA). The data were collected through interviews with state‐level elites, supplemented by secondary data on the political economy of these states. In explaining how successes and failures of the MGNREGA are attributable to the commitment of these actors, the article considers the politics of policy implementation. It argues that commitment is critical at the sub‐national level in India, and explains the different outcomes of MGNREGA in the four states. The article considers how to strengthen policy implementation, and demonstrates that this can be done through capitalizing on positive feedback loops between different strands of commitment, as well as between commitment of administrative elites and political party leaders. The paper concludes that commitment and capacity feed off each other, improving implementation of social policies.

Date: 2019
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