MEASURING GOVERNANCE: POLICY AND PERFORMANCE INDICATORS

Using the conceptual framework outlined in the previous section, in this section we discuss how to measure the quality of governance, in terms of both policies and performance. (We defer to a later section the discussion of measurement of the quality of service delivery.) Governance systems are multidimensional, and the rules of the game influencing the behavior of providers are often complex. To focus our work, we concentrate within the governance arena on five dimensions of the service delivery process: human resources, financing systems, critical inputs, information, and provider entry. Together, these dimensions can help describe a governance system through its policies and performance.

Measurement, in this context, implies both assessing the rules of the game (that is, the policies—both formal/de jure and informal/de facto) in each of the five dimensions and capturing the effects of those rules on actual performance. As noted in Savedoff (2009), not all of the governance policies will have scores that are easily rankable. All the policies being measured are hypothesized to be related to the performance of governance in some model of service delivery, but we cannot always be sure a priori which direction (that is, more or less of the variable) is associated with better service delivery and outcomes. Indicators of governance performance should capture the behavior change brought about by the governance policy. In contrast with policy indicators, these are generally indicators for which there is a widely shared sense of directionality—that is, for which research has established whether more or less of the variable is desirable.

The following sections discuss a potential “long list” of indicators in each of the five subareas of service delivery, covering both indicators of policy and performance. The goal of this discussion is to provide a set of indicators that teams can draw from to incorporate into surveys and monitoring frameworks.

 
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