The Making and Marketing of Participatory Development

Mosse briefly outlines two traditional views of development policies: the instrumental view of policy as problem solving, and the critical view that perceives policy to be a cover for state or institutional power. These views both ask how policy influences and shapes practice. Mosse argues that it is more useful to ask the reverse, i.e. how practice sustains and protects policies. Through analysing the making of a participatory rural development project in India, he shows that the policies did not primarily serve the function of guiding action. Rather, they served the vital function of interpreting and legitimising the action that was taken. In other words, the policies were not turned 'downwards' to implementation and field activity, as commonly assumed, but instead were turned 'upwards' as validating codes in relation to higher policy authorities.

The representations used in policy (in this case the system of representations surrounding 'participatory development') may even be seen as commodities that are marketed upwards and outwards because this is the recognised currency to be used in exchanges with donors. In this way policies can be used to secure funds and to garner higher political support. Policies as systems of representations are also able to present one coherent version of reality. Although several divergent voices and versions exist on the ground, policy as a system of representations is able to cover over these differences and can thus define the project as a 'success' - a necessary criteria for the project to be able to carry on.

In sum, Mosse suggests that the policy process is not a process where policy is followed by practice. Rather, the policy process is a matter of practice needing to be followed up by policies, both in order to interpret as well as justify the practice. Policies should be understood as interpretive frameworks rather than as guides to action. Mosse concludes that 'For policy to succeed it is necessary it seems that it is not implemented, but that enough people firmly believe that it is.'