Sociologist Ledivina Carino discusses the concepts of government and governance. While government refers to control by a ruler, governance involves participation from various actors in society. Carino explores four key issues: the activities of governing include both control and management; those involved in governance are the state, civil society, and private sector; processes like globalization and environmentalism have redefined governance; and good governance requires accountability, transparency, and responsiveness. Overall, Carino argues that governance requires involvement from all of society beyond just the state in managing public affairs.

1. 2018
The Concept of Governance
REPORT BY: ALFREDO PRIMICIAS III

2. THE CONCEPT OF GOVERNANCE by Ledivina Carino 1
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
Contents
GOVERNMENT ....................................................................................................................................2
GOVERNANCE .....................................................................................................................................2
What activities are acts of governing?....................................................................................................3
Who are involved in governance? ..........................................................................................................3
1. Wielder of power and the principal actor in government..........................................................4
2. Provision of resources and assist development for markets and communities.........................4
What processes redefined each?............................................................................................................5
1. Search for Growth and Development.........................................................................................5
2. The Environmental Movement...................................................................................................5
3. Globalization ...............................................................................................................................6
4. Consolidating Peace....................................................................................................................6
What makes Governance Good? ............................................................................................................7

3. THE CONCEPT OF GOVERNANCE by Ledivina Carino 2
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
The management of public affairs is not, and should not be treated
as, the exclusive domain of government. The affairs of the
government are the affairs of all. The problems of society are the
problems of all. (Carino)
- a Filipino sociologist and political scientist. She was
University Professor, and later University Professor Emeritus,
at the National College of Public Administration and
Governance of the University of the Philippines Diliman.
Sociologist and political scientist LV Carino started “The Concept of Governance” with
the statement “Government and governance are synonyms,” and explains that both
“exercise the authority in an organization, institution or state.” She asserts that the
former, mostly associated with a larger scope of duty and responsibility, while the later
sadly lacks the importance delegated to political circles, and by this, confusion
happens among actors and actions at hand. Yet despite of this, and through the World
Conference on Governance (WorldCOG), contemporary scholars now face four
relevant concerns:
1. What activities are acts of governing?
2. Who are involved in governance?
3. What processes redefined each?
4. What makes Governance Good?
To govern is to exercise power and authority over a territory, system or organization
(Carino), just like monarchs over their subjects or a business owner over the
enterprise. And the difference is now clearly addressed:
GOVERNMENT- control of the ruler
1. Obedience is the key action of subjects when a ruler exercises the extent of this
authority.
2. A government has and is expected to enforce legitimate violence to extract
obedience through as promulgated by written laws.
3. The government provides services to active and most importantly passive
members of society.
GOVERNANCE- consent and participation of the governed

4. THE CONCEPT OF GOVERNANCE by Ledivina Carino 3
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
4. UNDP1 extols governance as the authority to manage a nation’s affairs whereby
it embraces all the methods (good and bad) that societies use to distribute
power and manage public resources and problems.
5. ADB2 concentrates on governance as management of a country’s development
on social and economic spectrums.
What activities are acts of governing?
As the first concern, Carino offered control as a distinguishing aspect between
government and governance. The presumption is that before any action correspond
to a goal, and before punishment and rewards are implemented, the framework of
control is already present, and this framework is fortified by laws (or policies).
On the other hand, Carino continued by offering an opposite dimension on controlling,
and that is managing. She explains that managing is “to act on a hypothesis.”3 Unlike
controlling, to manage accepts external forces as extenuating drivers to successfully
achieve the goals. This basically explains why managing, rather than controlling,
supports the system of governance since it is “permeable, admits outside influences,
assumes no omnipotence or omniscience on the part of the decision maker, and
subjects decisions to the evaluation and critique of all those with a stake in them.”4
Who are involved in governance?
As the second concern, Carino digs deeper in humanizing both government and
governance. She used the ethos of former President Estrada and former deputy
secretary- general of the United Nations Frechette.
ESTRADA5: Governance is the involvement of sectors beyond the state in the
management of public affairs based on common interests bound by similar aspirations
and committed to the same public concerns.
1 Page 9, Reconceptualising Governance. Discussion Paper 2, NY; Management Development and Governance Division, Bureau for Policy
and Program Support, UNDP, January
2 Page 1, Introductory Notes on ADB Publications on Governance. Updated 11 September 2000.
3 Page 67, The Concept of Governance. LV Carino.
4 Ibid.
5 As keynote address during the World Conference of Governance, 1999.
- a Filipino politician and former actor who served as the 13th
President of the Philippines from 1998 to 2001 and as the
ninth Vice President of the Philippines from 1992 to 1998. In
2001, he became the first president in Asia to be impeached
from an executive role.

5. THE CONCEPT OF GOVERNANCE by Ledivina Carino 4
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
FRECHETTE6: Governance is not something the state does to society, but the way
society itself and the individuals who compose it, regulate all the different aspects of
their collective life.
The State therefore plays two pivotal roles:
1. Wielder of power and the principal actor in government.
a. The state is the foremost key to enable and facilitate participation of
other societal elements by creating an environment where both market
and civil society contribute.
b. Through legal and regulatory framework and political order, the state
encourages various interest- groups to plan, act and realize their goals.
c. The state protects private citizens from military interventions during
times of protests.
The difference therefore is vividly explained by Korten when he explained that “the
important distinction between government acting to meet a need for people and
government acting to create an enabling setting within which people can be more
effective in meeting those needs for themselves.”7
2. Provision of resources and assist development for markets and communities.
a. Emergence and importance of civil societies.
A civil society is made up of various non- government organizations but whose goals
are to “represent the interests of the inarticulate and the excluded even as they
endeavor to organize them so that they may raise their own voices on social issues
and exercise their own power over themselves and the collective life of the nation.”8
This further tips the dominion of control by the government since civil societies are
now able to challenge the state and consequently reach a collaborative partnership in
the formulation of public policy and delivery of public service.
b. The private sector acts as the engine of society.
The private (or commonly called also as business) sector impacts growth, stabilization
and sustainability of the economy by creating, promoting and distributing wealth.
Capitalism, competition and consumerism are all working to enable that the interest of
the public is gained. The government therefore enacts laws and mobilize structures
that protect the public sector from unfair corporate practices.
6
Speech delivered during the World Conference of Governance, 1999.
7 Page 303, People- Centered Development: Toward a Framework. Korten D., West Hartford, Kumarian Press.
8 Page 69, The Concept of Governance. LV Carino.
- was United Nations Deputy Secretary-General for eight years,
and a long-time Canadian diplomat and public servant

6. THE CONCEPT OF GOVERNANCE by Ledivina Carino 5
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
What processes redefined each?
As the third concern, Carino gave the following as processes pushing for governance:
1. Search for Growth and Development
Waves of change brought by world affairs (e.g. world wars, collapse of political
doctrines and disintegration of freedoms) have brought one distinct axiom: regardless
of whichever economic level a nation has—growth, sustainability and fairness to all
citizens are becoming far stranger than the truth. Graft and corruption, poverty,
bureaucratic inefficiency and political interventions are present at all corners, these
same reasons that make civil societies reaching for more participation and social
relevance. Unfortunately, the mechanisms owned by the government are scarcely
replicated at the level of civil societies- hence judgement and criticisms against the
government can only do so much but not a whole lot.
2. The Environmental Movement
Carino asserts that the “concern for people must be central.”9 She connects this with
the concern of the United Nations in bringing the point that we are all in one planet
whereby development just for its own sake, will deplete the resources causing future
generations face a potential irreversible catastrophe (e.g. climate change, greenhouse
effect, etc.).
As of 2015, the United Nations has developed a Sustainable Plan until 2030:
These universal Global Goals are a call to action to end poverty, protect the planet
and ensure that all people enjoy peace and prosperity. These goals include new areas
such as climate change, economic inequality, innovation, sustainable consumption,
9 Page 72, The Concept of Governance. LV Carino.

7. THE CONCEPT OF GOVERNANCE by Ledivina Carino 6
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
peace and justice, among other priorities. The spirit of partnership is to make the right
choices now to improve life, and in a sustainable way to preserve the environment for
future generations.
In 2002, Globalization: Its Impacts on the Philippine Environment10 reported that there
are winners and losers among those who have embraced this world order. Author
Aurora Lim is convinced that the Philippines is a loser, her reasons among others are:
a. Importation of foreign goods has changed the consumption pattern of the
Filipinos creating massive problem on solid wastes
b. Shifting from agriculture to export products have affected the environment
c. From food sufficient country to becoming grains- deficit due to transnational
corporations and big agribusiness for export products have taken over the
agricultural sector
3. Globalization
The world arena has turned to be more volatile and uncertain as different socio-
economic orders are forged by various institutions, examples are NATO, G8 (or Group
of Eight), ASEAN, EU, IMF and more. Each trying to advance their respective causes,
and each trying to shrink the world. In 2008, the United Nations offered the concept
of Globalization as the increased interaction among countries that touches economic,
social, cultural and political aspects of their citizens. A very significant international
body is the World Trade Organization whose very purpose is to promote free trade by
persuading countries to abolish import tariffs and other fiscal barriers to a point that
they oversee the rules of international trade among members, including the
Philippines. How does globalization affect governance in the country? Former
President and now Speaker of the House Arroyo gave us this warning, “globalization
is dangerous if it is not accompanied by appropriate reforms and strengthening of the
institutions.11” Then scholar Lim, in her paper Globalization: Its Impacts on the
Philippine Environment concluded, “If there must be globalization, it should be
humanized in order to create a healthy and sustainable life for all.”12
4. Consolidating Peace
The 1987 Constitution was clear on its principles about peace and sovereignty:
Sec. 1 The Philippines is a democratic and republican State. Sovereignty
resides in the people and all government authority emanates from them.
Sec. 2 The Philippines renounces war as an instrument of national policy,
adopts the generally accepted principles of international law as part of
the law of the land and adheres to the policy of peace, equality, justice,
freedom, cooperation, and amity with all nations.
Therefore, the role of governance is to support the government in ensuring that peace
and nation building are accomplished at all times. The former Prime Minister and now
President of Namibia Hage Geingob shared his passion, “… we need to get everyone
involved in the process of building a nation or effecting a national reconciliation. In
10 Page 31, Globalization: Its Impact on the Philippine Environment. AA Lim., Central Philippine University, 2002.
11 Ibid.
12 Ibid.

8. THE CONCEPT OF GOVERNANCE by Ledivina Carino 7
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
these situations, the coming together of state, market and civil society to manage
societal affairs is not mere rhetoric but a national urgency.”13
In 2013, the Asian Development Bank released a paper called Civil Society Briefs:
Philippines which gave a chronological order on the existence of CSOs.14 Some
relevant points are15:
a. President Corazon Aquino restored democracy and legislation were passed
including the Cooperative Code of 1990 and the Women in Development and
Nation Building Act of 1992.
b. The rapid growth of CSOs was due to the participation of civil society in national
and regional development planning.
c. Today (2013), Philippine civil society organizations are widely seen as vibrant
and advanced in the world. It has the largest numbers of NGOs per capita in
Asia.
Finally, Geingob reasserted his former claim, “the tasks of nation building must be
seen by all as their responsibility, and the resulting peace and development their
common ownership.”16
What makes Governance Good?
As the fourth concern Carino17 enumerated the following criteria on good governance:
a. Accountability and ethics in decision making and implementation
b. Transparency and predictability
c. Rule- bound decision making and action
d. Responsiveness
e. Long- term view of the public interest
In other words, she continued that the public must, “expect just laws, a fair judicial
system, politically accountable lawmaking and an effective reform- minded
bureaucracy.”
The pursuit of good governance may have been an uncharted road in Philippine
history. However, on February 28, 1986 President Corazon Aquino formed the
Philippine Commission on Good Government (PCGG) a quasi- judicial agency when
in 2007 the Department of Justice was given full jurisdiction. The first chairperson was
assumed by former Senate President Jovito Salonga.
Sec 2, EO #1 series of 1986 mandated the PCGG to:
a. Recover ill- gotten wealth of the Marcoses.
b. Investigate cases of graft and corruption.
c. Institute measures to prevent corruption.
13
Page 74, The Concept of Governance. LV Carino.
14 Civil Service Organizations
15 Page 2, Civil Society Briefs: Philippines. Asian Development Bank, Mandaluyong Philippines, 2013.
16 Page 75, The Concept of Governance. LV Carino.
17 Ibid.

9. THE CONCEPT OF GOVERNANCE by Ledivina Carino 8
Submitted by Alfredo V. Primicias III
In partial fulfillment of PA 201- Prof W Cabo, Fridays, 530PM
Under the present leadership of Reynold Munsayac, as appointed by President
Rodrigo Duterte, the PCGG faces abolition through House Bill 7376 which the Senate
rejected.