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Institutions as Formal and Informal Rules, Institutional
Development and Processes of Change: Basic Concepts
This paper introduces some basic concepts and a perspective on institutions and institutional develop-
ment. This is one of the two first points of departure for the initial orientation and overview phase of the
overall evaluation theme on support for institutional development, launched by the Department for Eval-
uation and Internal Audit (utv) of the Swedish International Development Cooperation Agency (Sida).
1
The purpose of the paper is thereby to serve as a point of reference for, firstly, reflection and dialogue on
the evaluation theme among Sida staff and other stakeholders, and secondly, as a conceptual framework
for the subsequent studies and evaluations.
What are we actually talking about when we refer to institutions, institutional development and processes
of institutional change? And what role do institutions play – hence how and why do they matter? This
paper provides brief answers to these questions by accounting for some basic concepts and theory of the
New Institutional Economics, as interpreted by the author. The New Institutional Economics is no
homogenous school of thought
2
– and will not be accounted for here – but something like a common
language is emerging. The presentation here partly draws on the previous work of the author,
3
and adopts
an institutional perspective that is adapted to the study of processes of change in rules.
1
Institutions – Formal and Informal Rules
1.1 What Are Institutions and What do they Do?
In daily parlance, the term institution is used to mean different things, which also appears to be the case
within Sida. By institutions people sometimes mean organisations, or perhaps more commonly, public
organisations. Sometimes they seem to refer to a more vague phenomenon at a system level, including both
rules and organisations – perhaps a major function performed by the public sector.
4
The World Develop-
ment Report 2002 refers to institutions as ‘rules, enforcement mechanisms and organizations’.
5
Here, how-
ever, we make a sharp distinction between institutions and organisations.
6
This is in line with Sida’s policy
for capacity development and, as explained below, crucial for the understanding of institutional change.
Institutions are here defined as behavioural rules for social interaction. These prescribe behaviour for
actors in recurrent situations of interaction with other actors – and thereby solve social interaction prob-
1
The other starting point is the presentation of the evaluation theme in the so-called Thematic Paper, the first paper in the
present publication.
2
Just as the descriptions of New Institutional Economics may vary. For definitions and overviews, see for instance Eggertsson
(1990), Langlois (1986c), Kasper and Streit (1998) and Knudsen (1993)
3
In particular, Eriksson Skoog (2000).
4
Eriksson Skoog (2002)
5
World Bank (2002), p. 6
6
Cf. North (1995), p. 15. Whereas the definition of institutions may vary also within institutional economics, this distinction is
almost always made.
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