Book Reviews 383

Rural Roads and Poverty Alleviation, J. Howe and P. Richards (eds), IT Publications Ltd, London, £9.95

This book comprises four case studies of developing countries (Egypt, India, Botswana and Thailand) by various authors set in a theoretical framework constructed by the editors. The result is a rigorous and interesting examination of rural road investment and its potential use for poverty alleviation, (rural roads being defined pri- marily as those which link villages). Special emphasis is laid upon discussion of the criteria adopted by developing countries in determining their road programmes but the work is not without its relevance for developed nations, as many of the situations discussed have their parallel in more advanced economies. For example, the way in which road improvemefits can result in the decline of local industries as their markets are opened up to increasing competition from outside is an experience shared by many economies. Similarly, the fact that poverty alleviation is seldom as dominant a factor as agricultural productivity in determining investment is reflected in the traditional emphasis on industrial expansion associated with Britain's road programme. The book also has relevant contri- butions to make to the wider debate on the form development should take in the Third World which current events in Africa have fuelled.

A particularly useful review of the literature on the impact of rural road investment is given in Chapter 3 where it is stated ' . . . the theory linking transport influences to economic and social change has not developed beyond the general and the aggregative. Attempts to predict the distributional consequences of change have certainly yet to be made. Despite the apparent complexity and sophisti- cation of modern appraisal methods the extent to which road investments will affect the distribution of incomes and people's response to possibilities of new services remains speculative' (p. 53). Arising from these obser- vations of past studies seven conclusions are presented: 1. Local circumstances considerably affect the way road

investment produces economic and social change. 2. The continued optimism over the potential for poverty

alleviation arising from road investment appears un- confirmed.

3. The changes arising from road improvements are not as significant as providing a traffickable route for the first time.

4. Improvements in vehicle-operating costs do not necess- arily produce significant economic changes.

5. More complex methods of road investment investi- gation and planning are required.

6. A co-ordinated set of public policies and programmes is needed if the disadvantaged are to share the benefits of growth.

7. Land tenancy is a major factor in determining who benefits from rural road investment.

These points set the context for the examination of the four case studies which is followed by a concluding chapter which seeks to draw together the many strands of investigation presented by the various contributors. Amidst encouraging signs that governments are now more willing to include poverty alleviation in their criteria for road investment, the editors argue that there is still a long way t o go in constructing and adapting appropriate selection criteria for the future. The book ends with two comments which should act as a challenge to those involved in rural road investment. First, they suggest that

research should seek a better 'understanding of the mechanisms by which benefits of conventional investments in roads are distributed, and therefore how they might be channelled to the poor more effectively than at present'. Secondly, the necessity for decision-makers 'to view the movement needs of the poor as transport problems, both vehicle and track, rather than accessibility difficulties that can be solved by the provision of roads' (p. 168). These comments form a fitting conclusion to an illuminating and interesting book.

GARETH EDWARDS Formerly St. Davids University College

Lampeter, U.K.

The Development Commission: the Next Ten Years, 9 pp., 1984, The Development Commission, London, no price

In the past decade Britain's oldest quango - - the Development Commission - - has emerged de-facto as England's Rural Development Agency. In retrospect 1984 is likely to be seen as a particularly significant milestone in this process. This year - - the 75th year since the Commission was established - - saw its change in status to a fully fledged grant-in-aid body; the announcement of the new Rural Development Areas; the initiation of a new style of Rural Development Programme and the publi- cation of this booklet which sets out the Commission's policies and priorities for the next decade.

The changes which are summarised in this document are the outcome of a major review of the Commission and its activities. As a result of this review the Commission has been given responsibility to keep under review and advise the Secretary of State (for the Environment) upon all matters relating to the economic and social development of rural areas in England and new powers to ' . . . carry out and assist others to carry out measures likely to further such development'.

Within this broad and potentially onerous remit this policy statement identifies two main inter-related sets of prob- lems which affect many rural areas. These are inadequate and/or declining employment opportunities and poor and/or deteriorating local services. The priorities which the Commission has set for itself are, therefore, firstly, to strengthen the economy of rural areas by increasing the number and variety of employment opportunities and, secondly, to ensure that the availability and quality of services, including housing, social and community facilities in rural areas, are maintained and, where possible im- proved.

This statement is essentially a reaffirmation of objectives which the Commission has already implicitly pursued in recent years. As before, these objectives are to be met by a combination of direct action from the Commission itself and by working through and with the many other bodies who have responsibility for activities affectirtg rural areas. That said, this document does set out several important changes in emphasis which could potentially have far- reaching consequences in future years.

As before, the emphasis of the strategy to encourage the provision of a wider range of employment opportunities relies on encouraging the growth and expansion of indigenous small firms through the provision of premises,