2000年-世界发展银行全球_From_Patronage_to_a_Professional_State___Bolivia_Institutional_and_Governance_Review_Volume_2_Annexes_114页_9mb

Bolivia: From Patronage to a Professional State - Summary

Core Content

This document provides an overview of the evolution of the Bolivian political economy and the history of civil service reform in the country. It outlines the transition from a patronage-based system to a more professional and regulatory state, highlighting key political and institutional changes over time. The focus is on the challenges faced in implementing public sector reforms and the broader implications for governance and accountability.

Main Points and Key Information

1. Historical Evolution of the Bolivian Political Economy

• 1952 Revolution: Marked the beginning of a state-led capitalist model, with the MNR implementing major reforms such as the nationalization of tin mines and agrarian reform.
• Patronage and Political Instability: Despite the shift towards state regulation, the size of the government did not decrease. Instead, it remained a central source of patronage.
• Military Regime (1964-1978): The military took control, maintaining authoritarian rule while continuing to use the state as a means of distributing patronage.
• Political Transition (1978-1985): A period of intense political instability, with multiple military and civilian governments. The MIR-ADN alliance emerged, and the economy faced severe crises.
• Democratic Maturation (1985-1997): The MNR returned to power with a new economic policy (NEP), which was supported by a coalition with the ADN. The government introduced structural reforms, including the Popular Participation Law, which decentralized administrative responsibilities to municipalities.

2. Civil Service Reform in Bolivia

• Reform Attempts (1944-1975): Various initiatives were taken to improve the civil service, including legal frameworks, reorganization of posts, and training programs.
• Key Reforms:
  • D.S. 0099 (1944) aimed to inventory public sector human resources but was never implemented.
  • D.S. 6134 (1962) established the National Division of Civil Service to manage recruitment, selection, and training.
  • D. Law 10460 (1970s) and D. Law 11049 (1970s) introduced legal and administrative reforms, including merit-based hiring.
• 1980s Reforms:
  • The economic crisis led to a focus on reducing the size of the public sector and improving efficiency.
  • The government sought donor support to hire consultants, creating a dual system of public employees and consultants.
  • This system led to several issues, including job insecurity, high turnover, and lack of institutional memory.

Institutional and Governance Challenges

• Patronage and Politics: The state has long been a tool for political patronage, with political affiliation often being the primary criterion for employment.
• Dual System of Employment: The introduction of consultants, funded by foreign aid, created a parallel system to the traditional civil service, leading to inefficiencies and fragmentation.
• Local Accountability and Democracy: The Popular Participation Law aimed to promote local-level democracy by creating new municipalities and granting them fiscal and administrative responsibilities. However, it also raised concerns about the potential for local capture rather than meaningful citizen participation.
• Institutional Weaknesses: Despite reforms, the public sector remained inefficient and politicized, with a lack of effective oversight and accountability mechanisms.

Conclusion

The document highlights the complex and often contradictory nature of Bolivian governance, where attempts at reform have been hindered by deep-rooted patronage systems and political instability. While there have been efforts to professionalize the civil service and decentralize power, these have not fully addressed the underlying issues of political control and institutional capacity. The transition from a production state to a regulatory state has not led to a reduction in the size of the government, but rather to increased complexity and challenges in governance.