2000年-世界发展银行全球_From_Patronage_to_a_Professional_State___Bolivia_Institutional_and_Governance_Review_Volume_1_Main_Report_134页_11mb

Bolivia Institutional and Governance Review Summary

Core Content

The Bolivia Institutional and Governance Review (IGR), conducted by the World Bank, focuses on the challenges of transforming the Bolivian public sector from a patronage-based system to a professional and efficient state. It highlights the deep-rooted informality in public administration and its impact on institutional performance, while offering a roadmap for reform.

Main Report Structure

1. Introduction

• Transformation of the Bolivian Political Economy: Since the early 1980s, Bolivia has undergone significant economic and political changes, including the transition from hyperinflation and political instability to macroeconomic stability and democratic consolidation.
• Institutional Reforms Since 1985: The government has pursued a series of institutional reforms, but the public sector remains inefficient and plagued by informal practices.
• Public Sector Performance: Despite reform efforts, the quality of public services is low due to institutional weaknesses, including weak bureaucracy, poor accountability, and inefficiency in resource management.
• Current Reform Agenda: The government has prioritized the Institutional Reform Project (IRP), aiming to modernize the public sector through merit-based civil service, performance-oriented management, and anti-corruption measures.

2. Institutional Characteristics of the Bolivian Public Administration

• Immediate Causes of Poor Public Sector Performance:
  • Absence of a Functioning Bureaucracy: The public administration lacks professionalism and efficiency.
  • Legal and Organizational Structure: The legal framework and organizational structure of the state are not well-aligned with modern governance principles.
  • Informality in Personnel Management: Hiring, promotion, and management of public officials are often based on patronage rather than merit.
  • Micro Institutional Causes of Informality: Weak internal rules, lack of transparency, and resistance to accountability contribute to informal practices.
  • Informality in Expenditure Management: Budgeting and spending processes are often manipulated, leading to inefficiency and corruption.
  • Micro Institutional Causes of Expenditure Informality: Weak oversight, lack of clear procedures, and limited capacity for financial control are key issues.
  • Summary: Informality is widespread and undermines the effectiveness of institutional reforms.

3. Political Environment of the Bolivian State

• Patronage and Clientelism: The political system is characterized by patrimonial dynamics, where politicians use the state to secure electoral support and personal gain.
• Coalition Politics: The fragmented party system forces political negotiations, which often lead to clientelistic practices.
• Technocratic Governance: While technocratic governance has been introduced, it faces limitations due to political interference and lack of independence.
• Impacts of Politics on Public Administration: Political dynamics influence the performance of public institutions, often to the detriment of efficiency and accountability.
• Summary: Political factors play a central role in perpetuating institutional informality and inefficiency.

4. Frontiers of Institutional Reforms

• Frontiers of Reform: The IGR outlines key areas for reform, including civil service management, financial oversight, and popular participation.
• Strengthening Internal Rules and Restraints: The establishment of regulatory superintendencies is seen as a critical step to enhance institutional discipline.
• Judicial Reform: Judicial reform is proposed as a strategy to insulate the legal system from political influence, though it lacks consensus.
• Popular Participation and Local Accountability: Encouraging citizen voice and local accountability is essential for improving transparency and public service delivery.
• Summary: Institutional reform must address both internal and political challenges to be effective.

5. Recommendations for Institutional Reform Implementation

• Urgency of Reform: The IGR emphasizes the critical need for reform in order to improve governance and public service delivery.
• Tackling Informality by Taking Politics into Account: Reforms must consider the political context, as informal practices are often politically driven.
• Strengthening Institutions of Restraint: Creating independent oversight bodies is key to enforcing accountability and transparency.
• Other Institutional Reform Agenda: The report suggests a broader range of reforms, including improving procurement systems, enhancing public education, and strengthening the civil service.
• Conclusion: Institutional reform is essential for moving from a patronage-based system to a professional state.

Key Information

• Currency Equivalents: Bs. 6.33 = US$1; US$0.15 = 1 Bolivian Peso.

• Fiscal Year: January 1 – December 31.

• Key Officials:

  • Vice President: David de Ferranti
  • Country Director: Isabel Guerrero
  • Sector Director: Ernesto May
  • Pillar Leader: Pablo Alonso
  • Task Manager: Yasuhiko Matsuda

• Key Projects:

  • Institutional Reform Project (IRP): Aims to modernize the public sector through merit-based civil service, performance budgeting, and anti-corruption measures.
  • Financial Decentralization and Accountability Project (ILACO II): Has made progress in implementing an Integrated Financial Management System (SIGMA).
  • National Integrity Plan (NIP): Includes initiatives such as the Popular Participation Law (PPL) and the Superintendency of Civil Service (SCS).

• Challenges:

  • Informality is a major obstacle to effective governance.
  • SAFCO Law has not been fully implemented due to delays in regulations and resistance from officials.
  • Political interference undermines institutional reforms and public service delivery.
  • The Civil Service Superintendent has not been appointed, delaying key reform efforts.

• Success Stories:

  • The Customs Service has made notable progress under the General Law of Customs (Law 1990) and a new leadership with international credibility.
  • The renewal of management and staff has led to increased revenue collection and improved performance.

• Recommendations:

  • Depoliticization of public sector personnel management.
  • Strengthening central oversight through independent bodies.
  • Learning from successful regulatory agencies like the Superintendencies.
  • Involving citizen voice in monitoring and reforming public administration.

Conclusion

The IGR concludes that institutional reforms are urgent and that success depends on overcoming both political and structural barriers. The IRP is seen as a central element of this reform agenda, with its effectiveness hinging on the successful implementation of vertical reforms in key agencies. While progress has been made in some areas, such as the Customs Service, the reform of other agencies remains slow due to political resistance. The National Integrity Commission (NIC) also needs reform to be more effective in combating corruption. Overall, the IGR emphasizes the importance of political consensus, independent oversight, and citizen participation in achieving a professional and efficient public administration in Bolivia.