The Politics of Local Service Delivery: Bogotá Mauricio Cárdenas Political Economy of Service...
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Transcript of The Politics of Local Service Delivery: Bogotá Mauricio Cárdenas Political Economy of Service...
The Politics of Local Service Delivery: Bogotá
Mauricio Cárdenas
Political Economy of Service DeliveryJoint Seminar of the IDB and the World
BankJune 2-3, 2005
Washington, DC
Agenda
• Bogotá in the 80’s
• Institutional Changes
• A decade of transformations (1994-2004)
• 100% owned by the municipality• Low quality services • No clear framework for regulation
and quality supervision• Structural financial imbalances• Financial support from the central
government
Public utilities in the 1980s
Public transport system• High congestion in spite of low car ownership (131
per 1000 pop. vs. 300 in Curitiba) • Simultaneous provision and ownership by the state
and the private sector, until the mid-1980s. • The average speed was 10 kilometers per hour (5
km/hour at peak hours) (Chaparro, 2002). • Mean travel time was 66.8 minutes for public
transport users and 42.6 minutes for car owners (Lleras, 2003).
• The public transit system a was characterized by excess supply of usually empty and slow running buses, low quality service, and inefficiency.
• 70% of air pollution was generated by traffic, and accidents were frequent.
Policy failure:Free affiliating privileges and
periodic fare negotiations with a cartel
250
300
350
400
450
500
550
600
650
1970 1975 1980 1985 1990 1995 2000 2005
YEAR
AV
ER
AG
E O
CC
UP
AN
CY
5
10
15
20
25
30
35
40
45
FA
RE
19
99
US
D C
EN
TS
PASSANGERS PER VEHICLE FARE 1999 USD CENTS
Limited progress in education
64%
93%
49%
36%
19%
72%
69%
29%
0% 50% 100%
Preeschool(5-6)
ElementarySchool (7-11)
High School(12-17)
UdergraduatePrograms(18-24)
19731985
* Number of persons enrolled over total population of respective agesSource: Development Local Plan (1987-1990)
100
150
200
250
300
350
1980
1981
1982
1983
1984
1986
1987
1988
1989
6
7
8
9
10
11
12
Elementary School (7-11) High School (12-17)
Preeschool (5-6)(rhs)
Thousands of students enrolled
Enrollment Rates*
1991 Constitution: First Step
• A new system of fiscal transfers to the departments and municipalities
• Greater fiscal decentralization • Redefinition of the role of the government
in regards to public services: regulation vs. provision
• The political and administrative organization of the capital district was to be reformed by law.
• Enhanced decentralization at local level and introduced greater taxation autonomy
• Public utilities changed from“Public Establishments” to “Industrial and Commercial Companies”
• Fiscal Autonomy • More accountability in the head of the manager• Appointment of board members:
– 2/3 by the Major and – 1/3 are conformed by users and unions
representatives. The Council cannot appoint any member
• The Board should only intervene in the policy guidance of the company
Congress did not enact it, and the executive used special
legislative powers (decree 1421 of 1993 Decree)
Political variability, policy stability
• Jaime Castro (Liberal Party) • Antanas Mockus (Independent)• Enrique Peñalosa (Liberal /
Independent)• Antanas Mockus (Independent)• Luis Eduardo Garzón (PDI, former
labor leader).
Perception of improvements
Increased; 52%Remain
equal; 38%
Decreased; 2%
N/A; 8%
Source: Superintendence de Services-Centro Nacional de Consultoría
In the last ten years (94-04) public services coverage in your neighborhood
Transmilenio´s wide access
Transmilenio covers 85% of the urban area
Source: Transmilenio S.A and Consorcio Rothschild-Louis Berger-Selfinver
Metro´s coverage would had been only 8%
Public School access increased
87.8%
90.4%
88.8%88.3%
89.6%
90.6%91.1%
89.3%
86%
87%
88%
89%
90%
91%
92%
1996
1997
1998
1999
2000
2001
2002
2003
*Number of persons who attended to classes between 5-15 years old over total population between 5-15 years old
Source: DNP
0500
1,0001,5002,0002,5003,0003,5004,0004,5005,000
1996
1997
1998
1999
2000
2001
2002
2003
300
350
400
450
500
550
600
650
700
Elementary School (7-11) High School (12-17)
Preeschool (5-6)(rhs)
Thousands of students enrolled
School Attendance Rate*
Security in Bogotá
1400
1500
1600
1700
1800
1900
2000
2100
2200
2300
2400
2000 20001 2002 2003 20044000
4500
5000
5500
6000
6500
7000
7500
8000
2000 2001 2002 2003 2004
Homicide Holdup
4000
4500
5000
5500
6000
6500
7000
7500
8000
8500
9000
2000 2001 2002 2003 2004
Cars robbery
Source: Observatorio de la Seguridad en Bogotá -CCB
0
10
20
30
40
50
60
2000 2001 2002 2003 2004
Kidnappings
And, fiscal conditions improved in the second half
of the nineties
-300.000
-250.000
-200.000
-150.000
-100.000
-50.000
0
50.000
100.000
150.000
200.000
250.000
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
Central Administration Balance
Source: Ingresos y gastos municipales 1984-2000 Contraloría Genral de la República and author calculations
Millions of Pesos of 2003
Outer features of public policies
Stability vs. volatility Adaptability vs. rigidityCoordination / coherenceInvestment related qualities / capacitiesPublic vs. private regardedness
At the city level, a transformation took place in favor of stable, coherent, and publicly regarded policies.
Why? Political institutions or other factors?
Public Services Development in Bogotá
Mauricio CárdenasWashington, June 2005