Assessing —Ordenamiento Territorial“ at Municipal Level in Bolivia Case Studies: San Rafael and Punata

ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

Carlos Humberto Troche Souza February, 2004

ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

Carlos Humberto Troche Souza

Thesis submitted to the International Institute for Geo-information Science and Earth Observation in partial fulfilment of the requirements for the degree of Master of Science in Geoinformation Science and Earth Observation, with specialisation in Planning and Coordination in Natural Resource Management.

Degree Assessment Board

Chairman Prof. Dr. Ir. W . vd Toorn ITC External examiner Dr. G. Nijenhuis Utrecht University Internal examiner MSc. M. Kuffer ITC First supervisor Dr. D. van der Zee ITC Second supervisor Drs. E. Dopheide ITC

INTERNATIONAL INSTITUTE FOR GEO-INFORMATION SCIENCE AND EARTH OBSERVATION ENSCHEDE, THE NETHERLANDS

I certify that although I may have conferred with others in preparing for this assignment, and drawn upon a range of sources cited in this work, the content of this thesis report is my original work.

Signed

Disclaimer

This document describes work undertaken as part of a programme of study at the International Institute for Geo-information Science and Earth Observation. All views and opinions expressed therein remain the sole responsibility of the author, and do not necessarily represent those of the institute.

Acknowledgem ents

I wish to express my sincere reverence and thanks to God, my Lord for the moral and spiritual encouragement and guidance I got during my stay in the Netherlands and all my life.

I wish also to thank to my beloved parents, sisters and brother for their encouragement during these 12 months.

Particular thanks and gratitude is due to my main supervisor Dr. Van der Zee, for guiding me, during the thesis writing. I have benefited so much from his constructive suggestions and critical comments.

Special thanks to my second supervisor Drs. Emile Dopheide for helping me and gave me very useful suggestions and new ideas during the course of this work.

I am very thankful to Alejandra Larrazabal for her wholehearted support.

I thank all my colleagues and fellow students at ITC specially to my —amiga“ Trang, and my —en serio?“ friend Amani,, for bringing happiness during my studies at ITC.

I want to express my gratitude to Dr. Carlos Valenzuela, for give me the chance and supporting me to pursue this course.

Finally, I wish to send a sunbeam to all several individuals that contributed to my studies and success in one way or the other.

Abstract The concept and policy of sustainable development and the decentralization process, that both attracted serious attention for more than ten years now, after the UN Conference on Environment and Development in Rio de Janeiro / Brazil (1992) and after the creation of the Ministry of Environment and Sustainable Development in Bolivia (1994), contributed strongly to the development of a new planning tool in Bolivia. This newly introduced tool was —Ordenamiento Territorial“ (OT), a type of land use planning common in a number of Latin American countries (e.g. Colombia, Venezuela). This policy and planning tool was designed to address the spatial gap and the lack of integration left by previous traditional strategic planning and sectoral planning approaches prevalent at that time in Bolivia. The OT was introduced at three administrative levels (national, departmental and municipal) in order to establish territorial policies about land uses; to organize and coordinate the administrative units based on their biophysical, socio-economic and political-institutional characteristics; and to promote an integration or functional articulation of the national territory. Despite the theoretical advantages and benefits of OT processes and plans, the actual implementation in Bolivia still remains hesitant. At the national level there is no OT plan; at the departmental level 2 out of the 9 departments have an OT plan, but without formal approval; and at the municipal level only 51 out of the 316 have an OT municipal plan (OTMP) in elaboration or finished, but not approved. In order to find out the reasons behind the slow progress of the OT in Bolivia, especially at the municipal level, this study is focused to understand the general OT structure and to assess the OTMP as a plan and its process. The study is a first attempt to assess OTMP in Bolivia and develops a set of criteria for the evaluation of OTMP. Two municipalities with concluded but yet to be formally approved OT municipal plans are being used as case studies in this research: San Rafael, a municipality in the lowlands (Santa Cruz); and Punata, a municipality in the central high valley (Cochabamba). The study includes a review of documents and guidelines of OT in Bolivia, as well as related literature; interviews with key persons in the OT process; and interviews in seven municipalities at various stages of the OT process. The eventual set of criteria was developed and cross-checked by means of participatory tools including semi-structured, structured interviews and workshops in the two case studies municipalities. Criteria as relevance, feasibility, adequacy of method, coherence and format of plan were identified to assess the OTMP as a document and the ownership criterion to assess the OTMP as a process. According to the evaluation criteria the OTMP as a document as much as a process shows a relatively good performance among the key people involved in OT in the two municipalities. However both OTMP presented some relevant/critical issues (e.g. lack of time horizon, lack of an indication of possible areas for urban expansion) that could decrease the performance in the implementation stage. Besides, it should be noted that among the local stakeholders, knowledge and awareness of the OTMP was limited. Finally four main constraint factors were identified as possible reasons behind the hesitant process of OT at the municipal level: a) Incomplete legal and normative framework for OT; b) W eak awareness of its possible relevance due to a poor dissemination of information on OT benefits; c) Lack of financial support by the municipality to elaborate the OTMP as well as for its the implementation, and; d) Lack of continuity of line actions in stakeholders representatives. All in all there remain a lot of tasks or issues to be resolved in OT at the municipal level as a planning process (e.g. Strengthen and raise awareness among society about the OT; to review and improve the OT methodological guide, to ensure funds and capital to support the OT process) and as a recommendation for possible further study focus as well (e.g. assessment of the social feasibility of planning and implementation, to develop a collaborative spatial decision support system to improve the consensus in the OTMP elaboration). Finally, it is suggested to build up experience in the further development of a more structured evaluation process of OTMP to improve its effectiveness and efficiency. Keywords: Ordenamiento Territorial, Land use plans, spatial planning, evaluation criteria, municipality, Bolivia.

Table of Contents

Acknowledgements Abstract List of Figures List of Tables List of Abbreviations and Acronyms

1. INTRODUCTION...... 1

1.1. BACKGROUND...... 1 1.2. PROBLEM FORMULATION (DISCREPANCY BETW EEN THEORY AND PRACTICE)...... 2 1.3. STUDY OBJECTIVES ...... 3 1.4. RESEARCH QUESTIONS ...... 3 1.5. METHODS ...... 3 1.6. OUTLINE OF THE STUDY ...... 5 2. PLANNING AND ORDENAM IENTO TERRITORIAL IN BOLIVIA ...... 6

2.1. DEVELOPMENT OF PLANNING IN BOLIVIA ...... 6 2.2. TRADITIONAL PLANNING IN BOLIVIA...... 7 2.3. CONCEPTS OF ORDENAMIENTO TERRITORIAL...... 10 2.4. ORDENAMIENTO TERRITORIAL IN BOLIVIA ...... 11 3. ORDENAM IENTO TERRITORIAL AT M UNICIPAL LEVEL...... 21

3.1. OT MUNICIPAL PLAN...... 21 3.2. FORMULATION OF THE OT MUNICIPAL PLAN ...... 23 3.3. OT PROGRESS STAGE AT MUNICIPAL LEVEL...... 30 3.4. IDENTIFICATION EVALUATION CRITERIA...... 37 4. CASE STUDY SAN RAFAEL M UNICIPALITY...... 50

4.1. STUDY AREA SELECTION ...... 50 4.2. SOCIO-ECONOMICS AND BIO-PHYSICS CHARACTERISTICS ...... 50 4.3. SAN RAFAEL OT MUNICIPAL PLAN...... 51 4.4. ASSESSMENT OF THE OTMP OF SAN RAFAEL MUNICIPALITY...... 56 5. CASE STUDY PUNATA M UNICIPALITY ...... 63

5.1. STUDY AREA SELECTION ...... 63 5.2. SOCIO-ECONOMIC AND BIO-PHYSICS CHARACTERISTICS...... 63 5.3. PUNATA OT MUNICIPAL PLAN...... 64 5.4. ASSESSMENT OF THE OTMP OF PUNATA MUNICIPALITY...... 69 6. COM PARING THE CASE STUDIES...... 77

6.1. THE OT BENEFITS AND RELEVANCE...... 77 6.2. THE OT ASSESSMENT FOR THE TW O CASE STUDIES...... 78 6.3. USEFULNESS OF THE EVALUATION CRITERIA ...... 80 6.4. FACTORS BEHIND THE OT...... 82

7. CONCLUSIONS AND RECOM M ENDATIONS...... 84

7.1. CONCLUSIONS...... 84 7.2. RECOMMENDATIONS...... 86

REFERENCES APPENDICES

List of Figures

Figure 1.1. The study process ...... 4 Figure 2.1. The field of development planning...... 8 Figure 2.2. Present OT legal framework...... 12 Figure 2.3. Present OT institutional framework ...... 13 Figure 2.4. Progress of various types of OT plans at Departmental level (Nov. 2003)...... 17 Figure 2.5. Progress of OT at Municipal level (Nov/2003) ...... 18 Figure 3.1. Phases in the formulation and implementation of an OTMP ...... 23 Figure 3.2. Previous steps for the OTMP formulation...... 24 Figure 3.3. Steps in the Integral diagnosis ...... 25 Figure 3.4. Territory‘s Integral evaluation...... 26 Figure 3.5. The OTMP proposal ...... 27 Figure 3.6 Location Map of San Rafael Municipality ...... 31 Figure 3.7. Location Map of Municipalities interviewed ...... 32 Figure 3.8. Stakeholder classification matrix...... 41 Figure 4.1. Land Use Plan of San Rafael...... 53 Figure 4.2. OTMP map of San Rafael district...... 54 Figure 4.3. OTMP map of El Tuna district...... 54 Figure 4.4. OTMP map of San Fermin district...... 55 Figure 4.5. OTMP map of Villa Fatima district...... 55 Figure 5.1. LUP map of Punata municipality...... 66 Figure 5.2. LAP map of Punata municipality ...... 68

List of Tables

Table 2.1. Principal development national plans...... 7

Table 2.2. Progress of OT at Departmental level (Nov/2003)...... 16

Table 2.3. OT progress at Municipal level (Nov.2003)...... 19

Table 3.1. Main land suitability categories in the LUP ...... 28

Table 3.2 Summary on the selected municipalities...... 31

Table 3.3. Stakeholder / Stakeholder group (Influence and Importance) ...... 42

Table 3.4. Selected evaluation criteria...... 48

Table 4.1. Opportunities and limitations identified in San Rafael...... 51

Table 5.1. Opportunities and limitations identified in Punata ...... 64

Table 5.2. Land use category and sub-categories in the LUP of Punata...... 65

Table 6.1. Comparison of two study cases...... 78

Table 6.2 Usefulness of evaluation criteria...... 81

Table 6.3. Factors Behind OT Found in this research ...... 82

List of Abbreviations and Acronym s

CLAS Centre of aero-spatial survey and GIS application CV —Comite de Vigilancia“ DDP Departmental Development Plan FCBC Chiquitanian Forest Conservation Foundation LAP Land Allocation Plan LUP Land Use Plan MDP Municipal Development Plan MDSMA Ministry of Environment and Sustainable Development MDSP Ministry of Planning and Sustainable Development (former MDSMA) NGO Non-Governmental Organization OT Ordenamiento Territorial OTB —Organizacion Territoral de Base“ (Legally recognized Communities) OTBO Ordenamiento Territorial and Boundaries Office OTMP Ordenamiento Territorial Municipal Plan SEDGP Socio-Economic Development General Plan

ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

1. Introduction

1.1. Background In the past, the Latin America and the Caribbean Regions had centralized governments. Some twenty years ago, however, a few countries have legislated devolution and sharing of important responsibilities to sub-national governments, and at present most countries are either implementing such legislation or planning new decentralized arrangements (W inkler, 1994).

This process has raised awareness with the government authorities for the need to develop integrated territorial land use plans in order to complement simple strategic or programmatic planning. The traditional instruments following an economic approach (e.g. Communal Regulator Plans, General Plans and the Regional Development Plans) were out of date. In this context —Ordenamiento Territorial“ (OT) was designed and adopted as a new planning tool. The term —Ordenamiento Territorial“ (OT) will be maintained, since the translation into —Spatial Planning“ in English does not completely cover this kind of land use planning in the Latin American context.

The Ordenamiento Territorial is integrating three spatial planning approaches:

ñ Adequate natural resource use, assigning proper use to land in accordance with its potentials, limitations and geographical distribution, with emphasis on the resource component. In this sense OT is similar to the ecological planning exposed by McHarg (McHarg, 1971 quoted by Zinck, 1996).

ñ Rational use of the resources according to the social necessities and requirements with emphasis on the user component. This aspect relates to the land use planning promoted by the FAO (FAO, 1993; Zinck, 1996).

ñ The reduction of regional imbalance, promoting regional development based on regional apti- tudes, with emphasis on the spatial component. This OT approach is related to Isard‘s work about regional planning and Perroux‘s work on growth poles (Isard, 1971; Perroux, 1964; Zink, 1996).

Over the last ten years the subject of Ordenamiento Territorial has evolved from a sectoral land use planning at a centralized level towards a more participatory process of territorial development especially in countries such as Colombia and Venezuela (Bosshard, 2000). It is used as an instrument for joint individual and institutional actions at a decentralized level.

1 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

In Bolivia the OT was introduced with the promulgation of the —Environmental Act“ approved on April 27th 1992. As from this moment the Bolivian government promotes OT as a part of its environmental policy (MDSMA, 1997).

Ordenamiento Territorial is the process of organizing land use and land allocation based on a territory‘s bio-physical, socio-economic, cultural and political-institutional characteristics (MDSMA, 2002). OT is a process that allows for the identification of the National, Departmental1 or Municipal territory‘s potential and its limitations based on the territory‘s environmental, socio-economic, cultural, and politic-institutional characteristics.

At present, progress in OT in Bolivia is in very hesitant at all administrative levels (National, Departmental and Municipal). A lot of resources have been invested in the process to reach a consolidated OT structure. However, until now there have been no efforts to assess whether the OT process is working properly and which factors can be favourable or detrimental to the process. W ithin the three administrative levels there is a huge field of research to be undertaken. Therefore, and to avoid generalizations, this research is concentrates on the municipal level.

1.2. Problem Form ulation (Discrepancy between theory and practice)

To encourage the OT process Van Diepen (1991) and Zapata (1999) mention the following conceptual advantages:

- Using OT as an analytical tool it is possible to predict the performance of land over time under specific types of use - the identification of the available natural resources at the municipal level is the starting point for the municipality in its efforts to structure or plan short, medium or long term development at different scales; - OT should enable the municipality to coherently coordinate and articulate/integrate the local activities towards sustainable resources management.

At this moment there is a considerable discrepancy between the theoretical advantages of the Ordenamiento Territorial process and its possible outputs (benefits) on the one hand and its actual implementation in terms of Ordenamiento Territorial Municipal Plans (OTMP) in Bolivia on the other hand. Some factors that influence this gap between the OTMP and its implementation may be related to the technical aspects within the land evaluation process.

Other factors can be related to the lack of perceived positive results, causing stakeholders to lose interest in the implementation of these plans. Also the lack of stakeholders‘ involvement (municipal and Government authorities, societal groups) throughout the whole process can be detrimental to implementation.

1 Departmental is the administrative level between National and Municipal level

2 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

In order to obtain a deeper insight into the factors that cause this discrepancy this study critically looks at the OT progress and process at the municipal level, pointing out what has worked and what has not worked, and making suggestions on how this could be improved.

1.3. Study Objectives

1.3.1. Main Study Objective

∑ To assess the Ordenamiento Territorial (OT) process at the municipality level in Bolivia.

1.3.2. Specific Objectives

1. To describe the general structure of the OT process at the municipality level in Bolivia.

2. To develop criteria for evaluation of the OT process

3. To examine and evaluate the OT process in terms of the criteria selected.

4. To identify, describe and analyze the critical factors in the OT Municipal Plan process.

1.4. Research Questions

1.1. W hat are the main elements of the OT process? 1.2. W hat is the framework of the approach in the OT municipal plans? 1.3. W hat is the present status of the elaboration; approval and implementation of OT plans in Bolivia?

2.1 W hat are relevant aspects from which to part for criteria development? 2.2 How can these criteria be made operational? W hat parameters can be used?

3.1 W hat are the OT outputs and how do they perform in terms of the criteria developed? 3.2. W hat are the main contributions of the outputs to Municipal knowledge and information relevant for natural resources management?

4.1 W hat are constraint factors with respect to the OTMP elaboration and its implementation? 4.2 Are there external constraint factors in the OTMP?

1.5. Methods In order to assess the OT process at municipal level a number of social science tools was used. The set of methods and techniques used for each specific task in this study as well as the relationship between them is shown in figure 1.1.

3 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

The study was developed in three phases namely, the pre-fieldwork, fieldwork and post-fieldwork. During the pre-fieldwork phase the —Ordenamiento Territorial“ elements have been identified and described based on literature review (specific objective 1), and some possible case studies were selected. In addition the preliminary evaluation criteria were identified.

During fieldwork phase primary data (structured, semi structured interviews, questionnaires, workshop) and secondary data were collected to respond the other specific objectives. In the post- fieldwork phase all data were compiled and analyzed.

Pre-fieldwork Secondary Data Definition of study context and objectives

Description of general Identification of possible Prelim inary evaluation criteria structure of OTMP cases

Prelim inary Stakeholders Analysis

Fieldwork Final Stakeholders Analysis Secondary Data Interviews with m unicipalities

Main groups of stakeholders Identification of Case study

sem i-structured interviews SW OT Analysis with key inform ants and docum ents appraisal

Final evaluation criteria

W orkshop Structures and semi-structures interviews W ith representative groups of stakeholders

Field notes

Post-fieldwork OTM P Assessm ent Constraint Factors OT General Fram ework Behind OTMP described

Activity / method / tool CONCLUSIONS AND RECOMENDATION KEY Outputs

Figure 1.1. The study process

A detailed description of methods used to reach the specific objectives will be presented in each corresponding chapter.

4 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

1.6. Outline of the study

Chapter 2: Planning and Ordenamiento Territorial in Bolivia Chapter two explains the conceptual framework of this study, by reviewing and commenting on the literature of development planning in Bolivia, the introduction of OT in Bolivia, its legal status and its progress. The chapter finishes with a brief analysis about factors behind the OT progress.

Chapter 3: Ordenamiento Territorial at the municipal level This chapter describes the general structure of the OT at the municipal level explaining context and concepts of OT Municipal Plans. It also gives details on the OTMP benefits and on a model or ideal representation of the document. The reasons for some municipalities to get on the OT field or not are described. Lastly, the identified evaluation criteria are presented.

Chapter 4: Case study San Rafael municipality The chapter presents the result of the assessment in San Rafael municipality. It begins with descriptions of the area, its socio-economic and bio-physical characteristics, the main results in the OTMP, followed by the assessment of the plan as a document as well as a process

Chapter 5: Case study Punata municipality This chapter follows the same structure as the previous one but with specific descriptions for the Punata municipality.

Chapter 6: Comparing the case studies This chapter presents a comparative analysis of the two municipalities and discusses the usefulness of the evaluation criteria. The emerging issues and different factors are highlighted, explained and commented upon.

Chapter 7: Conclusions and Recommendations In this Chapter the lessons learnt from the analysis of the case studies and evaluation criteria are presented as conclusions and recommendations for the improvement of the OT process in Bolivia and for the realization of further studies.

5 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

2. Planning and Ordenam iento Territorial in Bolivia

The progress of the Ordenamiento Territorial in Bolivia has to be considered in the context of the development of planning at large in the country. The spatial component needs in the development of planning and its promotion as OT in Bolivia will be explained in this chapter.

2.1. Developm ent of Planning in Bolivia The development of national planning at governmental level in Bolivia started sixty years ago. In the early 1940s the first National plan2 was issued (Bustamante, 2001). From this moment, two stages can be clearly distinguished in the national planning process. The stages are determined by the process of national development:

1) The first stage (1942-1985) was characterized basically by an interventionist Government. The State was considered as the promoter of economic and social development, in the sense that the dynamics of the market was considered not sufficient to encourage a continuous development and balance (Lazarte and Pacheco, 1992)

2) The second stage (1985-2003) is characterised by the free trade model that started in Bolivia with the New Economic Policy (NEP). This NEP is based on four principles around sustainable development: economic growth; social equity; a rational use of natural resources; and governability. In this period the role of the main economic actors changed radically. The change was mainly because the interventions of the State in the trade dynamics were considered irrational constituting the main obstacles for development and leading to a collapse of the prevailing development model. In this stage the State stops to be protagonist of the process of national development leaving space to free trade and therefore to development of private economic activities as the new engine of economic growth (Bustamante, 2001)

In this new context the planning obviously became a more flexible process, as a consequence of the government‘s decentralization process, which allows participation by the various development actors (Bustamante, 2001). It is in the context of this second stage that OT was introduced to improve the planning process.

In order to understand the implications of this, first the situation under the —traditional planning“ will be discussed briefly.

2 The Bohan Plan was considered the first National Plan, due to its repercussion in the future. Besides this Plan was an important background for the further proposal plans.

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2.2. Traditional Planning in Bolivia. The term of traditional planning is found in Latin American literature more than in universal literature about general planning theories. Fundamentally, it implies an economic and sectoral planning. On one hand, it is based on the observation of the behaviour of the main economic variables. On the other hand, it considers the economic sectors as the main division of the society, since the growth of the national product depends on its development (Soto, 1986). In addition the traditional planning recognizes only one main actor as the supporter of development: the Government. The other actors are addressed like agents, with limited capacity to modify the reality in which they develop. (Bustamante, 2001)

Table 2.1. Principal development national plans.

DEVELOPM ENT PLANS DEVELOPM ENT M ODEL M AIN OBJECTIVES - To create a diversified and stable It looks like a diagnostic docu- BOHAN PLAN (1942) economy, by means of the territorial ment. The development model is integration of the country not explicitly indicated

- To break the stagnation of the na-

tional economy. 1

E - To promote investments at long G

A The model considered that the term. T

S SOCIAL AND ECONOMIC DE- whole control of the economy was - To create the necessary conditions VELOPMENT PLAN (1962-1971) in the hands of the government. for the increase of the national sav- It defends the importance of the ings. labour unions. - To increase the mining and hydro- carbons production. - To diversify the economy through incentives for agro-industry. - To obtain national autonomy, through national control on the natu- It addresses mainly the country‘s ral resources. NATIONAL DEVELOMENT dependency. It looks for inde- - To shape a productive organization SOCIO-ECONOMIC STRATEGY pendence in terms of external with wide popular participation. (1971-1991) financing and addresses the inter- - To promote strengthening of labour nal structures of dependency. unions as main instrument of public participation.

2 SOCIO-ECONOMIC DEVELOP- Mainly based on the economic

E MENT GENERAL PLAN (1994) model of free trade. This privi- G

A leges the individual creativity and - To accelerate the dynamics of the T

S the private initiative as well as the market trade economy. - To facilitate joint venture. This plan finishes the decentralization process. definitively with the Governmen- - To promote the national develop- tal Capitalism in Bolivia. It con- ment within the principles of sustain- siders that the true source of able development by means of Na- growth is the private investment. tional Planning system. On the other hand the Plan introduces the principles of the sustainable development. Source: Bustamante, 2001

7 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

In Bolivia traditional planning goes back several decades. Different plans for national development were generated (see Table 2.1). Until the 1980‘s these plans (BP, SEDP) were focused on economic and sectoral variables. Therefore these sorts of plans only responded to the —W hat?“ (strategic planning) and the —W ho?“ (sectoral planning) and failed to point out a location for the —W here?“. Only in the 90‘s it was recognized that all three components are needed to achieve an integrated planning. (MDSMA 1997; Vargas, 2002; Pers. Com. Laguna, 2003)

In the late 1980s and throughout the 1990s the planning models (supported by the national planning system) introduced important features such as public participation; decentralization process and; sustainable development concepts. According to Bolivian administrative hierarchical structure (national, departmental = regional and municipal = local), specific development plans were made for each level (a socio-economic development general plan for the national level; a departmental development plans and; municipal development plans) in order to push and execute the decentralization process and promote the public participation. These plans were still weak on the spatial dimension. They give some guidelines to fulfil basic priorities (e.g. construction of hospitals, schools, health centres, roads) and some natural resources management techniques, based on present social and economic infrastructure and necessities. Despite these initial sustainable development plans, they still failed to point out the specific location for those basic priorities.

In the 90‘s the new concept —Ordenamiento Territorial“ (OT) was explicitly introduced in order to respond to the —W here?“ (spatial planning) as an instrument for sustainable development (MDSMA, 2001). The OT complemented the three planning fields as outlined in Figure 2.1, and assisted the national development planning (Socio Economic Development General Plan) and the National planning System (SISPLAN by its Spanish acronym) to achieve its main objectives. The new instrument of OT intended to correct and improve some of the shortcomings in the previous national development models, by explicitly addressing the spatial dimension. In addition the OT adopted a holistic and integral approach. This fact helps to analyze simultaneously all the spatial unit components (physical, biological, social, economic) and understand the logical link among them.

Development Strategic Planning Planning OT

W HAT IS THE MOST W HERE ARE THE IMPORTANT THING ACTIONS TO BE TO DO? MADE?

SectorialPlanning

W HO IS DOING THIS? Source: MDSMA, 2001 Figure 2.1. The field of development planning.

8 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

The spatial dimension was included in the Bolivian planning process in order to arrive at sustainable development. Three reasons were given for the inclusion of the spatial dimension:

1) Bolivia‘s development depends heavily on the use of natural resources. This calls for actions to avoid over-depletion of natural resources which is a result of population increase and improper management. In this sense it was deemed necessary to locate the main natural resources on the national‘s territory in order to identify regions with high development potentials based on their natural resources. Once located the main natural resources it could be possible to formulate specific policies for an adequate natural resource management.

2) The overall poverty, together with the migration of farmers towards the main urban centres reflects an unbalanced land allocation. In addition the quality of life in the lowland areas is not in line with the availability of natural resources. Therefore is necessary to locate (on spatial dimension) and identify the main migration flows to establish development policies. These policies should be addressed to improve the quality of life on the ejector regions and/or to guide the migration towards regions with high development potentials.

3) The condition of the international and national road network makes it rather difficult to optimally exploit the natural resources as well as to insert them into the international dynamics (Continental trade through interlinked road network). In order to overcome this situation it was considered necessary to modify and improve the road structure. The spatial dimension could help to plan and improve the current road network system. It could identify specific zones with isolate or regional road networks and integrate them with the national road network system. (MDSMA,1995)

In this context the introduction of OT at three levels (national, departmental and municipal) was supposed to provide that spatial support in order to define where various actions had to be undertaken. Besides the OT should address the following spatial dimensions needs:

1) The OT is meant to establish territorial policies (spatial policies at national level) to guide the formulation and implementation of appropriate public policies (policies formulated for administrative units). These policies would generate the guidelines for sustainable development. In addition the OT is meant to support sustainable management of areas with ecological fragility, risk and vulnerability as well as the areas of special management (National Parks, Timber extraction areas).

2) The OT is meant to organize and coordinate the administrative units based on its biophysical, socio-economic, cultural and political-institutional characteristics, its potentialities and limitations. The OT should optimize the human settlements, migratory flows of people and the exploitation of natural resources. This optimization should consolidate the regionalization process. The regionalization process is based on the hierarchical allocation of the populate centre and give them satisfactory infrastructure and economic alternatives according to their population. In addition, the OT looks at economic, social and cultural conditions in rural areas to control the migratory flow towards cities.

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3) The OT is meant to locate the current road networks, power electricity and communica- tions to lead their improvement in order to promote a national and international integration of the territory. (Vargas, 2002)

In addition the holistic and integral OT approach (the territorial reality as a whole) should be oriented to enhance mechanisms of public interaction between the governmental organizations and the society. OT should address the agricultural development and the integrated rural ordering in order to improve the conditions of habitability of rural areas and for the creation of the necessary infrastructure for the promotion of the activity of the farming sector. (MDSP, 2001)

Summarizing, the OT and spatial dimension are considered important issues within Bolivian planning. The OT purpose is to assist the planning field in:

∑ The integral and balanced occupation of the territory. ∑ Taking advantage of the territory‘s potential. ∑ Improving the conditions of life of all the territory‘s inhabitants. ∑ Diminishing the disparity in socio-economic development between regions. ∑ Conserve the renewable natural resources.

2.3. Concepts of Ordenam iento Territorial For a better understanding of OT and its terminology we can firstly define the term —Territory“. According to Cambridge Dictionary (2003), ”territory‘ is an area of land, which is considered to belong to or to be connected with a particular country. Nevertheless within the OT context the term territory/territorial is used for an area of land (spatial unit), including its resources.

In a general context the OT is not a new policy in the world. A growing body of literature reflects an increasing interest in issues of OT, especially in South American countries. One of the first ideas about OT was given by Brewer-Carias (1984). He defines the OT as the necessary distribution of human and economic resources in a spatial context. In addition he considers the need to organize the physical space in order to obtain a suitable distribution of resources. OT means that the organization of land use in a territory should be based on its existing natural resources and the fulfilment of the aspirations of its inhabitants. (Brewer-Carias, 1984)

Etymologically the term OT means to have or create order in a territory‘s elements. Practically the concept means an intended allocation of the economic activities; in contrast to its spontaneous distribution according to the trade laws. (Zinck, 1996)

The rational use of the resources according to regional or national needs, with emphasis on the user component, is a feature of OT. This component belongs to the land use planning as promoted by FAO (1993).

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In the Colombian OT Act, OT is defined as a set of political-administrative actions and physical planning arrangements. The municipalities will have to undertake these actions in order to develop their territory and to regulate the use, transformation and occupation of the space. (CRC, 1997)

A more widely accepted definition is given by the OT European Letter, signed by the countries represented in the European Conference of Ministers responsible for OT (CEMAT), which defines the OT as: —spatial expression of the economic policies, social, cultural and ecological issues. It is simultaneously a scientific discipline, an administrative technique and a policy with an interdisciplinary and global approach. Its objectives are a regional development and spatial organization according to a governing concept“. (CEMAT, 1993)

A common element in all these definitions and interpretations of OT is the spatial dimension in a sustainable development.

2.4. Ordenam iento Territorial in Bolivia In order to initiate the OT process in Bolivia the terminology used at global level has been adopted, with emphasis on the Colombian definition. This influence is based on the fact that the people, who took the first steps in the OT field in Bolivia, worked and/or were trained in Colombia (Fernandez, 2003; Valenzuela 2003, Pers. com.)

Most of the concepts mentioned were used to elaborate an OT definition that fitted within the Socio- Economic Development General Plan guidelines. According to that plan OT is the process of organizing land use and land allocation based on the territory‘s bio-physical, socio-economic, cultural and political-institutional characteristics (MDSMA, 2002). In this sense the concept tries to include both the land use planning (LUP) and human settlements distribution (land allocation plan).

The OT is applied at three levels in Bolivia (national departmental and municipal) in order to improve the lack or weak spatial dimension approach given by the current Departmental Development Plans (DDP) and Municipal Development Plans (MDP).

2.4.1. The OT Legal and Institutional Fram ework The OT as a component of the Socio-economic Development General Plan expresses its legal framework based on basic norms of the National Planning System (SISPLAN by its acronym in Spanish). The SISPLAN establishes the norms and the OT institutional framework through specific norms and acts. The SISPLAN is related in a frame of SAFCO Act in order to link with the Political Constitution norms.

In this context the legal framework currently governing OT process consists of two elements (see also figure 2.2):

1) Acts and norms referring to the technical aspects related to land use and land allocation, and; 2) Acts referring to the institutional framework.(MDSMA, 1997)

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POLITICAL CONSTITUTION

Acts and norms related Acts and norms related with OT technical with OT institutional aspects SAFCO Law (No 1178) framework and Environmental Act N° 1178 (7/04092) SISPLAN Basic norms Public Participation Act N° 1551 (20/04/94) Decree law N° 24176 (8/12/95) (Decree law 216779)

Forestry Act N° 1700 (19/10/96) administrative decentralization Decree law N° 24453 (2112/95) Decree law N° 1654 (28/07/95)

INRA Act N° 1750 (18/10/96) Prefecture structure Decree law N° 25763 (5/05/2000) Decree law N° 25060 (2/06/98)

UPAsAct N° 2150 (20/11/2000) LOPE Act N° 1788 (16/09/97 Decree law N° 24855 (22/09/97) RRAD Act N° 2140 (25/10/2000) Decree law N° 25055 (28/07/98) Decree law N° 25471 (28/07/99) Supreme Decree 24122 and 24781 (LUP of Santa Cruz andPando) Municipalities Act N° 2028 (28/10/99) RGAP Decree law N° 24176 (31/07/97) Supreme Resolution N° 217075 (5/06/97) Norms to OT Process Norms to OT process and its institutional framework OT law project No 142 Decree law N° 217075 (5/06/97) Source: modified from MDSP (2001)

Figure 2.2. Present OT legal framework For the technical aspects, the first law that makes explicit reference to OT as environmental planning tool is the Environmental Act, which states that the central government has to assume the OT as a component of the environment policy, based on agro-ecological zones (AEZ).

In the same way, the Forest Act and INRA Act and their regulations, quotes the OT as a referential instrument for land classification and land suitability for various uses. The Risk Reduction and Attendance of Disasters Act (RRAD) and General Regulations for Protected Areas (RGAP by its Spanish acronym) mention the OT as a main instrument to assist the detection of risk and important conservation areas based on their biophysical characteristics. Besides the Supreme Decrees Nº 24122 (Santa Cruz‘s LUP), and Nº 24363 (Pando‘s LUP), give the norms to apply the guidelines contained in the corresponding LUPs.

The present OT normative and institutional framework (decree Nº 217075) address the current OT process, because the OT legal project (No 142) has not been approved yet. The Ministry of Sustainable Development has put the OT legal project to the Low Chamber, where it is still waiting its formal approval.

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The present institutional framework (see figure 2.3) is based on acts and norms for the three administrative levels:

National level The act called —Ley de Organizacion del Poder Ejecutivo“ (LOPE) institutionalises the OT with a sub- secretary within the Ministry of Planning and Sustainable Development. Nowadays according to the LOPE law and its complementary norm (Norms to OT process and its institutional framework), the OT Head Office (OTHO) is the executive instance to coordinate the OT process. Presently the OTHO is improving the OT guidelines; collecting information at national level; and establishing a biophysical and socioeconomic national database. The OTHO is under the vice-ministry of Planning at the Ministry of Sustainable development and should coordinate the OT process and progress at departmental and municipal levels (MDSP, 2003).

National Level Ministry of Planning and Sustainable Development

Vice-ministry Vice-ministry of Vice-ministry of Vice-ministry of Vice-ministry of of land administrative youth, infancy and Vice-ministry of Planning women affairs environment and decentralization third age Natural resources and municipal development

Public participation OT Head Office Strategic alliances Head Office and planning Unit Departmental Prefectures Level

Social Administrative Departmental Directorates Juridical Infrastructure Development Directorates of environment and Directorates Directorates Directorates Natural Resources

? ? Natural OT Technical Units Forestall Resources Unit Units

Municipal Level Municipalities

Directorate of planning Source: Modified and adapted from MDSP (2003)

Figure 2.3. Present OT institutional framework Departmental level The Administrative Decentralization and Popular Participation Acts assign new responsibilities to prefectures at Departmental level. The Acts state that OT technical units should be included in the institutional framework of prefectures in order to promote the OT process at municipal level. In addition an OT plan must be developed at departmental level in order to identify development

13 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA programs and plans for each region (Department). At this moment it is difficult to establish the relation among the OT technical Units and the other environmental and natural resources units (e.g. Forest unit, Natural Resources, etc) because the internal policies (at prefecture level) are not clear yet.

Municipal level The Municipalities and Popular Participation Acts at municipal level state that OT should be included in the municipal planning. The Municipalities Act takes the OT as a guideline in the real estate cadastre This OT has to reveal the potentials and constraint factors within their administrative units as well as their social needs. These social needs should become expressed in objectives and short, medium and long term plans (MDSP, 2001). The municipal directorate of planning should synchronize its actions with the OT units at departmental level.

2.4.2. The Principles and Instrum ents of OT W hen the OT was introduced in Bolivia it was meant to be based on 5 principles:

1. Integration: OT is meant to connect biophysical, economic, social, cultural and political- institutional components.

2. Concurrence: OT meant to promote administrative and institutional linkage. OT is meant to be the basis for consistency both vertically as well as horizontally, in planning and administration.

3. Subsidiarity: OT will strengthen the administrative decentralization process by assigning specifically defined responsibilities and competence to the national, departmental and municipal levels of administration.

4. Participation: OT assumes and provides a basis for the integration of public and private entities and the civil society.

5. Precaution: Through knowledge and understanding of the land and its resources, OT should allow to define preventive actions addressed at avoiding environmental, social and economic irreversible impacts. (MDSMA, 2002)

The Instruments of OT

In order to carry out the OT process, two different instruments are used: operational instruments and normative instruments. a) The operational instruments include:

‹ The Political Guidelines of OT as a technical-political tool determining the strategy that drives the OT.

‹ The OT Evaluation Reports at National, Departmental and Municipal levels. These comprise the results of a technical evaluation of OT of implemented plans. This instrument is meant to show to what degree the plan is really implemented already. Nowadays the OT evaluation reports are a theoretical instrument because there are no OT plans implemented yet.

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‹ The OT National Information System (SNIOT) is responsible for the structuring, storing, up- dating and distribution of the information about OT at different levels. The information could contain biophysical characteristics on a specific area or socio-economic features as well. In previous stages the format of this information could be on digital or hard copies. The SNIOT is in charge to turn all this information into a standardized digital format.

‹ Methodological Guides should assist in the formulation of the Departmental and Municipal OT plans. These guides define the conceptual framework and basic methodological procedures for the formulation of an OT plan. b) The normative instruments include:

‹ The OT plan (OTP) at National, Departmental and Municipal levels. The OTP is a normative, technical-political, and administrative tool for land administration. In these plans, land use and land allocation are regulated and optimized.

The OTP includes two components:

1) The land use plan (LUP); a technical normative tool is meant to define land use categories and sub-categories. It also should give recommendations on how to achieve sustainable natural resource management at Departmental and Municipal levels. The Land use plans (LUPs) are elaborated on the basis of an agro-ecological zoning (AEZ);

2) The land allocation plan (LAP); the instrument should guide the human settlement distribution, access to health services, education and basic services; the localization of roads (MDSMA, 1997; 2002). The LAP is elaborated in accordance with the LUP. It has more a guidance character than normative tool. From a spatial point of view the LAP tries to strengthen and expand the current socioeconomic and economic-productive linkages within a geographic unit. The LAP should promote the development of populated centres, to increase the productive activities and its relation. All these developments have to be in line with the defined land use categories proposed by the LUP.

The OT plans are an instrument to order and support the departmental and municipal spatial planning and coordination activities. The OT plans qualitatively may improve the use of the national, departmental and municipal economic and natural resources (Van Diepen, 1991; Zapata, 1999). Those plans should show each administrative unit and its better potential to use. In this sense it is supposed to coordinate a sustainable and rational natural resource use.

For a better understanding about the OT plans especially at municipal level, it will be further elaborated in the chapter 3.

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2.4.3. The Progress of OT in Bolivia Most progress in OT has been made so far in the Amazonian zone. These activities are mainly done in anticipation of the final approval of the law. Most progress can be attributed to the awareness of the need for OT-type of planning and the availability of external funding in support of this kind of activities (MDSMA, 1995).

Before the OT concept was introduced into the planning field in Bolivia, some NGO‘s did isolated studies about land use. These studies were agro-ecological zoning and land use plans in highland zones. Most of the results need to be standardized to make them compatible with the data in the OT national information system (SNIOT) (MDSP, 2001).

In order to assess the progress with respect to OT a number of aspects have to be looked at: is an OT plan completed and in force, completed but still in proposal, or is it still in process, and how far? For each of three stages the question can be asked if the plan comprises both components: land use plan and land allocation plans or only one.

At present, the OT at national level is starting with data compilation about biophysical characteristics (national land cover, land use, geomorphology, hydrology, etc). Satellite images and GIS tools provide most of this information.

Bolivia is divided into 9 departments. At present there are technical proposals for OT Departmental Plans (OTDP) in two of them: Beni and Tarija; Land use plans (LUP‘s) have been approved at De- partmental level in Santa Cruz and Pando; Technical proposals for LUP‘s have been submitted in Cochabamba, La Paz, Potosi and Sucre; and Agro-ecological zoning has been done in Oruro. This is the main progress at Departmental level (see also table 2.2 and figure 2.4). (MDSMA, 1995; Poppe, 2003 Pers. Com.) Table 2.2. Progress of OT at Departmental level (Nov/2003)

Technical Technical pro- AEZ and Area with- proposal for LUP approved DEPARTM ENT posal for LUP SEZ studies out study OTDP (km2) (km2) (km2) (km2) (km2) Beni 213,564 Tarija 37,632 Santa Cruz 370,621 Pando 63,827 La Paz 79,663 20,501* Cochabamba 55,631 Chuquisaca 51,524 Oruro 53,588 Potosi 118,218 TOTAL (km2) 251,196 434,448 305,036 53,588 20,501 % of country area 24% 41% 28% 5% 2% * Andean valleys Source: Modified, adapted and updated from MDSP (2001)

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Although OT is in process at Departmental level already in 98% of the country (Table 2.2), most of these plans (58% of the area) still have to be completed and made compatible in their socio-economic component (Land allocation Plans). Some bio-physical and socio-economic surveys were made in the country but only 16% of the area. These surveys (AEZ, SEZ) need more field data and analysis to become a good base for a land use plan and/or a land allocation plan. At present for only 24% of the territory (2 Departments) an OTDP has been elaborated, but also there they are still waiting for formal approval by government authorities.

Source: Modified, adapted and updated from MDSP (2001)

Figure 2.4. Progress of various types of OT plans at Departmental level (Nov. 2003)

Studies at Departmental level were subsequently complemented with studies at Municipal level (see table 2.3 and figure 2.5). According to the Municipalities Act the municipalities have to do their own OT plan. At present it is not clear whether or not the municipalities have to wait until the departmental plan has reached a certain stage.

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At present there are three stages of progress with respect to the OT plan at Municipal level:

a) Municipalities having the OT Municipal Plan (OTMP) ready to be approved by their Mu- nicipal council; b) Municipalities that are in the stage of technical elaboration of the OTMP; c) Municipalities having not started with any OTMP activity yet.

Source: Modified, adapted and updated from MDSP (2001)

Figure 2.5. Progress of OT at M unicipal level (Nov/2003)

In table 2.3 for each department is indicated how many municipalities are in some stage of OT and how many are not, related to their area and population size. Only 51 out of 314 municipalities (representing the 16% of the total) are in some stage of OT process, thus the progress of OT at municipal level is still very little (See for more details appendix 1)

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Table 2.3. OT progress at M unicipal level (Nov.2003)

MUNICIPALITY OT Finished or in Process W ithout OT advance

M unicipalities Land Area Population M unicipalities Land Area Population

DEPARTMENT # % (Km2) % # % # % (Km2) % # %

Beni 4 1.3 39,577 3.6 32,546 0.4 16 5.1 173,987 15.8 326,424 4.6 Tarija 6 1.9 23,667 2.2 200,567 2.5 5 1.6 13,956 1.3 181,874 2.2 Santa Cruz 20 6.1 175,544 16.0 361,553 4.4 31 9.9 195,077 17.8 1648,892 20.1 Pando 1 0.3 7,536 0.7 4,003 0.1 15 4.8 56,291 5.1 46,997 0.6 La Paz 5 1.6 7,544 0.7 93,149 1.1 70 22.3 126,441 11.5 2243,227 27.4 Cochabamba 8 2.5 17,438 1.6 231,219 2.8 36 11.5 38,193 3.5 1204,555 14.7 Chuquisaca 6 1.9 10,088 0.9 74,444 0.9 22 7.0 41,436 3.8 450,602 5.5 Oruro 0 0 0 0 0 0 34 10.8 53,588 4.9 385,664 4.7 Potosi 1 0.6 2,515 0.2 46,974 0.6 34 10.8 115,703 10.5 654,215 8.0 TOTAL 51 283,909 1,044,455 263 814,672 7,142,450 % 16.2 25.8 12.8 83.8 74.2 87.2 Source: Modified, adapted and updated from MDSP (2001) and MG (2003)

The finished plans cover 25 % of total land area in the country and involve only 12 % of the country‘s population. Santa Cruz is the department with absolutely highest number of municipalities involved in the OT field; Tarija is the department with the relatively the highest advance in OT at municipal level. According to the OT Head Office staff these relatively high progress at municipal level en Tarija and Santa Cruz could be because of the support of ONGs in these regions.

2.4.4. Factors behind the lack of progress in OT

It is evident that the progress of the application of OT is very slow in Bolivia, at national, departmental and at municipal levels. There are many important and influential factors behind this lack of progress in OT.

Anticipating the results as presented in the later chapters three main factors related to the slow process and progress of OT can be mentioned already here:

1) Lack of OT law: W ithout an approved OT Act, there are no clear legally established links between all public sectors involved. For instance, on one hand the OT head office has information about soil types, land cover and much more information needed for the LUP‘s, but on the other hand the Ministry of Agriculture always needs this kind of information to develop plans and actions in its own sector. Thus the Ministry of agriculture collects field data on soil types, land cover and other information. This lack of institutional network leads to the duplication of work, resources and time. Also the present legal framework is not enough to support and give the necessary strength to authorities related to OT. Any way without OT Act, there is no legal tool to undertake the OT plans at any level.

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2) Boundary disputes among municipalities: Most of the municipal boundaries have not been clearly defined. The municipalities are getting their own resources through the Popular Participation Act and Co-participation taxes, based on the number of inhabitants. Therefore municipalities are very keen to increase the area under their jurisdiction in order to get more inhabitants. These boundary disputes are common if the annexation area is inhabited. As long as boundaries are not clear the OT process will not get first priority in these municipalities.

3) Information and awareness: OT concepts were distorted as a consequence of a poor distribution of information. For instance, the term —land allocation“ used by OT was related with land tenure and property. In some municipalities this gave rise to problems and the OT was stopped to avoid social unrest. The lack of awareness and understanding among the local authorities (mayors) and common citizens on planning produces leads sometimes to indifference for the OT process.

In the following chapter these and others relevant factors will be further discussed, based on discussions held and interviews made with governmental authorities, in order to obtain a better understanding about the OT plans at municipal level, and to obtain some explanation of the slow implementation process of OT.

The next chapter will describe what an OT municipal plan (OTMP) should contain and identify a set of evaluation criteria to assess the OTMP as a planning product.

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3. Ordenam iento Territorial at Municipal Level

It is a function and responsibility of the municipalities to apply OT to their territory, with the purpose to promote Sustainable Development. This is based on the general legal dispositions and norms mentioned in the previous chapter. (MDSMA, 1997)

On one hand the Popular Participation and Decentralization Acts have laid the foundations to stimu- late the local development. These laws establish new rolls for the central and local government as much as for the local civil society. The central and local government should regulate, facilitate and promotes the economic field. And the local civil society should assume a participative role and be protagonists of their own development. (FCBC, 2003)

On the other hand the elaboration process of the Municipal Development Plan (MDP) is guided and facilitated by the National Planning System (SISPLAN), which is the norm of municipal participatory planning and the handbook of participatory planning.

Based on the participatory principles of these norms and guidelines, the municipalities should given to their MDP contents a spatial context with specific and additional information in an OT Municipal Plan (OTMP). This spatial context should be give with a set of thematic maps. These kinds of maps are meant to present in a suitable way the evolution, present situation, the possible development of the municipal space and the planned interventions by the municipality. It is evident that the advance and the diffusion of the GIS have made it possible to handle the spatial information more easily and elaborately.

In the first part of this chapter the general structure of the OT at municipal level in Bolivia will be discussed, based on relevant literature related to OT municipal plans. This serves to get understanding of the OTMP‘s objectives, benefits, structure and some factors behind the process and will be response to Objective 1. In the second part of the chapter the municipal perception about the OT will be discussed for some municipalities with an OTMP in process and for others without OTMP. This perception is based on results from structured and semi-structured interviews with authorities (Mayor) and/or municipality staff related to OT. The results of this discussion and that with other key stakeholders perception establish the basis for the development of evaluation criteria that constitute the assessment framework for this study.

3.1. OT Municipal Plan

The OT plan should consider the municipal territory as holder of natural resources and human activities. The OT plan promotes and guides the development of the physical space. It also promotes

21 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA the organization and allocation of the human settlers as well as its social and economic activities (MDSMA 1998).

According to the MDSP (1997) the purposes of the OT Municipal Plan (OTMP) should be:

´ To establish agreement on how to determine what is optimal land use and what is the most suitable allocation of the economic-productive and social infrastructure.

´ To establish the land use and land allocation policies. The policies must be in agreement with the strategic objectives of the Social and Economic Departmental Development Plan (DDP) and the Municipal Development Plan (MDP).

´ To establish a normative frame for the control and regulation of the actions and uses defined by agreements in the plan as mentioned in the first purpose.

The OTMP components present two scopes:

´ Biophysical‘ scope (land use plan): The land use plan (LUP) should give municipal policies oriented to the optimal natural resource use. These policies are as much those are used, as those are potentials for future uses. The LUP is an instrument with a normative- technical characteristic. It determines the adequate land use according to the constraint factors and potential. This Plan is elaborated based on the results obtained in the agro- ecological and socio-economic zones.

´ Socio-economic‘s scope (Land allocation plan): The land allocation plan (LAP) should give municipal policies oriented to provide socioeconomic infrastructure. The LAP is an instrument with a technical advisory characteristic. Furthermore the LAP guides a suitable distribution of the settlements.

At the OTMP formulation stage the municipalities assume the responsibility for the OT (urban-rural) within their municipal jurisdiction.

The OTMP characteristics are the following:

V The OTMP at 1:100000 or 1:50000 has a technical and political character. It regulates the land use of the municipal territory. In addition it guides the land allocation.

V Its validity is for two constitutional periods (10 years).

V The OTMP approval is the competence of the Municipal Government by means of a Municipal edict. This edict has to be accredited by a Supreme Decree, previously Executive authority report. Finally a Senatorial Resolution accredits the OTMP.

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Nowadays, most of the OTMP are made at 1:100000, and there are no OTMP accredited neither by Supreme Decree nor by Senatorial Resolution.

These are the principal issues that an OTMP implies (legal and institutional framework, its status and a shortly draft about an OTMP‘s contents). The next section will try to explain in a more detailed way the theoretical contents and procedures to carry out an OTMP. This contents and procedures are extracted mainly from the OT methodological framework and relevant literature about this topic.

3.2. Form ulation of the OT m unicipal Plan

There are four phases (see figure 3.1) in the formulation and implementation of an OTMP follows (MDSP, 1999):

1 To set up basis for the OTMP formulation

2 To draw up territory’s integral diagnosis

3 To draw up the OTMP proposal

4 Implementation of OT municipal plan

Figure 3.1. Phases in the formulation and implementation of an OTM P

1) To set up a basis for the OTMP formulation: A number of steps lies at the basis of the formulation of OTMP (see figure 3.2). This basis makes reference to the previous processes before to formulation an OTMP.

In order to encourage the OTMP it is crucial that the authorities commit themselves to carry out the process from formulation to implementation. Such political decision must necessarily be assumed by the Major and approved by the Municipal Council with advisory from the Planning Unit. The Major must supervise the OTMP formulation and implementation. In case the Municipality does not have own resources available, project profiles should be developed and funding for OTMP formulation should be searched.

Given the integral/holistic approach of the OTMP it is necessary that a multi-disciplinary and inter- institutional team be in charge of its formulation. Likewise, the technical team can be formed by permanent staff from the Municipality, technicians representing different sectors such as protected areas, universities, NGOs, etc.

The multi-disciplinary and inter-institutional team should formulate a plan of action that will guide the OTMP formulation process; Scopes of plan; activity schedule; requirements of physical, financial, and human resources. Additionally, a list of all actors involved that includes their respective responsibilities should also be provided.

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Once the multi-disciplinary and inter-institutional team is formed and the plan action is elaborated, it will be necessary to inform all stakeholders about the plan formulation and implementation; objectives and scope of action to be carried out. Such dissemination and awareness campaign addressed to all social, institutional, public and private sector stakeholders can be developed through dissemination messages, meetings with institutions, municipal workshops. A simple and accessible language should be used in order to reach all stakeholders involved, appropriate to the socio-economic and cultural characteristics within the municipality.

Process Municipal A ctors

Political Major Decision

Political Decision Municipal Council Approved

Establish a Multidisciplinary Major and T echnical direction Team

T echnical direction and Plan of action Multidisciplinary team

Dissemination and Major, T echnical direction, awareness to social Multidisciplinary team , social and institutional and institutional actors actors

Figure 3.2. Previous steps for the OTM P formulation

2) The territory‘s integral diagnosis (see fig 3.3) should comprises on one hand the compilation and analysis of the information of the physical-biological, socioeconomic and political institutional elements and on the other hand the territory‘s integral evaluation, which interrelates these three elements.

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The integral diagnosis allows:

‹ To have an integral knowledge (as a result of the compilation and analysis) about the Municipality‘s history, the present situation and the municipal‘s trends. All this knowledge is acquire as far as the natural resources uses, socioeconomic and political-institutional elements allow.

‹ To identify the potentialities and constraint factors as well as the macro problems of the Mu- nicipality (as a result of the integral evaluation). All these macro problems are considered within the MDP.

Inform ation Gathering and Analysis Ellements Physical-biological Socio-economic Political-institutional

Social Economic

-W heatear -Population -Economic activities -Public and private institutions - W ater Resources -Public services -Road Network -Social Actors - Underground -Basic services -Public investment -Soils -Dwelling -Commercial infrastructure -Relief -Communication flows -Vegetal cover -Infrastructure to improve -Actual land use the farming systems

Territory‘s Integral Evaluation

Agro-ecological and Identification of Identification of Land Identification of constrain Socio-economic Territory analysis use conflicts factors, potentialities and zones Units macro-problems

Figure 3.3. Steps in the Integral diagnosis

Most of this physical-biological and socio-economic information must be gathered by secondary data and analysed by GIS technologies. The main result is a set of maps. These maps should show the biophysical, socio-economic and political-institutional characteristics of the municipal territory. The integral diagnosis also should show the functional aspects of the municipal territory in the sense of the relations and interactions between its different elements. The land units maps, risks and vulnerability maps, socio-economic characterization maps are the results of the elements analysis (e.g. water resources, vegetal cover, population, road network, etc.). The administrative decentralisation grade and their advances in development process and OT are the results from the political and institutional elements. It analyzes the potentialities and the possibility to establish association with neighbouring municipalities in order to achieve common objectives in the region (e.g. an inter-municipal roads, improve the regional health service, etc.) Also it analyzes possible boundary conflicts between municipalities.

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After the elements analysis comes a territory‘s integral evaluation. This evaluation interrelates the physical-biological, socio-economic and political-institutional elements (see fig. 3.4). A territorial unit for analysis (= spatial unit) is a geographic space containing specific environmental and socio-economic attributes. It also has certain dynamic links that draw it together with a complex network formed by other territorial units. The identification of Territorial Units for Analysis is achieved by overlapping the land unit map to the socio-economic unit characterisation map. The socio-economic unit should contain the identification of hierarchical population classification, flow and network flow, and socio-economic unit features. The results of the analysis carried out in such levels will allow to identify spatial units reflecting complementary and functional integration.

The division into agro-ecologic and socio-economic zones (AEZ-SEZ) shows suitable land use alternatives (AEZ) and current land use (SEZ). The AEZ-SEZ allows to identify areas where land use conflicts exists; that is under-utilization or over-exploitation of the land resource in terms of its use aptitude. On the other hand, by overlapping the map of Territorial Unit for Analysis with the AEZ- SEZ the land allocation conflicts are determined. For example, it determines whether population settlements are located within risk areas or within areas with greater aptitude for agricultural production.

The identification of limitations, potentials, and macro problems will be done by social and municipal institutional stakeholders, as well as with the technicians in charge of elaborating the OTMPs and MDPs. Likewise, based on knowledge about the current status of the Territory, trends can be detected; that is the evolution of the Territory without planning. This sometimes is considered as —the worst situation“ should current trends remain unchanged.

Physic-biologic Socio-econom ic Politic-institutional elem ent elem ent elem ent

Land units map Socio-economic Institutional manager characterization map capacity

Current Land use AEZ-SEZ Spatial Territorial units of analysis

Land use and land allocation conflicts -Limitants -Potentials -Macro-problems -Develop tendency

Figure 3.4. Territory‘s Integral evaluation

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3) The OTMP proposal (see figure 3.5) should be comprises the —Ideal Model“. This becomes the long-term territorial vision. It is the synthesis of the ideal or desirable situation to achieve with what is possible in the medium and long term. The construction of the —Ideal Model‘ and the formulation of objectives will be made according to certain methodological procedures. To create this —ideal model“ the social actors must express their respective visions. They have to specify their ideas about how they imagine the municipality in the future. Is necessary to structure and systematize the stakeholder‘s opinion. Afterwards these must be confronted with trends, macro problems, constraint factors, potentialities and interests of other social stakeholders. All these procedures are meant to establish and reach a consensus. The results will be a coherent mission statement from the present situation.

In order to define the objectives it is crucial that both the demands and interests of social and institutional stakeholders are known as well as the development-related objectives and policies reflected in socio-economic development plans (SEDGP and MDP).

Formulation of the OTMP proposal

Mission statem ent for long term

Objectives Form ulation

Politics form ulation

Land use plan proposal Land allocation plan proposal

OTMP Proposal

Figure 3.5. The OTM P proposal The land use plan proposal (before its approval) is meant to constitute the optimal scenario for the land management. The land use plan proposal (LUp) should contain the objectives of the social and institutional stakeholders. The land use objectives will be according to constraint factors (restricted use) and potentialities of the municipality. The LUp will comprise the allocation of land suitable categories and sub-categories for each land unit. The land suitability categories reflect degrees of suitability. The land suitability sub-categories reflect kinds of requirements or limitations. The technical criteria for some of these categories of land use are presented in table 3.1. Additionally, three types of interventions are applied in the various land use categories and/or sub-categories:

27 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

∑ Intervention rules: these establish the legal limitations to the local (municipality) and national government to granting land use rights. These rules have an obligatory character and are to be obeyed by all organisms of the State and public institutions, which have responsibility in this respect. Concretely the legal restrictions talk about the granting of lands; the authorizations of forest use and the clearing and felling permissions according to the Forest Act.

∑ Land use rules: These establish legal limitations to the land use rights of rural soils. The rules consider and recommend the conservation and sustainable land use techniques in order to take advantages of the renewable natural resources. These rules have an obligatory character for all users who perform agricultural; livestock; forest or infrastructure activities or other uses, under penalty in case of breach. The land use rules are expressed in the following categories:

ñ Allowed ñ Prohibited and ñ Limited.

∑ Recommended land use: These recommendations are aimed to guide the most suitable activities in line with the land characteristics.

The intervention rules, land use rules the recommendations will depend on the conflict that might exist between the suitability of the land use and its present use. If the present use is not according to the suitability of the land, the land use should be directed a gradually to a use suitable for the land. Finally, the rules and recommendations should be according to the present legislation.

Table 3.1. M ain land suitability categories in the LUP CATEGORY DESCRIPTION This category comprises areas that allow the cultivation of annual or permanent crops and Intensive farming land stockbreeding without damage to its productive capacity, because of better relative conditions use of soils, topography and climate. Extensive farming land This category comprises areas without forests but presenting limitations for crops cultivation use and pastoral uses because of unsuitable topographical conditions; soils; and/or climate. This category comprises areas located in woodland with population dedicated to farming ac- Agro-sylvopastoral tivities. The poor biophysical conditions of the soil, climate or topography are its main char- land use acteristics. In order to maintain its productive capacity it is necessary to combine the farming and forest together. This category comprises areas of forests representing conditions for their utilisation under Forest land use management. In general this areas are not suitable for crops or pastoral uses. This category comprises areas of forests grouping the conditions for their use under manage- Forest land use ment. In general these areas are not suitable for crops or pastoral uses. This category comprises areas without vegetal cover; with temporary or permanent floods, Restricted and Protec- steep slopes, and little depth of soils. The vegetation cover fulfils an important role in the tion land use environmental regulation in these areas. Restricted use can be allowed; to maintain its productive capacity. Urban land use This category comprises areas of human settlements.

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In the Land Allocation Plan (LAP) the objectives of the social and institutional actors are shaped. These objectives are defined to guide the formulation and application of municipal policies addressed to generation of occupation, investment programs, support to the farming production, social services and transport infrastructure, among others. The LAP allows optimizing the infrastructure distribution process within the municipality.

The LAP is mainly based on the exploitation of the potential of the regional road system one hand, and on the other hand on the identification and give hierarchical categories of population centres that are or can become development-generating centres on the basis of their current and/or potential dynamics. As such, the infrastructure and social services to be implemented or consolidated should be identified in order to improve life quality among the inhabitants. Therefore, a land allocation scheme is designed to serve as an instrument addressed to orient the urban and rural growth. In addition it is addressed to provision of a road network, productive infrastructure, and social services.

The generation of a LAP allows to identify the socio-economic framework that characterizes the municipality in terms of:

‹ Hierarchies: The hierarchical organization of populated centres is measured by the capacity in each centre to provide services to a specific geographic area - generally an urban area œ although in some cases it refers to a larger area œ regarding the extent of its area of influence.

‹ Flow: Movement of persons, goods, or services within a determined municipality. For example: commercial, communication, migration flows.

‹ Networks: Space distribution and/or connection between different components (usually organized into hierarchies) of an organizational structure. For example, health service network - hospitals, health centres and posts-, road network œ main, secondary and rural (= tertiary) roads.

‹ Structures: Levels of space or organizational relationship usually introducing criteria of organization into hierarchies. For example, demographic structures, political-administrative, legal structures.

‹ Productive systems: Generally referring to the field of administration and adoption of cultural practices. For example, farming systems, administrative systems.

4) The proposal implementation: This stage includes actions necessary for approval, implementation, and follow-up. This includes basically, socio-political commitment agreements entered into by both the relevant social actors and the municipal government. The purpose is to provide the socio-political feasibility that is necessary in order to achieve implementation. In order to have the proposed OT Plan approved by consensus and in a definitive manner, several stages should be completed including proposal coordination, adjustment, and approval. Approval is provided through a Municipality Bylaw ratified by a Senatorial Resolution (issued after presentation of a report to the Executive) ratified in turn by a Supreme Decree.

Summarizing the conceptual OT municipal plan The OTMP looks to be useful to harmonize the use of the municipal territory. This harmonization could be due to the sustainable use of the natural resources and the suitable distribution of socio-

29 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA economic infrastructure. The LUP contained in the OTMP should be addressed to achieve that sustainable use by means of suitable land use. The LAP should be addressed to achieve the suitable distribution of socio-economic infrastructure by means of previous identification of local potential and opportunities to economic development.

On one hand the OTMP will become a normative instrument. The LUP will be the basis to establish municipal policies on the land use field. On the other Hand the OTMP should be an advisory instrument for adequate human infrastructure (roads, hospitals, college, etc) distribution. The LAP gives advise to municipal and local planners to what infrastructure is necessary and where is the better place to build it.

Finally, the implementation of an OTMP looks like a very slow process because the OT municipal proposal (before its legal approval) has to complete several steps (social and political commitment agreements, the regional and national approval). The proposal implementation stage includes a follow-up to the plan. In the methodological guide to elaborate an OTMP the mechanisms to include a follow-up process is not explicit.

3.3. OT progress stage at m unicipal level

Until now, the benefits are evident to municipalities that carry out the OTMP. The Plan tries to be a solution to the lack of spatial information that exists in the municipal‘s strategic and regional plans. It complements and improves the municipalities‘ objectives about sustainable development in the MDP. In addition as it is becoming a normative and advisory instrument of land use, the OTMP complements and improves the MDP‘s short-term (5 years) objectives. The OTMP localizes the available natural resources in the geographic space of the municipality. This spatial localization of the natural resources and human infrastructure related to the GIS use, allows a better, faster and easier information update.

Despite the theoretical benefits, only a few municipalities entered into the process of making an OTMP. In order to find out what are the factors that determine whether a municipality is interested to get into the OTMP process or not, interviews were made with some municipal actors. These interviews focussed on the mayor‘s office perception in relation to the OT process and its benefits. The function of the discussion with these municipalities is to establish/assess the gap between the theoretical OT approach and the OT in the practice at municipal level. The study considered at least two municipalities in each OT progress stage at municipal level.

Two municipalities with an OTMP finished but not implemented were considered (Punata and San Rafael) for interviews (interview #1, see Appendix 2). These two municipalities were selected for further assess to the OTMP. This section will give an overview description about why the municipality accomplished an OTMP and further details will be discussed in the next chapters. In addition two municipalities involved in the OTMP process (Colcapirhua and Tiquipaya) were interviewed (interview #2, see Appendix 2). These interviews were focussed on getting to know why the municipality got in the OT field and what benefits were to be expected from it in their

30 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA municipalities. Finally, three municipalities without OTMP (Quillacollo, Vinto, Sipe Sipe) were interviewed (interview #3, see appendix 2). These interviews were focussed to know the reasons why the municipality did not get into the OT field and whether some alternative plans were used in the municipality as a substitute for the OTMP. At first instance the selected municipalities were based on the data accessibility and the willingness of municipal authorities to provide information

A brief summary on the selected municipalities is showed on table 3.2

Table 3.2 Summary on the selected municipalities

M unicipality OTM P Location Altitude Rain/temp Area Population Economic stage m.a.s.l. (km2) activity San Rafael Finished * 510 934mm/year 9,818 5,000 Forestry 25°C Punata Finished ** 2680 450mm/year 100 26,000 Agriculture 14°C Tiquipaya In process ** 2555 500mm/year 438 38,000 Agriculture 19°C Floriculture Colcapirhua In Proces ** 2550 520mm/year 32 42,000 Agriculture 19°C Vinto W ithout ** 2489 480mm/year 215 31,500 Agriculture OTMP 18°C Quillacollo W ithout ** 2500 500mm/year 450 104,200 Agriculture OTMP 18°C Sipe-Sipe W ithout ** 2530 430mm/year 472 31,300 Farming OTMP 20°C * see corresponding number in location map in figure 3.6. ** see corresponding number in location map in figure 3.7.

Santa Cruz Case study Others Municipalities

BOLIVIA

Figure 3.6 Location M ap of San Rafael M unicipality

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Cochabam ba

BOLIVIA

(Case study)

Figure 3.7. Location M ap of M unicipalities interviewed

The following section presents a comparison between all municipalities selected with respect to OT field.

3.3.1. Municipalities with OTMP finished

Nowadays there are some municipalities with an OTMP finished, but the plans are not implemented yet. The two municipalities presented in this section are in this stage. In this section and in a short way, it will be present the reasons for the municipality to engage in the OT field. The next chapters will be addressed to explain these factors and others in a detailed way.

Municipality of San Rafael:

Financial support for OT The NGO —Chiquitanian Forest Conservation Foundation“ (FCBC by its Spanish acronym) gives the financial support. The OTMP formulation was carried out by means of cooperation agreement.

Reasons to engage in the OT field and benefits envisaged The mayor‘s office found the necessity to have a legal and normative planning instrument in order to improve the present land use. They wanted to know what natural resources the municipality has and where they are located. Moreover the mayor‘s office needed a general plan to improve its DMP. Finally the land tenure issue and land endowment issue are growing up in the country. The national

32 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA government has to plan granting the governmental lowlands to some social sectors who reclaims land to agriculture. These sectors are on the high-land region of the country and they put forward the exhaustion of theirs land. And now, they want the governmental lowlands to carry out agriculture for their own subsistence. In this sense the San Rafael municipality wanted to have a legal and technical document (OTMP) to prevent the irrational land use by this possible —new settlements“ and keep control of development.

Municipality of Punata:

Financial support for OTMP The financial funds for the OTMP were obtained from the Prefecture. In order to promote the OT at municipal level the Cochabamba‘s prefecture assigned specific funds for some pilot OTMPs. This municipality was selected because of secondary data availability and willingness of Mayor‘s office to help in the OT process

Reasons to engage in the OT field and benefits envisaged There are two principal reasons that pushed the mayor‘s office to get on the OTMP. On one hand, the financial support to carry out an OTMP was guaranteed by prefecture. On the other hand there is a strong migration from municipality to other regions (inside and outside Bolivia). This is mainly caused by lack of economic opportunities and insufficient support to the agriculture. The OTMP was focussed to provide economic alternatives and improve the agricultural production system.

3.3.2. Municipalities with OTMP in process

Municipality of Tiquipaya:

Financial support for OTMP The financial funds for the OTMP were obtained from FAO and an international project (CLAS), channelled by the prefecture. The financial support is a part of the FAO‘s regional project to rural and sustainable OT. The CLAS project is the implementer institution for the OTMP.

Reasons to engage in the OT field and benefits envisaged The mayor‘s office staffs were introduced to OT field by means of workshops and bibliographical material supplied by CLAS and FAO. In the perception of Tiquipaya municipality in the main positive aspect of the OT process is that it defined the most suitable land use and assists in the empowerment of its MDP. Owing to its physicals and ecological characteristics the municipality is defined as an agriculturally productive area. In this context the mayor‘s office saw with regret that the accelerated urban expansion caused a decrease of the agricultural production areas. The mayor‘s office is carrying out the OTMP to offer its benefits for the local people in order to increase the productivity and give more control on the urban and rural growth. It is the main reason that the municipality decided to get on with the OTMP elaboration. They want to have clear norms to take measures on the urban growth and rural development.

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Stage of plan In the OTMP progress, a stage of creating awareness about the importance of a good OT was the first step in the municipality. Now the territory‘s integral diagnosis is already finished. At present the mayor‘s office is focussed to spread information about the OT progress to the citizens. This spreading is through leaders of legally recognized communities (OTBs), both in the valley region and in the high-land region. Some local people do not understand totally what the OT implies. Until this moment some leaders do not take part in the information meetings. According to the mayor‘s office this can be because the OT methodology is a little difficult to understand. The new terminology used in the OTMP elaboration is not easy to understand and has to be explained throughout the process. In addition they confuse the OT process with land tenure and property rights.

Main hindrances For the municipality functionaries it is clear what an OTMP is, and it also is clear what the planning means. But the lack of financial resources is the main hindrance to have a planning directorate. According the mayor‘s office, the OTMP elaboration could be assisted by such planning directorate. The financial support to elaborate an OTMP is limited. It does not cover institutional and administrative expenditure for a follow-up in the OTMP elaboration.

According to the mayor‘s office there are boundary problems with adjacent municipalities, which are very difficult to discuss, but are not affecting the OT process. As mentioned previously, the municipality is carrying out the OT process to abide by the Municipalities law and Environmental law. Also the mayor‘s office thinks that one of the greatest weaknesses in the OTMP is its methodology. This methodology has a closed format, is very technical, and quite difficult to understand for the citizens. According to them the use of a simple method can help them to get the idea. The OTMP is a new planning instrument for social actors, and would have to use simple terminology to avoid wrong interpretations.

Municipality of Colcapirhua:

Financial support for OTMP Equally to Tiquipaya the PMOT financial funds to Colcapirhua were obtained by means of FAO and an international project (CLAS), channelled by the prefecture.

Reasons to encourage on OT field and benefits The mayor‘s office feel that Colcapirhua is a very young municipality (was created in 1986) and need to have action lines defined. The planning directorate needs to define its guidelines and actions. In this sense the mayor‘s office resolved to face up the OTMP elaboration. W ith this OTMP the mayor‘s office will be able to have a solid base to planning for the future.

Stage of plan The OTMP is in the process of collecting primary and secondary data. The planning directorate is in charge to supervise and follow up the process carried out by CLAS. In addition FAO and CLAS are carring out some feedback workshops for the mayor‘s office staff.

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Main hindrances For the municipal authorities there are no main problems in the OTMP elaboration process. There are some local farmers leaders, who are against OTMP elaboration. The mayor‘s office feels they do not exert influence in the OT progress. These local farmers‘ leaders do not have much knowledge about OT benefits and they always associate any type of data gathering in their lands to the payment of taxes.

Some elements for further discussions: Two issues arise in the interviews to these two municipalities with an OTMP in progress. First, the OT —theoretical“ objectives are not clear for the mayor‘s office staff. Although the two municipalities got on OT field by means of FAO and CLAS, only the mayor‘s office of Tiquipaya has shown great interest in the OT process. This municipality was the unique in paying proper attention to the logistic and dissemination activities (Munoz, 2003) On the other hand the municipality of Colcapirhua leaves the accomplishment of the OT process to FAO and CLAS. The Colcapirhua municipality does not have an active involvement in the process. (pers. com. CLAS staff, 2003)

The second issue is the possible benefits. The answers of both municipalities do not look ambitious with respect to the OTMP benefits. They have only a weak idea of how they can use the OTMP. This lack of knowledge about the OTMP benefits could put in danger its implementation.

3.3.3. Municipalities without OTMP

Municipality of Vinto:

The planning unit/directorate in the municipality Until last year, there was a director for the planning unit. At present there are a technician is in charged of the unit. This unit is working with the cadastre unit to coordinate the urban growth.

Knowledge about OT and Why not an OTMP The planning unit has a slight idea about OT. According to the mayor‘s office the main problem is to define the jurisdiction boundary. For the mayor‘s office it is almost impossible to start or get on to the OT field without defined boundaries. The boundary problem covers important issues such as total population and economic resources per habitant. Based on the Decentralization act and Co- participation taxes.

Municipality of Quillacollo

The planning unit/directorate in the municipality The planning unit coordinates with all the units of the urban development system (cadastre, basic service, public works) but the rural development unit does not exist. Their planning instrument is an urban-rural multi- purposed cadastre. It was made recently (2002) by means of aerial photography and satellite images. The urban-rural multi-purposed cadastre shows all socio-economic infrastructure (houses, roads, wholesale food market, green areas, etc) allocation on the municipality. This instrument shows on a screen the areas of each land owner, and real estate. The mayor‘s office feels

35 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA that this instrument is useful in the planning context as well as to determine the local tax amount for local citizens.

Knowledge about OT and Why not an OTMP The mayor‘s office has knowledge about the OT process and all issues that an OTMP elaboration implies. The mayor‘s office feel that progress on the OT field in the municipality exists. The progress is their urban-rural multi-purpose cadastre. Nevertheless this cadastre has neither a LUP nor LAP. In addition in 2002 the mayor‘s office had to get on the OT field with an OTMP, but the available economic resources were not set aside for such aim because the municipality had other priorities. Therefore the legally recognized communities (OTBs), by Popular Participation act, controlling social partners of the financial resources (and in some sense decision-makers) preferred to set these economic resources aside for short time public works. The mayor‘s office feels that there is no pressure by local citizens to carry out an OTMP. The high price for the OTMP elaboration is the major factor to discourage an OTMP. According to the mayor‘s office the boundaries problem is not a constrain factor to get on the OT field.

Municipality of Sipe Sipe

The planning unit/directorate in the municipality The municipality of Sipe Sipe has a planning directorate. The directorate is restricted to three staff. The planning directorate is in charge to guide the urban growth. They have an old master plan to guide the urban growth boundaries. At this moment the directorate works more as supervisor for urban growth than as a planning unit.

Knowledge about OT and Why not an OTMP The mayor‘s office has knowledge about the OT field (because it is mentioned in the Municipalities act), but they are ignorant of the OT objectives and its benefits. One hand the mayor‘s office feels that the OTMP elaboration is very expensive and they do not have this financial resources to encourage an OTMP. Moreover the mayor‘s office feels that the central national government should provide the financial resources for the OTMP elaboration. On the other hand the mayor‘s office decisions have to be approved by consensus with OTBs. In this sense the local people prefer to use the economic resources in infrastructure works (roads, green areas, wholesale food market improvement, etc.).

Some elements for further discussions These three municipalities are neighbours and they have some common factors that do not encourage the OTMP. First factor is the economic resources. Vinto and Sipe Sipe are small population municipalities (about 31000 inhabitants), and their incomes by co-participation taxes are limited. The municipality of Quillacollo (about 104200 inhabitants) has more incomes (by co-participation taxes, local taxes) to get on the OT field. However, equally as Vinto and Sipe Sipe, Quillacollo municipality has many urgent social claims: potable water, sewerage, improvement of hospitals and public college infrastructures. This fact causes the delay of these municipalities to engage on the OT field. Second factor is the public participation. The local people in the three municipalities do not push the mayor‘s office to engage on the OT field. They the local people prefer short time solutions more than a long time plans. Perhaps the local participation empowered by law (Popular Participation act) is an important constraint in the OT progress at municipal level.

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3.4. Identification evaluation criteria From the short review of OT in the municipalities just discussed, a number of key aspects have come up, that may determine whether a municipality will engage in OT or not and how successful its performance will be. But, no real evaluation criteria have yet been developed. For the more elaborate analysis of the two selected municipalities a set of criteria should be identified with which the performance of OT can be evaluated.

The identification of such a criteria set to assess the OT at municipal level attempts to bring together all the relevant issues in an evaluation of development plans. A literature review was carried out, including e.g. Alexander and Faludi (1998), Baer (1997), Bosshard (2000), Bruton (1984), Dopheide (2002), ISCRP (1998), W orld Bank (1999), EA (2001), to make sure that there is a balance in the identified evaluation criteria. Preliminary criteria were defined in the pre-fieldwork stage. A stakeholder analysis and SW OT analysis (internal and external variables of the OT) then were made in order to identify which of these were the better evaluation criteria to assess the study cases. The stakeholder analysis was meant to identify the individuals or groups that should be encouraged to participate in different stages of the OT planning process. Key stakeholders were defined from the list of stakeholders / stakeholders groups by determining their influence and importance towards the success of OT progress. Finally a fine-tuned list of stakeholders was obtained. The criteria were refined on the basis of the semi-structured interviews with key stakeholders. In addition to these interviews a SW OT analysis was carried out with each key stakeholder. The interviews gave relevant aspects and parameters to identify the final criteria and to make them operational as well.

3.4.1. Prelim inary Criteria

Criteria for the evaluation of plans in general vary depending on the purpose of the evaluation. Until now, an evaluation for the OT municipal plans has not been carried out. In addition no OTMPs have been implemented yet and there are no outcomes that can be evaluated. Therefore, for the identification of the evaluation criteria the OTMP was considered as a development plan. This consideration was based on the fact that an OT plan promotes and guides the development of the physical space (MDSP, 1999). After that it was necessary to identify common key criteria to evaluate a plan.

International finance corporations and development institutions such as the W orld Bank (1999) and European Aid (2001) are employing some common criteria for evaluation procedures of individual projects. These criteria usually are:

‹ Relevance: the degree to which a product or activity is related to or useful for society.

‹ Efficiency: This means essentially that resources are not wasted and that maximum aggregate well-being is derived from a given stock of resources.

‹ Effectiveness: how successful is the plan in achieving the planned results and the project‘s purpose.

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‹ Impact: the powerful effect that the plan has on the overall objectives to which the project‘s purpose should contribute

‹ Sustainability: this means that the plan can continue and become self-supporting also after the external support stops.

Although originally set up for the evaluation of individual projects some of these criteria or some of them are presently also employed by the European Community (EA, 2001) for the evaluation of policies sectoral plans and programmes.

A much more detailed review of evaluation and evaluation criteria of plans is given by Baer (1997), who addresses the limited development of criteria for evaluating the quality of general plans. He states that the evaluation criteria are closely related to the stage of the planning process and the type of plans and accordingly distinguishes five different stages for plan evaluation:

1) Plan assessment while preparing the plan;

2) Plan testing and evaluation;

3) Plan critique;

4) Comparative research and professional evaluations, and;

5) Post hoc evaluation of plan outcomes.

In this context the OTMP falls in the first stage for plan evaluation (plan assessment). Therefore, this study will focus on this identified stage for OTMP evaluation.

The —plan assessment while preparing the plan“ is carried out while the plan is being formulated and before its implementation. The plan assessment evaluates professional expertise, the plan as document, its content, method and reasoning. It operates at the moment of bringing a plan into being. Baer (1997) states that for this kind of evaluation planning, the criteria should specify what professionally approved standards the plans should have to meet. The criteria also would respond to the changed legal expectations about planners‘ competence and skills.

W hat are appropriate criteria depends on the type of the plan to be evaluated Baer (1997) distinguishes various types of plans. The types —the plan as a land use guide“ and —the plan as vision“ are most in line with OT plans in Bolivia. The first type, the OTMP with its LUP addresses, guides and provides norms to the land use. The OTMP fits with the —land use design plans“ and with the —land classification maps“. In the second type —the plan as vision“ type, the OTMP fits in it because it contains the long-term vision for the territory.

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Baer (1997) drew up a composite list of criteria and distinguishes the following eight criteria/aspects, which could be used in the course of making and assessing a plan. The criteria are:

‹ Adequacy of context: Explain the context and setting, what and why of the document. They are not self evident to the public. ‹ Rational Model consideration: Show basic planning consideration based on underlying theory and its criteria. The plan authors must be clear themselves about what they are doing, to transmit clarity to the reader. ‹ Procedural validity: Explain the who and the how of the plan-making; inform the reader about what went on in making the plan and what is going on by publishing it. ‹ Adequacy of Scope: Show how the plan is connected to the larger world ‹ Guidance for implementation: Most plans are intended to do something. Consider the instruments and agencies and persons responsible for making the plan work. ‹ Approach, Data, and Methodology: Make clear the technical bases, if any, of the plan; where the data come from and how they used, so that others may check the plan‘s thinking by use of the same resource. ‹ Quality of Communication: Clear communication above all else is necessary for a fair hearing from others. ‹ Plan Format: Other forms of communication are found in the plan format itself, as well as evidence on who takes professional responsibility for the plan‘s formulation, when it was adopted.

Based on these criteria the following preliminary criteria were identified in the pre-fieldwork stage as:

‹ Relevance: The most important issue is to know whether or not the plan identifier the problems and provides solutions for them based on the municipal opportunities. This criterion is related with the —rational model“ of the plan. ‹ Feasibility (Guidance for implementation): This criterion should identify the lack of implementation for the OTMPs. This is focussed in its follow-up and its implementation financially, technically and legally. ‹ Adequacy of the method: It should refer to the efficiency of the OT methods and the proper use of the available data and resources. This criterion is related with the approach, data and methodology. This criterion comprises the efficiency and data approach mentioned in previous paragraphs. ‹ Coherence (Adequacy of Scope): The OTMP should be coherent and clear with respect to how the plan was built up. The OTMP has to show how it is connected to or in line with the originally identified problems. ‹ Plan format: The OTMP document should be readable and understandable for both municipal planners and local people. It should be accessible for common people and it should be in a clear language.

These five criteria include all —theoretical“ relevant aspects in an OTMP without implementation. The stakeholder‘s analysis and SW OT analysis have been carried out to improve the preliminary criteria and possibly add other criteria based on stakeholders perception.

39 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

3.4.2. Stakeholders Analysis

A number of relevant stakeholders / stakeholder groups was identified both before the fieldwork by means of literature review and during the fieldwork period. Later, the list of those stakeholders was reviewed and improved by excluding those stakeholders, which were considered not essential for the objectives or that were difficult to meet.

The assessment of the influence and importance of the stakeholders in this study helps to define a fine-tuned list of stakeholders. The influence and importance presented here might not reflect all of their influence but just the major ones relevant to the topic to which this study was restricted.

Influence refers to how powerful a stakeholder is to determine the direction and outcomes of the activity concerned in relation to their own objectives (DFID, 2002). This could be assessed through the power that stakeholders have over the activity, such as: ∑ To control which decision is made ∑ To facilitate its implementation; and

Power may come from the nature of a stakeholder‘s organization, or their position in relation to other Stakeholders.

Importance refers to whether the problems, needs and interests of particular stakeholders are priority of the activity. Importance is likely to be most obvious when stakeholder‘s interests in the activity meet closely with the activity‘s objectives. Importance is different from influence. For example, often situations occur in which stakeholders, on which the activity puts big priority, do not have the capacity to participate in it and have limited power to influence the decisions.

Stakeholder‘s importance and influence can be ranked from low to high and plotted in a matrix diagram (see also figure 3.8).

According to DFID (2002) a benefit of doing this type of stakeholder analysis is that it helps in predicting supports that can be expected and resistances that may be met in the participatory process.

Analysis of stakeholder‘s influence and importance and their classification as —key informants“ in this study is mainly based on the researcher‘s judgement based on the information obtained from previous interviews and observation, literature review and to the extend of researcher‘s knowledge and experience.

The main groups of stakeholders were identified from literature and the list was crosschecked using triangulated interviews. The total list of all key stakeholders at municipal level in the study came to 15. These stakeholders were grouped into 4 groups (see table 3.3). These groups are:

1) National Government Authorities (Ministry of Sustainable Development, Vice-ministry of planning, OT head office, Protected Areas National System, Prefecture OT technical Unit), 2) Municipal Government (Mayor, municipal council, technical directorate),

40 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

3) development institutions (private development institutions (NGOs), International institutions (e.g. FAO, GTZ, KW F) technical agencies (who makes the plan e.g. CLAS, Zonisig, Galindo Consultants), 4) Users (legally recognized communities (OTBs), Comite de Vigilancia3 (CV), Commercial Farmers, Agriculture civil organizations), all of whom have stakes in the municipality under an OT process.

The scores of influence and importance are from 1 (=low) to 5 (=high). Plotting these scores in a matrix results in three groups, as presented in figure 3.8.

H igh Importance/ H igh Importance/

Low Influence H igh Influence

A B 4 2

e c

n a t

3 r

o p m

C D h 1 g i h

o t

w o

Low Importance/ Low Importance/

Low Influence Low to high influence H igh Influence

Figure 3.8. Stakeholder classification matrix. Box A shows the stakeholder group (4 = Users) of high importance to the OT municipal plan, but with low influence. The users require special initiatives if their interests are to be protected. The users group is in this level because the OTMP is addressed to improve their quality of life, thus they are very important. Their low influence is due to lack of knowledge about OT and the planning process by the local people (users). Therefore they do/can not make pressure to mayor‘s office for some development plans.

The heterogeneity of this large group is obvious and their importance and influence could be fall in different ranges. In this study the importance and influence were not consider for separate sub-groups because it is too difficult and subjective to identify that for each one. For instance, the community forest group in one municipality could have interest to get on the OT field, but in another municipality the same subgroup (community forest) may have no interest in the OTMP. In this study the main implicit purpose of the OTMP was considered to be the improvement of the quality of life through the sustainable use of the natural resources (MDSP, 2002).

3 Local committee in each municipality, composed of representatives of the population, that controls and super- vises the actions of local government (Nijenhuis, 2002)

41 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

S takeholder/ Impor- D escription Interest Influence S takeholder G roup tance 1.The Ministry of sustainable development, 2. Vice-ministry of The Ministry‘s main goal is to ensure an appropriate and planning, 3. OT head Office, 4. Protected Areas National System successful sustainable development. W ith the OTMP the and 5. Prefectures are stakeholders at national level in the OT mu- National Government Authorities aspire to achieve sustain- nicipal process. They have the same political line and interest at able land use. National Government 1 central level. In the OT process at municipal level the national au- 2 2 Authorities thorities (specially the prefectures) are looking for financial support to carry out the OTMP. In other cases they are the institutional channel for external financial funds. This stakeholder group is the last instance in the OTMP approval process.

1. Mayors, 2. Municipal council, and 3. Technical directorate, have The main interest of the mayor‘s office is to know the avail- the mission of the municipality‘s development. Most often, there are able natural resources in the municipality. The municipali- different political lines within the mayor‘s office (related with na- ties want attract as many investors to the area for develop- tional governmental levels). This fact can be detrimental in the stage ment plans as possible. The municipal authorities feel that 2 Municipal Authorities 4 4 of political decision approval. The technical directorate is in charge important attention should be paid to the reduction of en- of following-up the interdisciplinary reports and all the OT process. croachment and to sustainable utilization of their territory. Another interest is to have a legal instrument to pursue further development. 1. The NGOs, 2. International institutions, and 3. Technical agencies The main concern of the development institutions is to re- are supporting the OT process. In most cases they are the financing duce the poverty by means of sustainable natural resources agents. Some-times the financial agent is at the same time the one management. In some cases they want empowerment of the Development Institu- 3 who elaborates the OT plan. These stakeholders have their own local people in the development planning by means of par- 3 3 tions policies about developments plans, but always are addressed with ticipation. the OT guidelines. Often, these stakeholders are the multidisciplinary staff in charge of the OTMP elaboration. All civil people within the municipality‘s jurisdiction are included in To Improve their quality of life. this stakeholder group. According to the OT legal framework these 4 Users (Local citizens) stakeholders are empowered by means of the Popular Participation 1 5 act. The commitees, communities and associations take part in the mission statement stage within the OTMP elaboration.

Table 3.3. Stakeholder / Stakeholder group (Influence and Importance)

42 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

Box B shows the stakeholder groups of high importance and influence to the activity. A good working relationship with stakeholders from this box is necessary to ensure an effective support for the success of the activity. The Municipal Authorities (2) and Development Institutions (3) are together in this box. The municipal authorities have more importance and influence than development institutions because they have the —Political Decision“ to start the OT process. The importance and influence of the development agencies comes from the fact that they have the financial support and sometimes they have specific interest in the municipality (e.g. conservation).

Stakeholders in the Box C are of low priority but may need limited monitoring. They are unlikely to be the focus of the activity. None of the identified stakeholders fall into this category.

Box D shows the stakeholder group with high influence, which can affect the outcome of the activity, but whose interest is not the target of the activity. These stakeholders may be able to block the activity and therefore could constitute a —killer risk“. The National Government Authorities have a significant influence to the OT process through their legal link with the process at municipal level. Moreover they are the last stage in the OTMP approval by national resolutions. Therefore the national government authorities could constitute a detrimental factor in the OT process whenever they do not cooperate.

Once the stakeholder analysis was finished the final list could be obtained. The list was based on three stakeholders groups: National Government authorities, Municipal Authorities and Development agencies. The user stakeholder group was not considered because it is very subjective to select the better actors from this group who reflect a general perception to the OT process. Therefore only 15 representative stakeholders were selected to be interviewed (for interview details see appendix). Six of them represent to the National governmental authorities (Vice-minister of Sustainable Development, OT Head office‘s manager, GIS expert at OT head office, natural resources expert from OT head office, OT prefecture office‘s manager of Cochabamba, OT prefecture office‘s manager of Santa Cruz). Of the Development agencies group four more were selected (CLAS 2 staff, FAO 2 staff, Conservation foundation 2 staff, one technician involved in the OT guidelines formulation). Finally four municipal authorities were selected (San Rafael‘s mayor, Colcapirhua‘s director for OT process, Tiquipaya‘s director for OT process and Punata‘s mayor).

The semi-structured interviews were focussed on the SW OT analysis (internal and external variables) at municipal level and on obtaining relevant information to identify evaluation criteria for assessment of the OT at municipal level.

3.4.3. SW OT Analysis

SW OT analysis is a tool designed to be used in the preliminary stages as an important part of the strategic planning process. It focuses on the identification of strong and weak points within an organisation and the analysis of opportunities and threats towards further development. (Groenendijk, 2001)

43 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

The SW OT analysis in this case was meant to obtain relevant issues towards the municipal process. These issues could support or/and improve the preliminary criteria, for example, by finding some relevant criteria, which were not identified in the preliminary phase. To strengthen the analysis, the information obtained through the semi-structured interviews was validated by checking relevant documents or written evidences.

STRENGTHS and WEAKNESSES

Knowledge about natural resource: Good knowledge about the real natural resources and where they are located in the municipality is strength in the OT process. From this knowledge the municipalities may to do investment projects in those areas with some economic, environmental, recreational and/or cultural interest.

Participative planning: This issue should be an important element in the OT planning process. The OTMP needs a social- administrative consensus to state its —ideal model“ and to achieve its objectives. W ithout local participation in the planning process the OTMP could become with lack of relevance among the local stakeholders.

Identify all kind of information into a territory space: It is closely related with the knowledge about natural resources, but this issue is more related in the technical aspects. The OT can uses some tools in order to identify the main characteristic (biophysical, social) in the municipal territory. Additionally the OT in terms of spatial dimension has the possibility to storage and up-date all kind of spatial information. In this sense the OT could follow the spatial trends in the municipality, (spatial plans)

Lack of knowledge about the OT benefits: Unfortunately the lack of good distribution of information about the OT and its benefits is a factor that can decrease the relevance of OT in the local stakeholders‘ scenario

Difficult in the methods Some stakeholders are in concordance that the terminology and some methods used in the methodological guide are difficult to understand. This fact can introduce bias in the collection of field data, and produce irrelevant or not real outputs.

OPPORTUNITIES AND THREATS

Institutional Environment: At present the institutional environment is a threat for the OT at municipal plans. OT policy, legislation and effectiveness and efficiency of the Ministry of Planning and Sustainable Development, especially the OT Head Office, can have a serious influence on the OT process. The lack of political decision at national governmental level could to hold up/postpone the implementation of the OTMPs because it is this level which in the last instance has to approve the OTMPs.

44 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

Lack of sustainability: In the legal norms the sustainability/feasibility of the plan is not clear. This is a threat for the OTMP. How can the OT plan and the OT process be feasible at long term? There are no policies to achieve the financial sustainability of the OTMP.

Boundaries conflicts: According to key stakeholders at national governmental level boundary conflicts could be a threat for the OT at municipal level. Also the key municipalities‘ stakeholder mentions this issue in relation to OT. Although the boundary conflicts are not related explicitly there are some subjects behind it. Especially in some boundary conflicts in populated areas. For instance, the main subject is related with the economic income by means of co-participation taxes. Some mayor‘s offices believe that with the a solution of the boundary conflicts the number of inhabitants can be properly established (sometimes this could add inhabitants) resulting in more income.

Popular Participation Act: This is the only external variable that has been identified as opportunity. This law enforces the authorities to include the local people in the planning process. In addition the Popular Participation Act recognizes the representative based-groups (OTBs) and the —Comites de Vigilancia“ (CV). The OTBs could be in some instances be decision-makers in some local plans. Therefore they could have the —ownership“ of the local planning. Good distribution of information about OT and its benefits among the local people should promote the awareness of the importance of sustainable development and the OTMP as the means to achieve that.

ADDED CRITERIA Although there are many internal and external variables within the OT field, the present study could extract the most relevant ones at municipal level by means of SW OT analysis. Some of these issues already were reflected in previous sections, but were now confirmed such as the boundary conflicts and the lack of a clear norm for OT. Unfortunately these subjects would have to be considered at other levels and need other approaches to be studied

From the SW OT analysis it is possible to confirm three of preliminary criteria:

1) The sustainability/feasibility to implement and follow-up the OTMP financially, technically and legally. 2) The efficiency of the methods in the OTMP elaboration related with the possible diffi- culty to understand the methodology and 3) The relevance of the OTMP is related with the lack of knowledge about OT and its possible benefits.

It also is possible to identify one element to define others evaluation criteria: the emphasis by the Bo- livian government to strengthen the public participation in the local planning process. Based on this element the new evaluation criterion identified in this stage was:

‹ Ownership: This criterion means whether or not the local stakeholders initiated the planning process and they were owned the planning process. In addition, it is closely related with the

45 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

participation of local people in the planning process. The OTMP elaboration should be a participative process and local people should be involved in it.

In the next section the final evaluation criteria are presented and elaborated. The identified evaluation criteria will be used for assessing the two OTMPs selected.

3.4.4. The evaluation Criteria

The appropriate criteria to evaluate a plan should be implicit in the concept that the plan embodies. Moreover, in reciprocal fashion, the plan‘s concept is clarified only by considering the criteria to judge it. (Baer, 1997). The literature review and the semi-structured interviews with stakeholders helped to identify and define the final criteria. The criteria have been developed for the purpose of the evaluation the OT municipal plans in Bolivia. It should be borne in mind that the impact of the plan can not be evaluate because implementation of the OTMPs has not started yet and therefore the focus of the evaluation criteria has been restricted to the plan itself and its formulation. An element that is specifically dealt with in this evaluation is the process of plan formulation with the local public participation.

The final criteria are presented in table 3.4. The present study makes a distinction between the plan as a product and the plan as a process. These two components are both contained in the selected evaluation criteria. For each criterion indicators have been established by which it can be evaluated. The indicators have been obtained and extracted from the literature and interviews presented in the previous sections.

The relevance criterion uses —identification of problems/opportunities“ and the —knowledge about benefits of OTMP“ as indicators. The present study considers that relevance of the OTMP elaboration depends on the potential to identify the problems and the opportunities. Based on the opportunities of the municipality the OTMP should be able to provide solutions to the problems or benefits for local people. The knowledge about possible benefits should increase the relevance to elaborate an OTMP. In addition, behind this knowledge are subjects such as the distribution of good/poor information around OTMP as mentioned in SW OT analysis.

The feasibility criterion was divided into three groups: 1) legal feasibility. - The OTMP should be compatible with regulatory/approval requirements at municipal and national levels. 2) Technical feasibility. - The indicator used is the —ability to the OTMP easily adopt and complement in the MDP. The plan has to be clear and specific with respect to how it will be integrated in previous and following short and medium terms plans. 3) financial feasibility. - The indicator selected for this group is the —ability to secure capital and funding for the OTMP implementation itself and possible activities implied in the OT“ (e.g. follow-up, feedback).

The coherence criterion uses as indicator the ability to represent the outputs of OTMP in a consistent, logic and clear way. The OTMP outputs should be in line with the original problems and opportunities found in the elaboration process.

46 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

Criteria Method for Indicator(s) Measure G oal of Evaluation Main Q uestions Category verification* The Plan as a Product o Know ledge about O T MP benefits (both, envi- H igh – T he local stakeholders (LS H ), m unicipal authorities (MA ) ñ T o verify the agreem ent on ñ D oes the O T address and identify the prob- W orkshop w ith local ronm ental and socio-econom ic) to m unicipality and technicians (T ) agree that the O T MP has identified the O T MP potential identified lem s/opportunities in the m unicipality’s reality? people and local stakeholders. ñ Is the collected and presented inform ation problem s and opportunities in a realistic w ay. Q uestionnaires (1) those relevant to “attack” the identified prob- Moderate – T he LS H , MA and T only partially agree that the (2) lem s or to benefit from identified opportuni-

e O T MP has identified the problem s and opportunities in a realis- ties? c n

a tic w ay. v e

l Low – T he local stakeholders do not agree that the O T MP has

e R

identified the problem s and opportunities . P

M o Potential to identify the problem s and H igh – T he local stakeholders (LS H ), and m unicipal authorities ñ T o assess the know ledge of ñ A re the benefits know n by LS H and MA ? T ñ O opportunities in the m unicipality. (MA ) know about environm ental, socio-econom ic benefits and how LS H and MA about O T MP D oes the O T MP satisfy the S takeholders benefits. needs? to achieve these (e.g. changes in the land use, prohibited and

restrictive uses, re-allocation of settlem ents, etc.) Moderate – T he LS H and MA know som e O T benefits. Low – T he LS H and MA do not know about O T MP benefits. o Com patibility w ith regulatory / approval H igh – H ighly com patible w ith existing political and planning ñ T o determ ine w hether ñ A re the O T MP outputs in line w ith current Q uestionnaire (1) (2) requirem ents (legally) system and regulatory requirem ents. O T MP is w ithin the legal and regulatory requirem ents and political inter- present planning fram ew ork ests? Moderate – S om ew hat com patible w ith existing political and and w hether funding can be ñ A re the O T MP outputs in line w ith previous planning system , regulatory requirem ents can be m et. secured. plans? Low – Integration w ith existing system and m eeting regulatory ñ A re the MD P and O T MP in harm ony? requirem ents m ay be difficult w ithout m odifications. o A bility to be easily incorporated in the D evel- H igh – T he outputs of O T MP can be identified and separated as ñ In w hat tim e fram e to consider the plan?

y opm ent Municipal Plan (technically). ñ D oes the O T MP give alternatives for the t individual short-term and m edium -term plans for its inclusion in i l

i im plem entation process?

b the MD P. i

a Moderate – T he outputs of O T MP has som e problem s to fit in e f the MD P. P

M Low – T he outputs of O T MP can not be integrated in the line T

O w ith the previous plans (MD P) o Potential to secure capital or funding for H igh - T he outputs of O T MP are financially feasible. T he O T MP ñ A re the O T MP outputs econom ically feasi- O T MP outputs (Financially) give som e alternatives to achieve this fund. ble? ñ D oes the O T MP have a chance for any fol- Moderate – T he outputs of O T MP are financially feasible or low -up or feedback? need little changes to secure the capital or funding.

Low – T he outputs of O T MP are not financially feasible.

47 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

o T he flexibility of the m ethod to im prove the H igh – O T guidelines are flexible enough to adopt alternatives in ñ T o provide additional oppor- ñ D oes the m ethodology give alternative Q uestionnaire (1)

data collection the m ethodology tunities to im prove the results. options w hen som ething fails? If yes, w hich S em i-structured d

o ones?

h Moderate – S om e flexibility in m ethodology com ponents to Interview s (1)(2)(3) t e adapt to changes. m

f Low – T here are no opportunities to use alternatives in the o

c m ethodology ñ T o determ ine w hether or a

u o not the spatial dim ension in the

q A bility to satisfactorily represent its intended H igh – T he m aps are consistent and can be used (w ithout Is the m ap scale appropriate for the contents

e m aps are consistent d function. (spatial dim ension) changes). of O T ? a

e Moderate – T he m aps are consistent but need som e im prove- ñ Is the level of detail adequate for O T at h

T m ents in specific areas for further local plans. m unicipal level? Low – T he m aps are inconsistent to their use. o T he ability to present the outputs of O T MP in H igh – O T MP follow s clear stages in its elaboration and its out- ñ T o determ ine the appropri- * Is the O T MP logic and clear? S em i structured -

r a consistent, logic and clear w ay ate scope and coherence in the e puts are in line w ith the objective. * Is the plan built up in a consistent w ay? Interview s (2) e c h n O T MP

o Moderate – O T MP follow s the stages but not in sequential order Q uestionnaire (1) (2) e C Low – T he O T MP does not have a sequential order. o Potential for the O T MP docum ent to have an H igh – O T MP docum ent is clear and readable for the m unicipal ñ T o determ ine the under- * D o you know the O T MP docum ent? Q uestionnaire (2) e

h accessible and understandable form at stand ability and readability of

t technicians and authorities. * Could you read it easily? and/or

f the O T MP by m eans of its n o Moderate – O T MP docum ent has som e term inology difficult to * D id you understand w hat the O T im plies? S em i – structured

a l t form at p a understand. Interview s m r Low – T he O T MP docum ent is not clear and it is hard to under- (2) o F stand w hat it im plies. T he Plan as a process

o Potential for local stakeholders to initiate and High œ The OTMP is owned by local stakeholders ñ T o verify the O T MP ow ner- ñ D id the local stakeholders initiate the plan- W orkshop w ith to “ow n” the planning process (O T MP elabora- Moderate – T he stakeholders have som e doubt about the O T MP ship by local stakeholders ning process? representative local

tion) ñ D id the local people ow ned the O T MP elabo- p Low – T he stakeholders do not participate in the plan process i people

h ration? s

r Q uestionnaire (2) ñ T o verify the Participatory e o Potential to include local people and their in- H igh - S ignificant opportunities to evaluate and change som e ñ W ho are the relevant stakeholders? n character in the O T Process. w terest in the planning process. aspects in the O T MP proposal ñ A re they involved in the process? If yes, O H ow and w hich level? If no, w hy not? Moderate – S om e opportunities to evaluate the O T MP proposal. ñ W hich are their interests? Low – Few opportunities to give opinion in the planning process

Table 3.4. Selected evaluation criteria

Q uestionnaire (1): to technical staff involved in the preparation of OT municipal plans selected (CLAS, FCBC) ; Q uestionnaire (2): To local municipalities‘ staff (Mayor and/or staff related with OT process) S emi- structured Interview s (1): To NGOs, study/research centres (CLAS, FAO, FCBC) S emi-structured interview s (2): To local municipalities‘ authority (Mayor and/or staff related with OT process) S emi- structured Interview s (3): To National government authorities stakeholder group (Vice-minister of Sustainable Development, OT Head office‘s manager, GIS expert at OT head office, OT prefecture office‘s manager of Cochabamba and Santa Cruz) W orkshop: To Legally recognized communities (OTBs), Comite de vigilancia (CV), (local people representative)

48 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

The adequacy of method uses as indicators the flexibility and the ability to present the spatial dimension. The flexibility in the method refers whether or not some alternatives to gather information during the OTMP elaboration are allowed. Such alternatives may improve the quality and/or quantity of the collected data and possible outputs. The ability to present good spatial information in maps format could be an indicator of methods adequacy on the respect to the spatial dimension introduced in the Bolivian planning

The format of the plan criterion is focussed on the way to explain the outputs of OTMP. The OTMP should be clear, accessible and understood by municipal technicians and authorities in order to avoid wrong interpretations of information contained in the OTMP.

The ownership criterion is focused on the process of OTMP elaboration. The potential to —own“ the OT process and participate in it are indicators for this criterion. The possibility to —own“ the OTMP elaboration will influence whether they are willing to initiate the OTMP process and improve the field data gathering (specially the socio-economic surveys). The participation of local people in the OTMP elaboration is supposed to improve the outputs of OTMP by means of the opportunity to express their interest in the planning process. This participation may create awareness of the relevance to implement the OTMP.

The evaluation criteria and their indicators are based on qualitative measures that have been based on the workshops, interviews and questionnaires to relevant key informants related with the two municipalities selected for the assessment. These measures are divided in three levels (High, moderate and low) in order to have a more detailed evaluation. The table presents the main questions for each criterion and its indicator. The appendix 2 shows the full questionnaires and scheduled workshop used in this study.

The workshop was carried out with the OTB´s and the —Comite de Vigilancia“ because of they are the main stakeholders in the public participation in the municipal development planning process.

The results of the assessment in San Rafael and Punata Municipalities based on the evaluation criteria will be presented in the following two chapters.

49 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA

4. Case Study San Rafael Municipality

4.1. Study area selection The selection of the study area was based on four factors: 1) Municipality with an OTMP finished but not implemented; 2) W illingness at the mayor‘s office and the technicians who made the OTMP to provide data; 3) Relatively easy access to the municipality, and 4) Opportunity to carry out a workshop with the local representatives (CV and OTBs).

These selection factors were fulfilled by San Rafael Municipality. 1) As mentioned in chapter 2 San Rafael is one of the 51 municipalities with an OTMP finished. 2) The Chiquitanian Forest Conservation Foundation technicians (FCBC by its Spanish acronym) made the OTMP and they are open and interested in the distribution of information about the OT process in order to promote awareness in sustainable development and the conservation of Chiquitanian area. The Mayor‘s office is open and friendly to provide data 3) It is about 400 km from Santa Cruz city and accessible by road all the year. 4) The mayor‘s office provided the necessary infrastructure (Municipal‘s Hall) to carry out the workshop with local representatives.

4.2. Socio-econom ic and Bio-physical Characteristics The municipality of San Rafael is located in the Department of Santa Cruz. It was created by Law Decree # 1531 (issued on 7/2/1994). San Rafael has a population of about 5000 inhabitants. Of the inhabitants 42% live in the rural area and 58% in the urban area. The population density is about 0.5 inhabitants/km2. Nowadays the municipality has 3 districts (see appendix 3): 1) San Rafael with nine communities; 2) El Tuná with two communities and 3) Villa Fatima with five communities. The principal economic activities are forestry and stockbreeding. These activities are mainly managed by private sectors. Most of the agricultural production is for subsistence. Nowadays coffee production is increasing within the communities as a crop. The emigration flows are about 19% because lack of employment opportunities. (FCBC, 2003)

The San Rafael municipality has a dry tropical climate (annual rainfall 607-1187 mm and average temperature of 24 °C). It is on the Brazilian tectonic craton and presents undulated hills topography. The highest point is on 600 m.a.s.l. and the lowest point about 500 m.a.s.l. The municipality has three eco-regions: 1) Most of municipality is in the —Chiquitanian dry forest“ (Bolivian‘s endemic eco- region); 2) The western part of the municipality has the —Cerrado“ eco-region (rain forest area) and; 3) The west part has the —Pantanal“ eco-region (swamp area). The three eco-regions content a diversity of flora and fauna. Some species are in danger of extinction and they are mentioned in the appendix of CITES.

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4.3. San Rafael OT Municipal Plan The FCBC supported the Municipal Development Plan (MDP) formulation of San Rafael Municipality during the first months of the year the 2001. At the beginning of the year 2002 an inter- institutional agreement for the OTMP formulation, establishing together (FCBC and mayor‘s office) the objectives, contents and the approach of the study. In the following preliminary phase a team was formed (17 technicians of the FCBC and 3 municipal‘s technicians) and a schedule was elaborated that comprises the different activities. The financial support was about 50,000 US dollars, just for administrative and technical activities (The team‘s salary was not included in this budget). The final version of the OTMP document was presented in 2003. In September/October 2003 the OTMP was approved at municipal level but was not approved yet neither at Departmental nor at national level.

The OTMP document comprises: a) the background about the OT engagement by the San Rafael municipality; b) the general methods used in the OTMP elaboration and formulation; c) the integral diagnosis of the municipal territory; d) the integral evaluation of the municipal territory and; e) the OT municipal plan with its land use plan and its land allocation plan.

According to OTMP of San Rafael several opportunities and limitations were identified. The table 4.1. shows the major opportunities and limitation in the municipality.

Table 4.1. Opportunities and limitations identified in San Rafael

ASPECT OPPORTUNITIES LIM ITATIONS - Coordination among Municipal government, local - Low financial resources (Mayor‘s office) stakeholders, some NGOs, National Health Directorate. - Lack of knowledge about legal issues by the OTBs - Good coordination between OTBs and Mayor‘s office - Approval process in forest management plans is slow. Institutional - Most of the communities and labour unions are legally recognized - The catholic church is an a important institutions in the municipality development - High biological diversity (fauna) - Lack of hunting and fishing control - High forest and timber resources - Lack of coordination among the natural resources Biophysical - Potential eco-tourism areas management institutions - Lack of forest use programs - More than 60% of municipal territory is suitable for - Inaccessible policies for financial credits Economic / stockbreeding - High transport/travel cost productive - There are 10 sawmills in the municipality - Sawmills leave low benefits to the area (taxes). - There are a rural and inter-communities road network. - Qualified medical staff - Lack of adequate infrastructure for the local hospi- - There are core educational programs tal, cultural activities. Social - There is a Chiquitian heritage (Church of —las - Lack of education in public health misiones“ - Lack of infrastructure for permanent water service

To the OTMP document the ideal model for the municipality is: —The institutional, technical and economic conditions exist in the municipality of San Rafael, in order to take advantage of the population, institutions and natural resources potentialities in a balanced and sustainable form“. According to the FCBC (2003) this ideal model is in agreement with the general and specific objectives of the MDP. To reach this ideal model the following objectives were designed:

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a) To strengthen the economic productive activities; b) To diminish the mortality rate in the population; c) To increase the level of educative formation in the rural sector; d) To promote the sustainable use of the natural resources; e) To strengthen the present organizational structure and; f) To promote alternatives to diversify the production (e.g. tourism, agro-forest production, commercial services).

Each objective has some guidelines to make it operational and they are supported by the land use plan and the land allocation plan. These objectives will become in projects and activities to reach the OTMP benefits.

The land use plan (LUP) was based on the agro-ecological zones; risk maps; biological-ecological value maps; and ecological use map. The output is a map presenting (see figure 4.1) the advice for 9 categories and/or subcategories of land use: 1) Sustainable management forest; 2) Protection and Agro-sylvopastoral; 3) Extensive stockbreeding with forest management; 4) Agro-sylvopastoral; 5) Protected forest on river banks; 6) Extensive stockbreeding; 7) Conservation forest and sustainable management; 8) Conservation forest and; 9) Sustainable management forest and regulated stockbreeding activity. For all these categories of land use have their intervention rules and recommendations for use have been defined.

The land allocation plan (LAP) identifies homogeneous spatial units on basis of similar socio- economic and cultural aspects such as: population density, economic activities, quantity and quality of basic services, etc. The main spatial units are: 1) Spatial Unit San Rafael; 2) Spatial unit El Tuná; 3) Spatial unit Santa Isabel and; 4) Spatial unit Villa Fatima. These spatial units have important activities (commercial, administrative, basic services, health, education, etc), which they offer for the rest of municipality. The LAP identifies a spatial unit without important relation with the municipality (San Fermin). The LAP according to and based on the Municipalities act gives a proposal for new districts. It contains 4 districts (see appendix 3): 1) San Rafael with eight communities; 2) El Tuná with three communities; 3) San Fermin with two communities and; 4) Villa Fatima with four communities. For each proposed district and according to its socio-economic, cultural aspects and its basic services, administrative services and potentialities the LAP suggest the basic actions to achieve the OTMP goals. These actions are summarized in the OT municipal maps (see figures 4.2, 4.3, 4.4 and 4.5).

The possible benefits identified in the OTMP were: ∑ Institutional support by National, Departmental and municipal levels to achieve the municipal development ∑ Most of the communities will be organised. This event could generate an active participation in the decision-making processes focussed in the municipal development. ∑ The natural resources will be used in a sustainable way in concordance with their potential and limitations. ∑ Increase the economic and productive activities within the municipality. ∑ The human development indicators will be improved by means of the inhabitant access to basic social services.

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Land Use Plan

AGRO-SYLVOPASTORAL PROTECTION AND AGRO-SYLVOPASTORAL CONSERVATION FOREST AND SUSTAINABLE MANAGEMENT SUSTAINABLE MANAGEMENT FOREST SUSTAINABLE FOREST AND REGULATED STOCKBREEDING PROTECTED FOREST PROTECTED FOREST ON RIVER BANKS EXTENSIVE STOCKBREEDING EXTENSIVE STOCKBREEDING W ITH FOREST MANAGEMENT W ater bodies

Source: OTMP of San Rafael, 2003

Figure 4.1. Land Use Plan of San Rafael

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OTMP of San Rafael

OT of San Rafael district

REFERENCES

Com munity

SEW ERAGE CULTURAL HOUSE URBAN CADASTRE CONSTRUCTION OF EDUCATIONAL CENTRE CONSTRUCTION OF W HOLESALE FOOD MARKET CONSTRUCTION OF SQUARE ABATTOIR MICRO-HOSPITAL W ATER NETW ORK ELCTRIC NETW ORK URBAN AREA

Source: FCBC, 2003 Figure 4.2. OTM P map of San Rafael district.

OTMP of San Rafael

OT of El Tuna district

RE FERENCES Com m unity Construction of educational centres Construction of square W ater network Electrical network

Urban area

Source: FCBC, 2003

Figure 4.3. OTM P map of El Tuna district.

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OTMP of San Rafael

OT of San Ferm in district

REFERENCES Com m unity

Construction of road Construction of educational centre Construction of square W ater network Electrical net

Urban areas

Source: FCBC, 2003

Figure 4.4. OTM P map of San Fermin district.

OTMP of San Rafael

OT of Villa Fatim a district

REFERENCES Com m unity

Basic Supplies Construction of educational centres Construction of square Micro-hospital W ater network Electrical network

Urban area

Source: FCBC, 2003 Figure 4.5. OTM P map of Villa Fatima district.

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An overview The figures above show the OT municipal plan for each district. The maps show the principal socio- economic infrastructure existent and/or to be constructed. According to the general OT framework and its objectives the OTMP maps presented in the document show a weak graphic representation. The maps do not really show what an OTMP comprises. Additionally, in spite of OT guidelines recommendation the OTMP does not comprise a land category for possible urban expansion.

The OTMP of San Rafael identified some land use conflicts, especially settlements near of riverbanks. According to OTMP document, these conflicts could be solved with some specific projects focused on the sustainable use of natural resources . All the projects and changes envisaged on the OTMP do not include a time horizon.

4.4. Assessm ent of the OTMP of San Rafael Municipality

4.4.1. The Plan as a Product

RELEVANCE . -

V Indicator: Knowledge about benefits of OTMP

Knowledge about W orkshop/Questionnaires outputs OTM P benefits The local stakeholders know about the theoretical benefits of OT. They know about the possible environmental, socio- economic benefits but they do not know the real benefits identi- Local Stakeholders Moderate fied in the OTMP of San Rafael municipality. They are aware about the possible activities to achieve the benefits (e.g. land use changes, prohibited and restrictive uses, etc). They know some benefits of OTMP. The priority for the mayor‘s office to carry out the OTMP was to have a normative instrument to avoid the illegal settlements. Some Municipal authorities Moderate of the benefits identified in the OTMP are not known; because they are waiting the national approval to take the OTMP has a planning tool.

The measure as moderate on the local stakeholders in this indicator for the relevance criterion is based on: 1) they do not know the real benefits identified in the OTMP only the mentioned in the OT guidelines about sustainable development; 2) According to the local stakeholders, they have to know what costs the benefits imply because they are not determined to change their style of life radically.

The municipal authorities do not know all benefits implied in the OTMP. The specific benefits are not considered yet. They want the OTMP document to become a legal planning tool. After the OTMP is approved at national level, the municipal authorities will use the OTMP in its entire context.

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V Indicator: Identification of problems /opportunities in the municipality

Identification of W orkshop/Questionnaires outputs problems and/or opportunities They do not know yet the OTMP outputs, but they feel that the local problems were analyzed in the social surveys, economic Local Stakeholders surveys and workshops carried out in process of the OTMP ----- elaboration. They do not have knowledge about the opportunities identified in the OTMP. They agree that the OTMP has identified the socio-economic Municipal authorities and environmental problems as well as their opportunities High and staff within the municipality The technicians agree with the problems and opportunities iden- Technicians tified in the OTMP. However they mentioned that some specific High (FCBC) (not main) problems/opportunities could not be identified and mapped because the work scale (1:100000)

The relevance criterion is build up at two components: benefits knowledge and problem identification. The criterion was difficult to measure for local stakeholders because of their ignorance about the OTMP outputs. The municipal authorities and the technicians agree that the OTMP has identified the problems and benefits in a realistic way.

FEASIBILITY . -

V Indicator: Legal feasibility

Compatibility with Questionnaires outputs regulatory / approval requirements Municipal authorities They are convinced of with the legal compatibility between the High and staff OTMP and the existing regulatory requirements. The elaboration of OTMP was carried out taking in account the Technicians main norms and acts concerning to planning in general and OT High (FCBC) in particular

According to the municipal authorities and technicians the OTMP has legal compatibility with the present norms and policies about the OT at national level. They feel that the approval at national level could be done without or with only minimal modification. This modification could be in some aspects related to methodological procedures because of the different way to understand the OT guideline.

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V Indicator: Technical feasibility

OTM P in har- Questionnaires outputs mony with the M DP The OTMP has specific action lines to improve the quality of Municipal authorities life in the municipality. The OTMP ideal model was obtained High and staff based on the MDP objectives. The OTMP are in line with the MDP based on MDP objectives Technicians and specific plans. In addition, the OTMP will be de basis for High (FCBC) the next MDP.

Both the MDP and OTMP of San Rafael have been supported by the same NGO (FCBC). This may explain the high harmony and compatibility between both plans. Nevertheless the lack of time horizon (technical element) could reduce the feasibility of the plan.

V Indicator: Financial feasibility

Capital or funding Questionnaires outputs for OTM P outputs At present the OTMP is not financially feasible. The municipal Municipal authorities income is low and can cover limited activities only. Some ac- Low and staff tivities (construction of road, social infrastructure) and plans contained in the OTMP need external funds to be achieved. The OTMP outputs give some municipal policies to be fol- Technicians lowed. The policies have some actions and plan to be done. Moderate (FCBC) These actions and plans do not consider the financial issues.

The low and moderate potential to secure capital or funding for the OTMP outputs are based mainly on two factors: 1) The small number of inhabitants is a constraint factor for the income obtained by means of municipal internal taxes. The external income by co-participation taxes are low as well and; 2) The economic and/or financial issues to achieve the OTMP policies are not explicitly considered in the document. Therefore some outputs may need some changes (impact of plan, scope reduction, etc) to secure the capital for its fulfilment.

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ADEQUACY OF METHOD . -

V Indicator: Flexibility of method

Flexibility of method Questionnaires / interviews outputs to improve data collection Municipal authorities The OT method and guidelines give some flexibility in some Moderate and staff specific aspects to collect the field data. Technicians Some flexibility is allowed in the method. Moderate (FCBC) The OT method to elaborate an OTMP is not a recipe. It gives the basis to follow the land use, and socio-economic evaluation National authorities High in the municipality. The OT method is open to adopt alternative options for better data collection.

This indicator could be shows both side of the coin: The —theoretical“ OT method to collect data supported by National authorities and the —practiced“ OT method by the people who made the OTMP. In general the method was suitable but not too much relevant in some aspects. For instance, the soil survey was not exhaustive as the methodological guides prescribe because of the territorial homogeneity in the municipality does not really need an exhaustive survey. In this specific case the financial resources were directed on others activities.

V Indicator: Ability to present spatial dimension

Ability to present Questionnaires / interviews outputs spatial dimension The maps help the mayor‘s office to summarize graphically the Municipal authorities OTMP outputs. The main activities for OT are presented on the Moderate and staff OT district map but it is not specific. The OT maps need some improvements in specific areas for further local plans. For the technicians the map scale (elaboration of 1:100000) in some districts is not appropriate to represent the number of OT Technicians outputs concentrated in small areas (e.g. San Rafael). In other Moderate (FCBC) districts the same scale are appropriate to present the OT outputs.

This indicator shows an important issue about the adequacy of method. The appropriate scale and the level of detail for OT at municipal level are moderate. On one hand some large regions of the municipality are homogeneous (at biophysical and socio-economic aspects) and do not need specific infrastructure to achieve the goals presented for this —spatial unit“. For instance, an area identified, as —Conservation forest“ for the OTMP does not need many activities and infrastructure within it. Therefore the scale and the level of detail are adequate. On the other hand the OTMP identified some populated areas (urban) and put focus on the activities and plans (specially about infrastructure) on these areas. In these cases the map scale and the level of detail are not adequate.

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COHERENCE . œ

V Indicator: Ability to present the outputs of OTMP in logical, clear and consistent terms

OTM P outputs are present in logical, Questionnaires / interviews outputs clear and consistent terms The contents are presented in a clear and logic order. The Municipal authorities OTMP document present every stage according to the OT High and staff methodological guide to formulation of OT municipal plans The OTMP has a logic development. It starts with the OT objectives for the San Rafael Municipality and ended with the Technicians activities to achieve a sustainable and better use of natural, cul- High (FCBC) tural and socio-economic resources found within the municipality.

The municipal authorities and technicians agree that the OTMP is coherent. They wanted to have logic and sequential OTMP contents to present and distribute to local stakeholders. In this sense, the coherence could be improved the follow-up and understandability of data collection and data analysis. The local stakeholders were not included in the evaluation of this indicator because they did not read the document yet.

FORMAT OF THE PLAN . œ

V Indicator: OTMP document accessible and understandable format OTM P document has an accessible Questionnaires / interviews outputs and understanding format The document is presented in one book. The objectives, methods, and outputs are clear in their corresponding chapters. The Municipal authorities document has some —new“ terminology (e.g. ideal model) but High and staff they were clarified in previous meeting and workshops with technicians. The OTMP document is clear and readable The OTMP is clear, readable and understandable for the users (Municipal technicians and staff) and external institutions Technicians (ONG). People who have some training in planning could un- High (FCBC) derstand the document. Moreover the document (specially the outputs) has a clear language to be understood among the local people.

The format of the plan is linked with the coherence of document. In this sense the high coherence scored in the previous criterion has relation with the high understandability and readability in the document. The technicians made special efforts to be clear and use simple language in the outputs in order to be easily readable and understood. The accessibility and understandability evaluated by the local stakeholders, non-professionals and/or the public were not possible because lack of knowledge about OTMP final document and its contain.

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4.4.2. The Plan as a Process

OWNERSHIP . œ

V Indicator: Local stakeholders (LSH) participation

LSH participation W orkshop/Questionnaires outputs in the planning process The local stakeholders (LSH) had the opportunity to participate in the OT process. The active participation was in the field data Local Stakeholders collection. In the informative workshops carried out during the Moderate process the LSH had some opportunities to evaluate and give some opinion on the preliminary OTMP outputs. The LSH have been involved on the OTMP process since the beginning. The OTBs and oversight committees were identified as relevant local stakeholders. They had informative meetings Municipal staff Moderate before and during the OTMP elaboration. In the meetings were considered some suggestions to improve the OT outputs as well as the OT benefits.

The local participation in the planning process was considered to be moderate. Despite of the meetings and workshops carried out in the OTMP elaboration the LSH do not understand completely what an OTMP implies. The LSH know the benefits but not how to reach them. Therefore they have some difficulties to give some opinions to contribute in the OTMP elaboration. Is necessary to make two distinctions in this indicator: 1) the local stakeholder participation is moderate because of the lack of understanding and knowledge about the planning process. 2) The opportunities to improve the OTMP outputs based on suggestion and consensus between LSH and technicians were used.

V Indicator: Local stakeholders —Own“ the OT process

LSH is —own“ of W orkshop/Questionnaires outputs the planning process They did not feel to —own“ on the OTMP process because their Local Stakeholders Moderate opinions some times were taken into account and others times not. The OT process started with a political decision more than LSH pressure to achieve a sustainable development and improve the Municipal staff quality of their life. At the moment they are interest in the possible Moderate benefits and always they are interested in the activities related with OT.

Despite of opportunities to participate in the OTMP elaboration the LSH did not feel they —own“ the OTMP. They have awareness about who are the people that will receive OTMP benefits (they themselves). However, they do not want to take the possible risks (change in the category of land use, reduce their areas for agriculture, etc.) to adopt the OTMP and to reach its benefits. According with the measure for this indicator they are located in the —moderate“ score. They participated in the plan process but still have some doubts about the eventual benefits of the OTMP.

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Overall evaluation

V The present OTMP of San Rafael has a moderate relevance in the knowledge about benefits and high relevance in the identification of problems/opportunities. V The OTMP has a high legal and technical feasibility but only moderate/low financial feasibility. V The OTMP methods have a moderate adequacy for data collection and representation of the spatial dimension. V The OTMP document has a high coherence between its objectives, elaboration stages and outputs V The format plan has a moderate understandability and readability. The local stakeholder perception was not possible to evaluate because of the lack of knowledge about the OTMP final document. V The ownership by local stakeholders was moderate. The local stakeholders feel that the involvement could have been more.

According to the selected evaluation criteria the present OTMP shows a possible good performance. However the moderate relevance and ownership identified in the local stakeholders group could reduce the importance of OTMP in the implementation stage. The moderate adequacy of method scored in this case study shows some weak points in the data collection and presentation. On one hand the high data requirements are very expensive for an OTMP, considering that the secondary data is insufficient for the diagnosis and analysis in the OTMP and a more elaborated fieldwork stage is needed. Therefore in some specific case the financial resources could be used collecting useless and irrelevant data, because of the OT methodological guidelines prescribes it. Additionally, the methodological guide does not consider the region‘s characteristics. On the other hand the generalised work scale and representation in maps could not be the most suitable.

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5. Case Study Punata Municipality

5.1. Study area selection The selection for this study area was based in 5 factors: 1) Municipality with an OTMP finished though not necessarily implemented; 2) The OTMP selected should be made by other agency/institution and Department than the previous case study (San Rafael municipality); 3) W illingness at the mayor‘s office and the technicians who made the OTMP to provide data; 4) Relatively access to the municipality, and; 5) Opportunity to carry out a workshop with the local representatives (CV and OTBs).

The second factor was introduced in order to have an opinion by other OT technicians in addition to difference in socio-economic and biophysical characteristics than previous selected case. In the selection stage the Punata municipality fulfilled the indicated factors. 1) Punata is one of the 51 municipalities with an OTMP finished (see appendix 1); 2) The —Centro de Levantamientos Aeroespaciales y aplicaciones SIG“(CLAS) was the technical entity that was responsible for the elaboration of the OTMP of Punata; 3) CLAS is an university centre specialised in geo-information and earth observation applications. The CLAS has two action lines: academic and regional planning. On the regional planning field the CLAS project has been involved in OT. As a regional development agency it was very willing to provide data in order to improve the regional planning process. The mayor‘s office was open to provide data by means of CLAS. 4) The Punata municipality is about 40 Km from Cochabamba city and is accessible by road all the year. 5) The mayor‘s office offered the available facilities to carry out the workshop.

During the fieldwork stage (Oct-Nov 2003) some social conflicts took place within the municipality that forced to cancel the workshop. Therefore, the data collection had to be made by means of individual semi-structured interviews (see appendix 2) with the local representatives (CV and five OTB representatives, one per district). In this assessment the opinion of local stakeholders was separated in that of the CV and that of the OTB because of different opinions with respect to some issues of the OTMP.

5.2. Socio-econom ic and Bio-physical Characteristics The municipality of Punata is in the Department of Cochabamba. It has 5 districts (see appendix 4) approved by Municipal decree. Punata has a population of about 26000 inhabitants. District 1 represents the urban area of municipality with 56% of inhabitants. The population density is 139 inhabitants/km2. The main economic activity is agriculture, which is carried out in the rural districts (2-5 Districts). The principal products are sweet maize and potato. Most of the agriculture production is marketed in Cochabamba city. The emigration flow is about 10%. The main reason for emigration is the lack of opportunities for people to increase the income. (CLAS, 2002)

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The Punata municipality has a temperate sub-humid climate (annual rainfall 389-571 mm/year and average temperature of 15 ºC). The valley of Cochabamba is divided in three regions: 1) High valley (about 2600 m.a.s.l.); 2) Central valley (about 2550 m.a.s.l) and; 3) Low valley (about 2500 m.a.s.l.). The Punata municipality is located in the High valley of Cochabamba. It has a flat topography. According to Navarro (2000) the municipality falls in the —Puna“ eco-region as Inter Andean valley. The vegetation cover is scarce because of the different land uses in the largest part of the municipality (Urban use, and agriculture use). The flora and fauna therefore are not representative for the eco- region. Most of the species (flora and fauna) are introduced for agriculture and cattle ranch purposes.

5.3. Punata OT Municipal Plan The OT and Boundaries Office (OTBO) of Cochabamba‘s Prefecture supported the OTMP formulation. In order to promote the OT at municipal level the prefecture of Cochabamba assigned specific funds for some pilot OTMPs of which Punata was one. The municipality of Punata was selected because it is an important development centre in the High valley region of Cochabamba and it provides social services to neighbouring municipalities. The preliminary stage (political decision, establish a team, work plan, etc) started in January of 2002. The OTMP document was presented in July/August of 2002. In October/November 2003 (the fieldwork for the present study) the OTMP was not approved yet at different levels (Municipal, Departmental and National). In this particular case the Prefecture is the first instance who evaluates the OTMP before to mayor‘s office of Punata. This is because the Prefecture supported the OTMP elaboration and they want to supervise the quality of the plan by means of specialised consultants. However the lack of payment from National government to Prefectures forced the OTBO to stop the evaluation process, because it did not have financial resources to pay the consultants. The supervision process started again in February of 2003.

The OTMP document contains two bodies: 1) The first body contains the Integral Diagnosis (Biophysical, socio-economic and political-institutional analysis; Territory‘s integral evaluation). 2) The second body contains the ideal model, the OTMP objectives and the LUP and the LAP.

According to OTMP of Punata the opportunities and limitations were identified. The table 5.1. shows the major opportunities and limitations in the municipality. Table 5.1. Opportunities and limitations identified in Punata

ASPECT OPPORTUNITIES LIM ITATIONS -External support for municipal projects - Lack of internal financial income (taxes) Institutional -Take advantage of NGO‘s projects - Lack of national government payment for co- - Coordination among the neighbouring municipalities participation taxes. - Suitable soils for agriculture - Soil degradation. Biophysical - Suitable soils for fruit culture - Lack of water (quantity) for irrigation. - Suitable land for pastoral uses Economic / - There is a road network for marketing the agriculture - Lack of wholesale food market in the municipality production - Lack of irrigation productive - Irrigation infrastructure - Access the public transport from and to Cochabamba - Lack of bus station. Social city - Lack of medical equipment in the hospital - Hospital of Punata

To the OTMP document formulates what the ideal model for the municipality is: —To led Punata become the development source of the High valley by means of: 1) strengthening the industrial and

64 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA farming production system; 2) Getting balance between urban growth and providing citizens with basic supplies (potable water, power, sewerage, garbage collection, etc)“. The OTMP document also formulates specific ideal models for each district. According to CLAS (2002) the OTMP elaboration and formulation are based on national planning objectives (sustainable development) and the objectives in the MDP of Punata. In order to reach the OTMP objectives that document presents some strategies and actions. These strategies and actions have been incorporated in new municipal policies comprised in the land use plan (LUP) and the land allocation plan (LAP).

To reach this ideal model the following objectives were designed: a) To increase the family income by means of improvement the yield production. b) To promote the sustainable development in order to preserve the environment. c) To promote the appropriate land use in concordance with the land use suitability. d) To provide with facilities to productive sectors (agriculture, stockbreeding, handicraft business, Industry) in order to optimise the land allocation. e) To strengthen the municipal technical cooperation in order to improve the productive conditions (specially farming) in rural areas. f) To support the organisation of civil society in order to improve the sustainable use of the natural resources.

The LUP and the LAP support the objectives by means of land use policies and recommendations. The land use policies (intervention rules land use rules and recommended land use) are addressed to achieve a sustainable management and use of natural resources. The LUP identified 4 main categories and 8 sub-categories of land use based on the agro-ecological zones (see also figure 5.1). In addition the LUP comprises a scored recommended land use for alternative activities (see table 5.1).

Table 5.2. Land use category and sub-categories in the LUP of Punata

Activities e e d e r d

r e r e u g e u t e u

r t n t c s r l i l b u p b u d u k r c o k e

c t c i i r s c e

s n n r o r c r o p t a

o o g t g m i t i s b o Category r s a

t t s a f

n k i

a a c e n e c h r d t

v d

v I v c l i e s o n m u

e i g r t t s r s e a f a o s n e i s n - a r a t n

u i s r n a - e g e n o m

e n i n n i t w u s f b o r i t g g r o n a r e e c x o o e n r

Subcategories n n C E M R I A E i I i R R L U T P

- Intensive agricul-

m · · ‡ · · ‡ ‡ ‡ ‡ ‚ ‚ ‡ · ‚ r ture a f

g e Farming Use v n · · ‡ · ‡ ‡ · ‡ ‡ ‚ ‚ ‡ · ‚ i · · ‡ · ‡ ‡ · ‡ ‡ ‚ ‚ ‡ · ‚ i s n e t Fruit farming use · · · · · ‡ · ‡ ‡ ‚ ‚ ‡ · ‚ n I

d m Agro-sylvopastoral s e e e t x

s · ‡ · ‡ · · ‡ ‡ ‡ ‚ ‡ ‡ · ‚ i s u y M S

e Restricted agro- s ‚ ‚ ‡ ‚ ‡ ‡ ‡ ‡ ‡ ‡ · ‡ · ‡ u

sylvopastoral use e v i

t Restricted pastoral

c ‚ ‚ ‚ ‚ ‡ · ‡ · ‡ ‡ · ‡ · ‚ i

r use t s e Restricted use ‚ ‚ ‚ ‚ ‚ ‚ ‚ · · ‚ · · · ‚

r s e Urban use e h

s ‚ ‚ ‚ ‚ ‚ ‚ ‚ ‡ · ‚ ‚ ‡ ‡ · t ‚ ‚ ‚ ‚ ‚ ‚ ‚ ‡ · ‚ ‚ ‡ ‡ · u O

· Recommended use ‡ Use with restrictions ‚ Not recommended use

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LAND USE PLAN

REFERENCES

Fruit Farming use Agro-sylvopastoral use Restricted agro-sylvopastoral use Farming use Intensive agriculture Restricted pastoral use Restricted use Urban Use Mining Municipal boundary Recovery area Tourism area Landscape-tourism area

OT M UNICIPAL PLAN OF PUNATA

Source: CLAS, 2002

Figure 5.1. LUP map of Punata municipality

For all these sub-categories, intervention rules and recommendations for use have been defined for each municipal district. These recommendations are addressed in the observance of the municipal law for specific uses (e.g. grazing managements, efficient use of water for irrigation). The LUP found possible projects for each District and gives execution priorities to them (e.g. infrastructure to improve the water quality and quantity for irrigation systems).

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The land allocation plan is focused on general and sectoral policies. The general policies are addressed: a) to strengthen the populated centres by means of harmonic economic development between rural and urban areas; b) To improve the road network in order to integrate the municipal territory; c) To address the municipal investment towards secondary populated centres in order to improve the social services, agricultural production and marketing systems; d) To foster the use of selection, processing and storage in agricultural systems in order to improve the crops performance and; e) To obtain a balance between the social demands and the institutional supply to provide basic and social services.

The sectoral policies are addressed to: a) Education; b) Health; c) W ater supply; d) Institutional organization; e) Transport issues and road accessibility; f) W holesale food market; g) Land tenure and; h) Tourism. The LAP comprises activities and recommendation for each policy. Policies are explained for each District in addition and concordance with the LUP. The LAP map (see figure 5.2.) presented in the OTMP document shows urban and rural areas allocated in the municipal

The possible benefits identified in the OTMP were: ∑ Covering the irrigation channels ∑ TrainiNg for irrigation water management ∑ Irrigation infrastructure ∑ Soils recovery for agriculture ∑ Increase the water quality and quantity by means of specific irrigation projects.

An overview The OTMP document of Punata comprises policies, rules and recommendations in its text, but all the identified projects and possible changes envisaged do not include a time horizon. The document shows a weak graphic representation because they do not really show what the OTMP comprises. The LAP map shows the distribution of the actual settlements but it is not comprises proposal areas for possible urban expansion. In addition the LAP map is just population density map and it does not shows relation whit the comprised in the LAP document. Is evident the lack of spatial relation between the LUP map and LAP map in this particular case.

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LAND ALLOCATION PLAN

Rural Area 1 Rural Area 2 Consolidated Urban Area Rural-Urban Area Tertiary roads Primary roads Secondary roads 500-999 inhabitants <500 inhabitants Primary centre Secondary centre Municipal boundary

OT M UNICIPAL PLAN OF PUNATA

Source: CLAS, 2002

Figure 5.2. LAP map of Punata municipality

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5.4. Assessm ent of the OTMP of Punata Municipality

5.4.1. The Plan as a Product

RELEVANCE. œ

V Indicator: Knowledge about benefits of OTMP

Knowledge about Interviews/Questionnaires outputs OTM P benefits The OTBs know the possible environmental and socio- economic benefits such as: efficient distribution and more quan- Local Stakeholders tity of water for irrigation; improvement of social services cov- High (OTBs) erage (roads, health and education centres). They have awareness about the possible activities to achieve the benefits (e.g. land use changes, prohibited and restrictive uses, etc). The Comite de vigilancia (CV) knows the OT general Local Stakeholders benefits such as sustainable development and better dis- Low (Comite de vigilancia) tribution of municipal funds. They do not know the benefits identified in the OTMP of Punata. They know some benefits of OTMP such as: recognition Municipal authorities of the specific land use conflicts in the municipality and Moderate their possible resolution They know the benefits of OTMP. However they have Municipal staff some doubts about the means to achieve the benefits im- High plicitly comprised in the OTMP They know and agree with the identified benefits of Prefecture consultants High OTMP.

The OTBs had a permanent feed back on the OTMP elaboration process. In this sense the awareness among the OTBs is relatively high. The low knowledge about the OTMP benefits by CV is because they did not read the OTMP document yet. The CV has a new directory and the OTMP was neither discussed nor tackled. The municipal authorities have a moderate level of knowledge on the OTMP benefits because they left the planning process to the municipal technical staff. The municipal authorities receive the technical reports in order to keep them informed in the OTMP progress. The technical staff has a high knowledge about the OT benefits because they had worked and take part of each stage in the plan elaboration.

There are three different points of view in this criterion. Taking in account the OTBs and the prefecture/municipal staff the relevance of OTMP is high. But on the other hand the municipal authorities and CV give less value to OTMP relevance. This section should identify the lack of continuity in policies and/or action lines within a key stakeholder group. In this case the local stakeholders groups (e.g. Comitte de Vigilancia) could have their own and different interest in the planning process or simply they are not interested in this issue at all.

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V Indicator: Identification of problems /opportunities in the municipality

Identification of Interviews/Questionnaires outputs problems and/or opportunities In the course of OTMP elaboration there were workshops in order to identify the problems/opportunities in each district. The Local Stakeholders stakeholders (OTB‘s) presented their perception about problems High (OTBs) in the municipality. They agree with the problems and opportunities identified in the plan elaboration stage. They do not know yet the problems and opportunities identified Local Stakeholders in the OT process. They did not evaluate the OTMP presented ----- (Comite de Vigilancia) by CLAS to the municipality. They agree that the OTMP has identified the socio-economic Municipal authorities and environmental problems as well as their opportunities High and staff within the municipality They agree with the problems/opportunities identified in the Prefecture Consultants High OTMP. The technicians agree with the problems and opportunities iden- Technicians tified in the OTMP. However they mentioned that some specific High (CLAS) problems/opportunities could be identified but not mapped. This sort of information could be lost in words within the text.

This indicator shows again the discrepancy between the —new“ CV and the others stakeholders opinion and perception. The identification of opportunities and problems has a high value of agreement among the municipal authorities, prefecture consultants, technicians (CLAS) and the OTBs. However the people of new directory did not know the problems and opportunities identified in the OT process. It was not possible to obtain a satisfactory answer or reason from the CV, where they were in the OTMP elaboration stage and/or why they did not participate in the OTMP elaboration.

There are common issues in the two indicators for relevance criterion: a) a high agreement of knowledge about the benefits and problems/opportunities identified in the OTMP and; b) A lack of knowledge around the OTMP by the CV. According to technicians of CLAS the former CV had knowledge about the OTMP process and its outputs. Therefore the lack of continuity in the policies and line action within the same stakeholder group (CV) could be a constraint factor in the OTMP implementation.

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FEASIBILITY. -

V Indicator: Legal feasibility V Compatibility with Questionnaires outputs regulatory / approval requirements Municipal authorities They are convinced of the legal compatibility between the High and staff OTMP and the existing regulatory requirements. According to the legal norms at national level the OTMP has a Prefecture consultants High high compatibility with legal requirements. The elaboration of OTMP was carried out taking in account the Technicians main norms and acts concerned to planning in general and OT High (CLAS) in particular

The technicians, prefecture consultants, municipal staff and authorities of Punata municipality know about the OTMP legal compatibility with the present national norms and the municipal polities. At national level it is in concordance with the national planning system (SISPLAN). At municipal level it is in concordance with the Municipalities act.

V Indicator: Technical feasibility

OTM P in har- Questionnaires outputs mony with the M DP The OTMP identified specific projects and plans to achieve its objectives. The projects and plans are considered in short-term Municipal authorities (1 year), medium term (5 years) and long-term (10 years). Some High and staff projects are new proposals and others plans had already been identified in the actual MDP. The OTMP is based on MDP objectives and it can be integrated Prefecture consultants High in line with the previous MDP. The OTMP is in line with the MDP and based on MDP objec- Technicians tives and specific plans. Some plans and projects are already High (CLAS) implemented or in process (especially those projects identified in the MDP).

The high concordance in the perception of technical feasibility is because the OTMP was based on the MDP objectives. Some identified projects in the OTMP were already identified in the MDP. In spite of the fact that the OTMP is not yet approved some identified projects (the same of MDP) are being carried out already by the municipality.

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V Indicator: Financial feasibility

Capital or funding Questionnaires outputs for OTM P outputs At present the OTMP is partially financially feasible. The Municipal authorities OTMP implementation needs external funds to carry out most moderate and staff of the projects and activities identified (e.g. infrastructure improvement, new secondary roads). In some cases the OTMP outputs consider huge projects or Prefecture consultant plans. These projects or plans need great financial funds and it Moderate could be difficult to be supported by mayor‘s office. The OTMP outputs give some municipal policies to be fol- Technicians lowed. These policies have some actions and plan to be done. Moderate (CLAS) These actions and plans do not consider the financial issues.

The moderate potential to secure capital or funding for OTMP outputs is based on the type of projects and external funds. The municipal incomes may cover low-cost projects (e.g. improvement of educational infrastructure, health infrastructure, etc.). The medium and high-cost projects depend on external institutions. In this sense the identified projects may need some changes (e.g. magnitude of impact, add or delete some benefits, project-time, etc.) to secure the capital for its fulfilment.

The OTMP shows a high legal and technical feasibility but is moderate in the financial feasibility. The legal and technical aspects can be in concordance with the current norms, laws and OT guidelines. But the OT guidelines do not mention how to secure capital or funding for identified OTMP projects. In this sense the financial aspect to implement the projects, activities and/or actions (outputs) could be a constraint factor in the OTMP implementation for this municipality.

ADEQUACY OF METHOD. -

V Indicator: Flexibility of method

Flexibility of method Questionnaires / interviews outputs to improve data collection Municipal authorities The OT method and guidelines give flexibility in some specific Moderate and staff aspects to collect the field data. Some flexibility is allowed in the method of data gathering. In Technicians the LUP elaboration the OT guide is not flexible. In the LAP Moderate (CLAS) the methods are more flexible. The OT method has some flexibility in the data gathering. It can Prefecture consultants Moderate allow alternatives to improve the results.

This indicator shows a moderate flexibility in the OT method. The people interviewed have some experience in field data collection and they have knowledge about the methods and procedures for OTMP elaboration. Therefore their perception could be the more realistic point of view to evaluate the flexibility of method.

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V Indicator: Ability to present spatial dimension

Ability to present Questionnaires / interviews outputs spatial dimension The maps help the mayor‘s office to summarize graphically the Municipal authorities OTMP outputs specially the LUP. The map for the LAP has to Moderate and staff be improved in order to offer more detail. For the technicians the map scale (1:50000) in some municipal Technicians areas is not appropriate to represent the relevant information Moderate (CLAS) and OTMP outputs.

According to technicians, authorities and municipal staff, the ability for OTMP to present spatial dimension is moderate with respect to representing all the OTMP outputs. The maps only represent the general aspects and OTMP outputs. Some special and small areas (with different bio-physical and socio-economic characteristic) can not be mapped properly. Although the OT guideline mentions the scale of OTMP (1:50000 or 1:100000) it does not give details for maps representation. In this sense the technicians felt that the map representation of OTMP outputs is not the optimal for all relevant information gathered. According to the technicians the level of detail for some areas should be higher in concomitance with the relevant opportunities, projects activities and/or plans defined.

The flexibility of method and the spatial dimension indicators show a moderate adequacy of method. This raises the issue of the need to improve the OT methods to elaborate OTMP. The improvement should be both in the data collection (become more efficient) and in the representation of spatial dimension (maps).

COHERENCE . œ

Indicator: Ability to present the outputs of OTMP

OTM P outputs are present in logical, Questionnaires / interviews outputs clear and consistent terms The contents are presented in a clear and logic order. The Municipal authorities OTMP document presents every stage according to the OT High and staff methodological guide to formulation of OT municipal plans The OTMP follows clear stages in its elaboration and the out- Prefecture consultants High puts are in line with the objectives. The OTMP has a logic development. It starts with the diagnosis Technicians and territorial evaluation and follows the ideal model for the High (CLAS) Punata municipality and its respective LUP and LAP.

The three groups agree that the OTMP document is coherent. A coherent plan facilitates the understanding of chronological steps used to achieve the outputs. This criterion determines the appropriate scope and coherence in the OTMP. As mentioned in previous chapter the coherence could improve the follow up and understandability of data collection and data analysis.

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FORMAT OF THE PLAN. œ

V Indicator: OTMP document accessible and understandable format OTM P document has an accessible Questionnaires / interviews outputs and understanding format The document is presented in two books. The first book is the diagnosis and territorial evaluation. This book has a brief but not clear introduction about the OT process. In addition it is a Municipal authorities little difficult to find the relation between the first and second Moderate and staff book. The LUP has a difficult format and can create some confusion. The document is not accessible yet for the public because it is not approved. The OTMP is a little bit difficult to be understood especially in Prefecture consultants the LUP. It introduces technical terms (e.g. Geomorphologic, Moderate socio-economic terms) but these are explained in the document. People who have some training in planning could understand Technicians the document. Moreover the document has a clear language to High (CLAS) be understood among the local people. But it has not been tested yet.

The format of plan criterion is related to the accessibility and understandable format. On one hand the accessibility to the plan by the public is not possible yet because of the plan is not approved. It is not a public plan until its formal approval by municipal authorities. On the other hand the understandability of the format is moderate because of some lack of relation between the two books and between chapters.

5.4.2. The Plan as a Process

OWNERSHIP. œ V Indicator: Local stakeholders (LSH) participation LSH participation W orkshop/Questionnaires outputs in the planning process The local stakeholders (LSH) had the opportunity to participate in the OT process. The active participation was in the field data collection. In the informative workshops carried out during the Local Stakeholders process the LSH had significant opportunities to evaluate and High (OTBs) give opinion on the preliminary OTMP outputs. They identified some possible projects and actions to be carried out in their districts The LSH have been involved on the OTMP process since the beginning. The OTBs and CV were identified as relevant local stakeholders. They had informative meetings before and during Municipal staff High the OTMP elaboration. In these meetings all their suggestions to improve the OT outputs as well as the OT benefits were considered and discussed and also adopted.

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In this indicator the opinion/perception of prefecture consultants was excluded as well as that of the CV. In the first case because of they did not participate in the OTMP elaboration process. In the second case because they are new as representative local stakeholders. The high level of LSH participation in the OTMP elaboration could be due to continued aid in the region by NGOs. These NGOs create a positive attitude among local stakeholders to provide data and participate in the planning process. However, the fact that some local stakeholders were omitted might lead to a low score for this indicator.

V Indicator: Local stakeholders —Own“ the OT process

LSH is —own“ of W orkshop/Questionnaires outputs the planning process They felt —ownership“ of the OTMP process because their opinions were taken into account. However nowadays they do not Local Stakeholders feel to —own“ on the OTMP. The lost of interest is because of Moderate (OTBs) the long time that passed since the data collection and information workshops The OT process started with a political decision more than LSH pressure to achieve a sustainable development and improve the Municipal staff Moderate quality of their life. At the moment the LSH their interest has decreased because of the long time past until now.

This indicator is difficult to —measure“ because the sense of —ownership“ gradually has gone among the LSH. The lack of prompt approval could produce the decrease of interest in the OTMP. The LSH can not wait for an OTMP implementation to solve their problems. The LSH need quick resolutions for their individual problems and force the mayor‘s office to address some resources to short-time activities and projects.

The ownership as criterion in this specific process was high both in the participation as in the —own“ of the OTMP elaboration. This high value could be a strength factor in the implementation process. The LSH could help in the successful achievement of OTMP objectives by their active participation in the implementation process. However, only a limited number of LSH were consulted on these issues. Additionally, the slow process of approval by external entities (in this case the prefecture of Cochabamba) has decreased the interest among the LSH about the OTMP and its implementation.

Overall evaluation

V The present OTMP of Punata has a high relevance identified among its stakeholders. V The OTMP has a high legal and technical feasibility but only a moderate financial feasibility. V The OTMP methods have a moderate adequacy for data collection and representation of the spatial dimension. However the methods could be improved to give more alternatives and flexibility in data collection. V The OTMP document has a high coherence between its objectives, elaboration stages and outputs.

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V The format of the plan has a moderate understandability and readability. The access to the public is not possible because of its non-approved status. V The ownership by local stakeholders was high. However this potential to give success in the implementation process could be lost because of the slow approval process.

According to the selected evaluation criteria the present OTMP shows strength in its participative planning process. The high relevance reached by means of knowledge about OTMP benefits and the agreement in the identified problems and opportunities could be used by municipal authorities (if whether they are interested in the implementation) to push the Departmental authorities (prefecture) to quick approval. Nowadays the mayor‘s office as much as the local stakeholder groups are gradually loosing their interest in the OTMP. As mentioned before, the prefecture as financial support wants to be the first instance to check the quality of the OTMP. However their lack of ability to secure the capital or funding for the evaluation of the OTMP document causes a slow approval progress.

Finally the format of the plan (the understandability and readability) has to be improved in order to have a clear and linked document in itself. The necessity to improve and be flexible about the OT methods as well as the spatial dimension could help the data gathering and its representation in maps form.

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6. Com paring the case studies

This chapter tries to summarize most salient issues arising from the results described in the preceding chapters. The comparison opens with a discussion of the possible benefits identified in the OTMP and its relevance in the municipal context. After this, the OTMP process differences and similarities between the San Rafael and Punata municipalities are explained. The usefulness of the evaluation criteria in this OTMP and its possible application for further OTMP evaluation will be assessed and discussed. Finally the factors explaining the slow progress made so far in OT at municipal level as found through the present study will be listed.

6.1. The OT benefits and relevance The OT perception as it emerged from the two case studies could be used to clarify what the OT actually means and implies. This section tries to identify the OT concept in terms of its relevance and attributed to the OTMP process in the two municipalities studied.

The OT general benefits for both San Rafael and Punata are phrased in the context of their respective objectives. Although both municipalities have a huge difference in their bio-physical and socio- economic characteristics the general objectives are the same. The objectives mention the improvement of quality of life in a sustainable way according to the municipal potentialities and limitations. The explicit benefits of OTMP for each municipality are the specific projects and/or activities identified in the OTMP. In both plans two clear action lines can be identified:

1) To increase the farming productivity by means of the improvement of irrigation infrastructure, agriculture support programs (marketing and financially). The possible projects and action are based on the suitability of the land for certain land uses as identified in the LUP.

2) To provide the basic social services (health, education, road network) by means of specific identified projects and activities for social infrastructure (improvement of hospitals, suggestion about the specific institutions for financial support, etc). In order to identify the better locations to provide or improve the basic services the OTMP bases its criteria in line with Christaller‘s central place systems.

This study found that the OT has implicitly adopted a demand-driven approach. According to Bacic (2003) in a demand-driven approach the real needs of, and options open to, decision-makers are identified before any evaluation project is undertaken. Similarly the OT identifies in principle the real stakeholders‘ needs before proposing the possible policies and projects.

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Finally the real meant of OT could be obtained based on the theoretical concept (Chapters 2 and 3) and the practice (Chapters 4 and 5). The OT is a regional planning tool aiming at sustainable development of a specific area. The OT addresses the sustainable development by means of

1) Land Use Plan (LUP): The plan tries to find the harmonic and suitable land use based on the bio-physical and socio-economic opportunities. This implies an integrated comparison between the present land use categories and the potential land use categories. According to OT legal norms these potential land use categories will have a normative and restrictive character. In case of conflicts between the present land use and the potential land use, the LUP proposes specific policies and projects to promote the most suitable use.

2) Land Allocation Plan: This plan is related to the LUP and has an advisory character. It identifies population centres by their distribution and their importance (social, economic, cultural, surrounded land use potential and the ability to provide some basic services to other centres). The LAP gives proposal for policies at municipal level (in socio-economic issues) and recommendations to achieve these action lines.

6.2. The OT assessm ent for the two case studies The results of chapter four and five are summarised in order to provide a framework for comparing both cases. Table 6.1 shows the evaluation criteria and their qualitative value assigned in this research.

Table 6.1. Comparison of two study cases.

OT M UNICIPAL PLAN CRITERION SAN RAFAEL PUNATA

RELEVANCE M oderate/High High

Legally High High

FEASIBILITY Technically High High

Financially Low/M oderate M oderate

ADEQUACY OF METHOD M oderate M oderate

COHERENCE High High

FORMAT OF PLAN High M oderate OW NERSHIP M oderate High

The table 6.1 shows a high relevance of OTMP in both municipalities. The sustainable development awareness among the stakeholders could be an important implicit issue as well. As a consequence of the —Rio“ summit in 1992 the Bolivian government took as public policy the sustainable development. The ministry of sustainable development, the environmental act, the forest act, municipalities act, the

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OT, are some concrete instruments to carry out the sustainable development in the country. Therefore the existing awareness for a sustainable development in Bolivia has increased the relevance of the OTMP in these municipalities. However, as not all stakeholders were consulted or because some stakeholders did not know the contents of the OTMP, this final provisional score in this criterion could change its values.

The legal and technical feasibility are high in both OT municipal plans. It is explained because of the OTMP objectives are based on the existing MDP. However, some questions might be raised on the legal feasibility to implement elements of the LUP, particularly where land use conversions are foreseen.

The financial feasibility is low and moderate for the two municipalities. The OT guidelines do not mention anything about how to secure capital or funding for OTMP outputs. This could put the success of OT as a plan into risk. Firstly, the OT benefits are based on whether the benefits can be materialised, and secondly the lack of financial support could delay the projects and activities in the time horizon.

The adequacy of method in general could be considered as moderate. In both cases the technicians and the municipality staff explained that sometimes the secondary information collected did not have the quality required by the OT methodological framework. The OT methodological framework does not mention or give some alternatives to fulfil all relevant data gaps (e.g. climatologic data, information about the soils, some socio-economic indicators). This is the main critical factor in the data requirement. Furthermore the adequacy of the scale of the plans at municipal level is too low for population centres and/or small-sized municipalities. In both municipalities the technicians suggest a higher level of detail (1:20000 or 1:10000) in population centres and small municipalities.

The coherence of the document in both plans is high. According to the indicator selected the OT documents are presented in a logic order. The outputs are in line and sequential order with the inputs. Projects originate from an analysis of the suitability of the land and the recommended land uses. In concordance with the methodological guide the document shows all the main steps and stage in the OTMP formulation.

The suitability of the format of the plan scores high in the San Rafael case and moderate in the Punata case. In San Rafael municipality the OTMP document is presented in one book. The document has a simple terminology, is clear and easy to understand. There is a document in the mayor‘s office, and in the office of the FCBC which are accessible for the public. In Punata municipality the OTMP document is presented in two books. The first book shows the diagnosis and the territorial evaluation. The second book shows the ideal model, the LUP and the LAP. The moderate value for this criterion is based on several remarks made by the prefecture technicians suggesting to improve elements in the format of the plan (e.g. to include or delete figures, tables, maps, change some terminology). Only the OT prefecture office and CLAS have the document. The accessibility therefore is low to moderate for the general public.

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The ownership of the plan was valued as moderate in San Rafael and high in Punata. However the method followed to collect the data for this criterion was different. In San Rafael a workshop was held with the local stakeholders (OTBs and the CV). The data obtained in the workshop could be considered more reliable than data obtained by means of interviews. In a workshop it is possible to discuss among all participants and extract both the group and individual perceptions. In addition not all representative local stakeholders were consulted in Punata. Therefore the —high“ value obtained in Punata municipality on the ownership aspect might overvalue this element.

An overall evaluation

The biophysical and socio-economic differences between both San Rafael and Punata municipalities and their concomitant OTMP outcomes make it difficult to evaluate whether one plan is better than the other. Both plans follow the same guidelines applied in their respective territories. W e could mention that the evaluated OT municipal plans (San Rafael and Punata) point out the possible good performance both as a product as well as a process.

Nevertheless the present study identified some common issues that could be improved in the plan. One common issue to be improved and related with LUP and LAP is the urban growth area. In both plans do not mention a category for a possible land urban expansion.

Another common issue arises with the prospective vision. A clear time horizon is missing in both plans. According to the OT guidelines (MDSP, 2001) the OTMPs are designed for 10 years. In this sense the prospective vision for long-term objectives is weak becaused of the lack of a chronological time horizon in the plan. Also Gabiña (1998) and Massiris (2001) comments on the poor prospective vision in the OT field. In addition Massiris (2002) mentions that is necessary to consider that only stating long-term objectives will not be sufficient, these should become an effective guide for present actions. This implies the continuity of plans in time.

6.3. Usefulness of the evaluation criteria It is necessary to keep in mind that this study is an initial attempt to select the criteria for the purpose of the evaluation the OT municipal plans in Bolivia. In addition, the focus of the evaluation criteria is on the plan itself and its formulation. As stated by Baer (1997) many subjects are involved in the planning process. In addition, Seasons (2003) mentions that evaluation is meant to enhance municipal planning activities. However, there are significant obstacles that must be addressed for evaluation criteria to be implemented effectively. As mentioned Chapter 3; efforts were addressed to find a set of operational criteria. After the criteria selection and the evaluation of the OTMP in San Rafael and Punata we can —assess“ the usefulness of these criteria. The assessment is based on the strengths and weaknesses found for each criterion when they were used in the OTMP evaluation.

Table 6.2 summarise the strengths and weaknesses found in the criteria after the evaluation process.

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Table 6.2 Usefulness of evaluation criteria

CRITERION STRENGTHS W EAKNESSESS Usefulness - Give an overall glance for the stake- - Qualitative measurement holders‘ awareness in the OT field. - Identify the stakeholders‘ knowledge HIGH Relevance about the OT. - Identify whether or not the stakeholders wanted the OTMP Legally - Good indicator to predict whether the - Evaluation of social feasibility be- OTMP can be successfully implemented cause lack of knowledge about the Technically OTMP outputs. Feasibility - Have a good detail to evaluate the plan - Measures based only on technicians HIGH and municipality staff. Financially -Some measures could be very subjective - It helps to find some critical factors with - Very general Indicators. respect to collection data required. - The criterion needs more indicators to Adequacy of method MODERATE - The suggestions of technicians should determine in a better way the critical contribute to better data collection factors for data requirement - Determine the document‘s consistency. - The indicator only based on logical Coherence -Verify the logical sequence carried out in sequence between the OT guidelines LOW the OT Process. and the OTMP document. - It shows the readability of the plans to - Lack of knowledge about the OTMP avoid wrong interpretations. document by local people and common Format of Plan LOW citizen do not allow a good performance for this criterion - Could assess the participatory planning - Interviews to evaluate this criterion character in OT could not present a good measure Ownership HIGH - The information obtained by workshop is reliable.

Summarising the table, the criteria selected to evaluate the OTMP in San Rafael and Punata had sufficient strengths. Nevertheless the weakness found in the criteria was in the moment of evaluation. A general weakness identified in most of the criteria was the means of measure and the quantity of indicators for each criterion. The usefulness of each criterion was determined based on the quantity, quality and the confidence in the information obtained in the criteria. Summarising, three criteria had high usefulness, one criterion was of moderate usefulness and two criteria were of low usefulness. The low usefulness for coherence and format of plan criteria was because the lack of knowledge about the OTMP in that moment. This does not mean that the criteria are not useful in other OTMP evaluations.

In the evaluation process some helpful criteria were identified that could be used to improve the assessment in further OTMP evaluations. Firstly the social feasibility criterion has to be identified as important factor to be evaluated. Secondly it is necessary to define more specific indicators to evaluate the critical factor in data requirement. These specific indicators should be addressed in biological data collection, physical (soils) data collection, AEZ approach, secondary information availability, data processing, data modelling, GIS approach, etc.

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6.4. Factors behind the OT Through this study several factors related to OT at municipal level and its slow progress were mentioned as results of the interviews, questionnaires and a workshop carried out in the fieldwork stage. In this section all these relevant issues are put on the table to discuss what they imply in the OT process at municipal level.

Table 6.3 states all possible constraint factors found in this study. In the previous stage (chapter 2) the study started with three previous factors. These factors were mentioned interviews at governmental level. After that (in chapter 3) were found three other relevant issues and finally (chapters 4 and 5) the evaluation criteria helped to find three additional factors.

Table 6.3. Factors Behind OT Found in this research

Source Factors Group National Authorities - Lack of OT law approved by national government level 1 - Boundary disputes among municipalities 2 interviewed - Lack of a good distribution information and awareness about OT 2 Municipalities without - Low incomes of municipalities do not allow to carry out an OTMP 3 OTMP by itself Municipalities with - The —theoretical“ OT objectives are not clear 2 - The municipalities in OTMP progress have a weak idea about the OTMP in process 2 possible benefits in their municipalities - Lack of financial feasibility for identified projects in the OTMP. 3 - Lack of continuity in the policies and line action within the same Municipalities with 4 stakeholder group OTMP - High requirements for data in the elaboration of the plan 3 - Lack of time horizon in the OTMP document 3

These ten factors could be grouped in four main issues:

1) Legal issue: There is a need to complete the OT normative framework with the OT law approval. This law will strengthen and coordinate the present institutional framework at departmental and national level. The OTMP approval will be very difficult at national level because the national authorities will not make any step for formal approval without a solid legal support.

2) Relevance (Media issue): The lack of a good distribution of information addressed to population about OT could allow a wrong interpretation of OT. For instance, Vinto municipality believes that they can-not engage in the OT field without a resolution of its boundary conflicts. In other way, without good and clear information about OT there will remain a lack of knowledge about the OT objectives and its possible benefits. In this sense the relevance of OT could be affected.

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3) Financial issue: The funds and capital to support both the OTMP elaboration as well as the OTMP implementation could be the most important issue and constraint factor for the OT progress at municipal level. The lack of a time horizon identified in the assessment of both municipal plans reinforces this statement. The San Rafael and Punata OT municipal plans were not supported financially by the municipalities themselves. At least the Mayor of San Rafael municipality recognized that his Town Hall is not in the financial condition to implement the OTMP. Maybe most of the projects and activities do not have a time horizon because the financial support is not assured.

4) Continuity in the line actions: This issue could be another important constraint factor in the OT progress at municipal level. It refers to the continuity of present (short-term objectives) or future action (mid-term and long-term objectives) within the same stakeholder group. Massiris (2002) states that the continuance of plans in time is seriously limited due to the absence of a political-administrative culture that value long-term objectives. For instance, the lack of continuity in the policies of the prefecture with the consequent delay in the evaluation the OTMP of Punata could decrease de relevance and feelings of ownership on the OTMP. Another example about the lack of continuity in the line actions found in this study was the lack of knowledge by the Punata‘s CV of the OTMP.

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7. Conclusions and Recom m endations

The conclusions of this study will be presented in the light of the research objectives, followed by some recommendations for the improvement of OT municipal plans and further research. It begins with a reminder of the objectives of the research.

7.1. Conclusions The findings and analysis from this study support the following conclusions relating to the research objectives and the assessment framework.

Objective 1

—To describe the general structure of the OT at the Municipal level in Bolivia“

From the discussion in Chapter 2 and 3 the general structure of the OT in Bolivia, its elements and the logical framework approach in the OT municipal plans it became clear that: The —Ordenamiento Territorial“ (OT) is meant to be a process of organizing land use and land infrastructure allocation based on the territory‘s biophysical, socio-economic, cultural and political-institutional characteristics. It was introduced in the development-planning context in order to fulfil the lack of spatial planning and strengthen the sustainable development policy in Bolivia. The Environmental Act (issued in 1992) makes the first explicit reference about OT. However, the OT has been formalised in the Public Participation Act (1994) as a guideline for the real estate cadastre. Later the Municipalities Act (1999) undertakes OT as an instrument to enforce the participative planning (as stated in the Public Participation Act) and sustainable development in the municipalities (as mentioned in the Environmental Act). But nowadays the OT law is still a proposal awaiting its formal approval by low chamber in the National government.

The institutional framework is based on three administrative levels: National, Departmental and Municipal. The OT is based on 5 principles: Integration, Concurrence, Subsidiarity, Participation and Precaution. In order to carry out the process of OT there are operational and normative instruments. The operational instruments include political guidelines for OT, the OT National Information System and methodological guidelines for the preparation of OT municipal plans (OTMP). The normative instruments include OT plans at National, Departmental and Municipal Levels.

The elaboration of OT plans at the municipal level should follow four phases: 1) The basis for the OTMP formulation. It implies the political decision, the conformation of an interdisciplinary team and the dissemination and awareness-raising for OT within social and institutional stakeholders. 2) The Integral diagnosis. It should imply the information gathering (biophysical, socio-economic and

84 ASSESSING —ORDENAMIENTO TERRITORIAL“ AT MUNICIPAL LEVEL IN BOLIVIA CASE STUDIES: SAN RAFAEL AND PUNATA political-institutional characteristics) its analysis and the integral evaluation in order to identify on municipal territory the constraint factors, potentialities, land use conflicts, agro-ecological zones, socio-economic zones and territory analysis units on municipal territory. Most of these activities follow a participatory approach. 3) The OTMP proposal. It should include the formulation of a long- term prospective vision (ideal model), the objectives and policies. The policies will be based on the Land Use Plan (LUP) and the Land Allocation Plan (LAP). The LUP is meant to constitute the suitable scenario for the land management according on the biophysical and socio-economic opportunities. The Land Allocation Plan is meant to be an advisory instrument for the suitable socio- economic infrastructure allocation. 4) The proposal implementation. This stage should include socio- political commitment agreements and regional and national approval.

Objective 2:

—To develop criteria for evaluation of OT process“

Because the implementation of the OTMPs has not started yet the impact of the plan could not be evaluated in either of the case studies. The focus of the evaluation criteria therefore was on the plan itself as well as its formulation process.

Six evaluation criteria were identified: 1) Relevance; 2) Feasibility (legal, technical and financial); 3) Adequacy of method; 4) Coherence; 5) Format of plan; and 6) Ownership. For each criterion indicator(s) have been identified, but for qualitative measurement only (table 3.4).

The assessment of the usefulness of evaluation criteria gives a high score for the criteria relevance, feasibility and ownership. The criterion adequacy of method had a moderate score and the criteria coherence and format of plan obtained low scores in this study. However, some reservation could be made with these results, since criteria as adequacy of method or format of plan could increase their usefulness with more specific indicators to be measured.

Objective 3:

—To examine and evaluate the OT process in terms of the criteria selected“

Most of the indicators assessed in both San Rafael and Punata‘s OT municipal plans scored —high“ and —moderate“ values. The —high“ and —moderate“ values are pointing out the possible good performance of the OTMP as a product and as a process. However, as not all stakeholders could be consulted and because some stakeholders were not familiar with the contents of the OTMP, the final scores for both municipalities could be lower. Moreover, the absence of a category or sub-category in the LUP for urban expansion and the lack of a time horizon in both OTMP could be negative or limiting factors when it comes to OTMP implementation.

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Objective 4:

—To identify, describe and analyse the critical factors in the OT Municipal Plan process“

10 constraint factors for the OTMP process were identified and grouped in four main issues: 1) legal issue: It is related to the lack of OT law approval at the national government level; 2) Relevance (Media issues): related to a weak distribution of information and awareness-raising about OT. A lack of clear information and knowledge about the OT benefits and OT objectives could cause a low OT performance and create confusion with other issues like the municipal boundary conflicts; 3) Financial issues: The funds and capital to support both, OTMP elaboration and OTMP implementation are probably the most important issue and constraint factor for the OT progress at the municipal level. Affecting this issue are the specific data requirements by the OT methodological framework and its high cost because of inexisting or disperse secondary information; 4) Continuity in the line actions: a weak political-administrative culture that does not value long-term objectives in the same stakeholder group could stop or slowdown a participative planning process.

Overall Conclusion

Although OT seems to be a good concept to address the spatial as well as the participative aspects in the planning process in Bolivia, the limited awareness of the possible benefits among municipal authorities and the lack of financial resources turn out to be major bottlenecks for the formulation as well as the implementation of the OT plans at municipal level.

7.2. Recom m endations

7.2.1. Recom m endations for OTMP im provem ent To address the constraint factors found in the OTMP, this study raises the following recommendations:

∑ To create a commission that is exclusively in charge to promote the OT law proposal in the Low Chamber. The law should encourage the institutionalisation of or within the national and departmental levels.

∑ Strengthen and create awareness among the society about the necessity of territorial or spatially explicit planning (particularly OT). W ithout long-term objectives is difficult to achieve a sustainable development. To create a political-administrative and sectoral culture based on local representation about the value of long-term objectives in order to ensure the continuity of the line actions in the on going processes (in this case the OT field).

∑ More attention should be paid to the format in which OT plans are presented. OT plans are often relatively scientific documents rather than documents that are understandable and transparent to the general public. One option could be the preparation of a summarized didactic version of the Plan available in understandable language.

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∑ To encourage funding and capital support from NGOs and international institutions for both OTMP elaboration and its implementation by means of favourable policies for investment in economic and human resources in the OT field.

∑ To review and improvement the OT methodological guidelines in order to make it more flexible without missing the expected level of detail of the plan. Address this review with focus on the potential and usefulness of GIS related activities (e.g. participatory GIS) to strengthen the information collection phase and public consensus in the implementation phase of the OTMP.

∑ Review the high data requirements in the light of the envisaged outputs. An impression exists that sometimes too much detail is demanded from the official OT methods in relation to the benefits expected from the OT plans. Many OT planning exercises are very costly, due to the large amount of primary data that is requested to be included.

∑ Establish and guarantee permanent technical and financial capacity in the prefectures and OT offices at the national level in order to ensure a continuous process in the OTMP implementation stages

7.2.2. Recom m endations for further research A number of research issues have emerged that might help to improve both the OT as a process as well as a product:

∑ Further research in the development of more specific indicators to assess the methodological adequacy in terms of data requirements, data gathering and data representation in maps.

∑ Develop a collaborative spatial decision support system addressed to help and improve the consensus stage previous to the OTMP implementation

∑ Further research in the assessment of the social feasibility of the OTMP by indicators fitting into the participatory spatial planning.

∑ Identify a monitoring system before and after OTMP implementation (ex ante and ex post) in order to identify weaknesses in the OT process and try to improve them.

∑ Further research addressed to good governance and local empowerment in the OTMP process.

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REFERENCES

- Alexander, E.R. and A. Faludi. 1998. Planning and Plan Implementation: Notes on Evaluation Criteria. University of Amsterdam. Amsterdam, 26p. - Bacic, I. 2003. Demand-Driven Land Evaluation: with case studies in Santa Catarina-Brazil. PhD, ITC, Enschede. - Baer, W . 1997. General Plan Evaluation Criteria: an approach to making better plans. APA Journal, 63 (3): 329-343. - Bosshard, A. 2000. A methodology and terminology of sustainability assessment and its perspectives for rural planning. Agriculture, Ecosystems & Environment, 77(1-2): 29-41 - Brewer-Carias. 1984. An approach to the physical space planning and human necessities.Barcelona. - Bruton, M.J. 1984. Introduction: general planning and physical planning. In Bruton (ed.), The spirit and purpose of planning. London, pp 7-30. - Bustamante, I. 2001. El Proceso de Planificación en Bolivia. UMSS, Cochabamba. - CEMAT. 1993. Carta Europea de Ordenación del Territorio, Conferencia de Ministros Responsa- bles de Politica Regional y Ordenación del Territorio. Consejo de Europa. - CLAS. 2002. Plan Municipal de Ordenamiento Territorial de Punata, Cochabamba. - CRC. 1997. Ley de desarrollo Territorial. Congreso de la Republica de Colombia. Bogota. - DFID. 2002. Stakeholder participation & Analysis. Department for International Development So- cial Development Division, London. - Dopheide, E. 2002. Taller Ordenamiento Territorial (report-unpublished). Enschede - European Aid. 2001. Methodological tools. [on-line]. Available by http://europa.eu.int/comm./europeaid/evaluation/methods/index.htm - FAO. 1993. Guidelines for land-use planning., Development Series 1, Rome. - FCBC. 2003. Plan Municipal de Ordenamiento Territorial de San Rafael, Santa cruz. - Gaviña, J. 1998. Prospectiva y ordenación del territorio: haciaun proyecto de futuro. Barcelona. - Groenendijk, L. 2001. SW OT Analysis. Social Science Division, ITC, Netherlands. - International Society of City and Regional Planners. 1998. International Manual of Planning Prac- tice Second Edition. Netherlands - Isard, W . 1971. Métodos de análisis regional. (Ariel ed.)Barcelona. - Lazarte, J.; M. Pacheco. 1992. Bolivia Economia y Sociedad. La Paz - Navarro G. 2002. Clasificacion ecologica y floristica de los bosques de Bolivia. Revista Boliviana de Ecologia y Conservación, Cochabamba - Nijenhuis, G. 2002. Decentralisation and popular participation in Bolivia: the link between local governance and local development. PhD, Utrecht University. Utrecht. - Massiris A. 2001. Cualidades y Desafios de las Politicas Latinoamericanas de Ordenamiento Terri- torial. In Coloquio Geografico sobre America Latina, Facultad de Geografia de la UNAM. Mexico D.F. - MDSP. 2003. Ministerios y Vice-ministerios de Bolivia. [on-line]. Available by http://www.rds.org.bo/viceministerios.htm. Verified: 12/2003 - MDSMA. 2002. Ordenamiento Territorial en Bolivia. [On-line]. Available by http://www.mdsma.gov.bo. Verified: 02/07, 2003 - MDSMA. 1997. Guia metodologica para la formulación de planes de ordenamiento territorial. Mi- nisterio de Desarrollo Sostenible y Medio Ambiente. La Paz.

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- MDSP. 2001. Lineamientos de Politicas de Ordenamiento Territorial en Bolivia. Ministerio de De- sarrollo Sostenible y Planificación, La Paz. - MDSP. 1999. Guia Metodologica para la formulacion de los Planes de Ordenamiento Territorial departamental y Municipal. Ministerio de Desarrollo Sostenible y Planificación, La Paz. - MG. 2003. Sitios del Estado. Ministerio de Gobierno Bolivia. [on-line]. Available by http://www.bolivia.gov.bo/BOLIVIA/paginas/sitiosestado.htm. Verified: 12/2003 - Muñoz, M. 2003. Proyecto regional Ordenamiento Territorial Rural Sostenible. [on-line]. Available by http://www.rlc.fao.org/proyecto/139jpn/miselan11.htm. Verified 02/2004. - Perroux, F. 1964. L'economie du XXeme siecle. Pressess Universitaries de France, Paris. - Seasons, M. 2003. Monitoring and evaluation in municipal planning: Considering the realities. Journal of the American Planning Association, 69(4): 430-440. - Soto, C. 1986. Bases conceptuales de la Planificacion del Desarrollo. Revista Interamericana de Planificación, 77 (20): 120-122 - Van Diepen, C.A., Van Keulen, H., W olf, J. & Berkhout, J.A.A. 1991. Land evaluation: from intui- tion to quantification. In B.A. Stewart (eds.), Advances In Soil Science. Springer, New York, pp. 139-204. - Vargas, R. 2002. Ordenamiento Territorial (Lectura Notes, CLAS) - W inkler, D. (1994). The design and administration of intergovernmental transfer: fiscal decentralization in Latin America. Technical paper 235, W orld Bank, 138 p. - W orld Bank (Ed.). 1998. Assessing Development Effectiveness: W ORLD BANK OPERATIONS EVALUATION DEPARTMENT. - Zapata, C.R. 1999. Ordenamiento Territorial, Base para el Desarrollo Municipal en Bolivia. El Dia- rio - Zinck, J. A. 1996. La información edáfica en la planificación del uso de las tierras y el ordenamien- to territorial. In J. Aguilar, A. Martinez & A. Roca (eds.), Evaluación y Manejo de Suelos Universidad de Granada, Granada.

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APPENDICES

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Appendix 1 Progress of OT municipal plans. Status Department M unicipality Finished In Process - Cabezas X - Yapacani X - Santa Rosa X - San Carlos X - Charagua X - Portachuelo X - Minero X - Gutierrez X - Lagunilla X Santa Cruz - Comarapa X - Mairana X - Buena Vista X - San Rafael* X - San Ignacio X - San Miguel X - San Jose X - Robore X - Puerto Quijarro X - San Matias X - Puerto Suarez X - Magdalena X - Huaracaje X Beni - Baures X - Rurrenabaque X - Caranavi X - Coripata X La Paz - Coroico X - San Buenaventura X - Calamarca X - Villa Tunari X - Colomi X - Independencia X X Cochabamba - Punata* - Colcapirhua** X - Tiquipaya** X - Totora X - Chimore X - Villamontes X - Padcaya X X Tarija - Bermejo - San Lorenzo X - Yacuiba X - Entre Rios X - Monteagudo X - Huacareta X X Chuquisaca - Tomita - Villa Serrano X - Villa Alcala X - Padilla X Pando - Puerto Rico X Potosi - Puna X TOTAL 51 38 13 * Cases of study

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Appendix 2 Questionnaires, Interviews and workshop structure

Q uestionnaire (1) technical staff (Tem plate) Evaluación del Ordeamiento Territorial en B olivia Técnicos de OT ß Cargo:______ß Institución:______ß Lugar y fecha: ______A. Planificación y Ordenamiento Territorial en Bolivia

1. ¿Cuál es el objetivo de la Planificación? ß ______2. ¿Cuál es el objetivo del Ordenamiento Territorial? Cuales son los nuevos elementos que se pueden encontrar en el OT con respecto a la planificación tradicional? ß ______3. ¿Cuáles son las consecuencias para los ciudadanos y otros actores un plan de OT? ß ______4. ¿Cuáles son los puntos débiles del OT? ¿Cuáles son los puntos fuertes? ß ______5. ¿Cuáles son las oportunidades y amenazas del OT? ß ______

B. Elaboración de un Plan M unicipal de Ordenamiento Territorial

6.1 ¿En que planes municipales de OT ha estado involucrado? Y de que forma? ß ______6.2 ¿Por qué un municipio encara la elaboración de un PMOT? ß ______7. ¿Quienes son los actores de la formulación/seguimiento/fiscalización del proceso en la elaboración del PMOT? ß Grupos ciudadanos ß Políticos ß Técnicos del municipio ß Técnicos de las diferentes consultoras ß Otros ______8. ¿Cómo fueron (los actores) seleccionados? Basado por: ß Experiencia ß Interesados en el tema ß Voluntarios ß Licitación ß Otros______9. ¿Cómo participaron dentro del proceso? ß ______10. ¿Cómo fueron usados los datos/modelos/objetivos en la recomendación de políticas de acción? ß ______11. ¿Todos los temas pertinentes (e.g. físicos, sociales, económicos, políticos, psicológicos, culturales, de diseño) han sido considerados? ß ______12. ¿En la elaboración del PMOT han sido considerados los temas de eficiencia e igualdad? ß ______13. ¿La distribución del costo/beneficio entre los diferentes grupos han sido considerados? ß ______14. ¿Los problemas del municipio fueron específicamente identificados?

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ß ______15. ¿Los borradores del plan Municipal de OT fueron difundidos para la consideración pública? ß ______16. ¿La versión final del plan Municipal de OT fue difundida para la consideración pública? ß ______17. ¿Dentro de un plan OT existen prioridades de implementación? ¿Cuáles? ß ______18. ¿El costo de la implementación del PMOT como la no implementación está considerado en el estudio? ß ______19. ¿Dentro de la implementación, ya que se siguen líneas definidas por el PMOT, puede existir la negociación entre partes afectadas? ß ______21. ¿El proceso de OT es lo suficientemente flexible como para permitir la incorporación de nuevos datos y ser retroalimen- tado? ß ______22. ¿Los niveles de agregación en la información son relevantes y útiles para la elaboración del PMOT? ß ______23. ¿Existe ambigüedades dentro de la guía metodológica? ¿Cuáles? ß ______24. ¿El nivel de escala es el adecuado? ¿Por que? ß ______25. ¿Alguna dificultad que ha encontrado en el proceso de elaboración del PMOT, ya sea en campo o en gabinete? ß ______Otras preguntas, según la información obtenida

Questionnaire (2) municipalities‘ staff (Template) Evaluación del Ordenamiento Territorial en Bolivia M UNICIPIOS CON PM OT ß Cargo:______ß Institución:______ß Lugar y fecha: ______

Planificación y Ordenamiento Territorial en Bolivia

4. ¿Cuál es el objetivo de la Planificación? ß ______5. ¿Cuál es el objetivo del Ordenamiento Territorial? Cuales son los nuevos elementos que se pueden encontrar en el OT con respecto a la planificación tradicional? ß ______6. ¿Existe alguna ley que les obligue a realizar un PMOT? ß ______7. ¿Cual es la relación Horizontal entre la planificación y el Plan Municipal de OT? ß ______8. ¿Qué diferencia existe entre un PMOT y un PDM? ß ______9. ¿Cuáles son las consecuencias para los ciudadanos y otros actores la implementación de un plan de OT en el municipio? ß ______7. ¿Cuál es el nivel de obligación de los ciudadanos en la participación dentro de la elaboración, aprobación e implementa- ción de un plan de OT? ß ______8. ¿Cree que esta claro, para quien esta hecho el Plan? ß ______

9. ¿La ley da facilidades (incentivo/apoyo directo-indirecto) para la implementación de los Planes Municipales de OT? ß ______

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10. ¿Por qué el municipio decidió encarar la elaboración de un PMOT? ß ______11. ¿Usted cree que el Municipio esta en condiciones como para afrontar las exigencias de un PMOT? Ya que las propuestas del plan del uso del suelo y de la ocupación del territorio pueden dar resultados que van contra los intereses de personas que viven en la región. ß ______12. ¿Cree que el problema limítrofe entre municipios este afectando el avance del proceso de OT a nivel municipal? ß ______

Plan M unicipal de Ordenamiento Territorial (PROCESO)

13. ¿Al iniciar el trabajo para la elaboración del PMOT los objetivos fueron claramente definidos? Tanto por parte de la alcaldía como del consultor ß ______14. ¿Los objetivos y los alcances de la elaboración del PMOT fueron difundidos/comunicados a los ciudadanos para que ellos sepan que esperar? ß ______15. ¿Quienes son los actores de la formulación/seguimiento/fiscalización del proceso en la elaboración del PMOT? ß Grupos ciudadanos ß Políticos ß Técnicos del municipio ß Técnicos de las diferentes consultoras ß Otros ______16. ¿Cómo fueron (los actores) seleccionados? Basado por: ß Experiencia ß Interesados en el tema ß Voluntarios ß Licitación ß Otros______17. ¿Cómo participaron dentro del proceso? ß ______18. Según el tipo de plan a ser presentado ¿Los criterios que los planificadores/consultores utilizaron para la evaluación (física/económica/social) están claros? ß ______19. ¿Los principales problemas del municipio fueron específicamente identificados? ß ______20. ¿El PMOT fue conducido hacia los problemas/oportunidades en la realidad del municipio? ß ______

Plan M unicipal de Ordenamiento Territorial (RESULTADOS)

21. ¿Existen prioridades de implementación del PMOT? ¿Cuales? ß ______22. ¿EL PMOT da alternativas para su implementación? ß ______23. ¿Dentro de la implementación, ya que se siguen líneas definidas por el PMOT, puede existir la negociación entre partes afectadas? ß ______24. ¿Los resultados del PMOT está en línea con los intereses políticos? ß ______25. ¿El PMOT satisface la necesidad de todos los actores? ß ______26. ¿Cree que en este momento la municipalidad puede implementar el PMOT? ¿Es económicamente realizable? O necesita esperar cierto tiempo. ¿Por qué?

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ß ______27. ¿Puede existir un seguimiento del PMOT? ß ______28. ¿Cuales cree que son los puntos fuertes para la adopción de un OT a nivel municipal? ß ______29. ¿Cuales son los puntos débiles del Ordenamiento Territorial? ß ______30. Existe alguna amenaza dentro del proceso de OT? Cual(es)? ß ______Otras preguntas, según la información obtenida

Q uestionnaire (3) Municipalities w ithout OTMP (Template)

Evaluación del Ordenamiento Territorial en B olivia MU N ICIPIOS S IN PMOT

ß Cargo:______ß Institución:______ß Lugar y fecha: ______

Planificación y Ordenamiento Territorial en Bolivia

10. ¿Cómo esta estructurada la unidad de planificación? ß ______11. ¿Usted sabe que es el ordenamiento territorial? ¿Cuál es el objetivo del Ordenamiento Territorial? Si, No, ¿Por qué? ¿Cuáles sus ventajas/desventajas? ß ______12. ¿Existen algunos avances en el municipio sobre la elaboración de un PMOT? ¿Cuáles? ß ______13. ¿Existe influencia/presión por parte de los ciudadanos para entrar al proceso de OT ? ß ______14. ¿Cuáles son los motivos que causan que la municipalidad aún no se encuentre encaminado en el campo del Ordena- miento Territorial? ß Factores económicos ß Factores técnicos ß No tiene relevancia ß No es una prioridad ß No existe la suficiente conciencia ß Beneficios esperados no son claros ß No es de real interés Otros______Otras preguntas, según la información obtenida

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S emi – structured Interview s (1): technical staff (Tem plate)

Ordenamiento Territorial La metodología para realizar un plan de OT es clara? Cuales son los puntos mas difíciles de ser entendidos dentro de la metodología? La representación en mapas es la adecuada? El nivel de detalle es el adecuado en el estudio? El documento del plan de OT sigue pasos coherentes en su elaboración? El documento es entendible y puede ser leído por los ciudadanos sin dificultad? Algún otro comentario?

S emi – structured Interview s (2): municipalities‘ staff (Template)

Planificación en Bolivia Cuál es el objetivo del Ordenamiento Territorial? Cuales son los nuevos elementos que se pueden encontrar en el OT con respecto a la planificación tradicional? OT M unicipal Plan La guia metodologica es clara y no opcion a interpretaciones erroneas para la recoleccion, analisis y tratamiento de datos? El nivel de detalle del plan es adecuado? La representación en los mapas es la adecuada? Podría mencionar algunos aspectos relevantes sobre el documento del plan municipal de OT del municipio? El contenido del Plan es coherente? El documento contiene todos los aspectos especificados en la guía metodologica en un forma clara y logica? El documento tiene un lenguaje y sencillo para poder ser entendido por los ciudadanos?

S emi – structured Interview s (3): National government authorities (Template)

Planificación en Bolivia

Cuales fueron las razones para establecer el OT en Bolivia? Como se relaciona el OT con otras actividades de planificación? Cual es la relación vertical entre los diferentes niveles de OT? (Viceministerio/Prefectura/Municipalidades) Cual es la relación horizontal a nivel de municipalidades? Por que aun no se aprobó la ley de OT?

Ordenamiento Territorial y sus implicaciones

Cual es el rol/responsabilidades/mandatos del OT en los diferentes niveles? Existen leyes que den estrategias para que los diferentes niveles adopten el Ordenamiento Territorial? Especialmente al nivel municipal? La ley da facilidades (incentivo/apoyo directo-indirecto) para la implementación de los Planes Municipales de OT? Usted cree que existe la suficiente divulgación de información para promover el OT? Dentro del proceso de OT cual es el nivel de obligación/participación del ciudadano común? 16. Dentro de lo que es la metodología para la elaboración de un Plan de OT, Por que existe un —sesgo“ hacia la parte agríco- la? Es decir, se explica a detalle los pasos para realizar la evaluación físico-biológica del PLUS pero para la ocupación del territorio, solo se dan líneas generales. Siguiendo dentro de lo que es la metodología. Como se hace un plan de OT en territorios indígenas? Cuales cree que son los puntos fuertes para la adopción de un OT a nivel municipal? Cuales cree que puedan ser la oportunidades dentro del proceso de OT en los diferentes niveles? Nal/Dptal/Mpal Cuales son los puntos débiles del Ordenamiento Territorial? Existe alguna amenaza dentro del proceso de OT? Cual(es)?

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OT a nivel municipal

Cual(es) es (son) la(s) razón(es) para que de los 314 municipios solo existan unos cuantos con un Plan Municipal de Orde- namiento Territorial aprobado y algunos otros recién estén dentro del proceso? Cree que el problema limítrofe entre municipios este afectando el avance del proceso de OT a nivel municipal? Quien se encarga de manejar las licitaciones (dineros/adjudicaciones/tiempos de ejecución), supervisión? Existe gente capacitada en Planes de Ordenamiento Territorial? Quienes? y Como se capacitaron? Quien implementa y hace el seguimiento del Plan Municipal de OT? En cuanto tiempo se lleva a cabo la elaboración de un PMOT? Dependiendo de la anterior respuesta...... Por que existen licitaciones en donde se le exige al consultor realizar trabajos en un tiempo record de tres meses, sa- biendo que el proceso de elaboración de un plan es tan complejo?

W ORKSHOP (Template) TALLER PARTICIPATIVO Objetivos.-

ñ Identificar y describir los factores críticos en el proceso de elaboración del plan municipal de OT. ñ Determinar el grado de participación ciudadana en la elaboración del PMOT. ñ Determinar si los resultados del PMOT son socialmente realizables. ñ Determinar si el PMOT identificó los principales problemas y dio alternativas para su resolución. ñ Dotar al municipio de conocimiento sobre la postura y apreciaciones de la población en el proceso de OT dentro del municipio.

Estructura del Taller.

1. Inauguración del Taller 2. Presentación de los objetivos del taller a. Explicación de los pasos a realizarse en el taller (Programa del día) b. Explicación de los resultados esperados 3. Introducción de los participantes a. Dinámica de grupo para la presentación de cada participante 4. Disertación —Ordenamiento Territorial en Bolivia“ a. Familiarización con términos de OT. b. Niveles de OT (Nal, Dptal, Mpal) c. Preguntas (dinámica de grupo) Resultados esperados: Identificación de los actores del proceso de OT Definir la importancia del OT Descanso 5. Plan M unicipal de Ordenamiento Territorial (Proceso) a. Preguntas (dinámica de grupo) Resultados esperados: Identificación, rol e interés de los actores en el PMOT Nivel de participación en la elaboración del PMOT

6. Plan M unicipal de Ordenamiento Territorial (Resultados) a. Discusión abierta (Dinámicas de grupo) Resultados esperados: Determinar si el PMOT identificó los problemas principales del municipio, si el PMOT tiene información relevante para solucionar dichos problemas, si el PMOT satisface las expectativas de los poblado- res y si el PMOT se encuentra en línea con el interés político/administrativo del municipio 7. Formulación de los resultados del taller a. Revisión de los resultados b. Evaluación del Taller (Formulario) 8. Clausura del Taller

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Appendix 3

Actual Municipal districts in San Rafael municipality

Actual Municipal districts

DISTRITO SAN R AFAEL

Source: FCBC, 2003)

Municipal districts proposal in the OTMP of San Rafael municipality

Municipal districts proposal

Source: FCBC, 2003)

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Appendix 4 Actual municipal districts in Punata municipality

Districts of Punata

OT M UNICIPAL PLAN OF PUNATA

Source: CLAS, 2002

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Appendix 5 List of Interviewees and Workshop participants

National government C. Valenzuela, Vice ministry of Environment and Sustainable Development. H. Poppe, Director of OT Head Office D. Fernandez, Advisor Unit GIS of OT Head Office H. Nogales, Advisor Unit Natural Resources of OT Head Office Departmental government (Prefectures) M.Cossio, Director Departmental OT and Boundaries Unit (Prefecture of Cochabamba) C. Duran, Director Departmental of municipal strengthening (Prefecture of Santa Cruz) M unicipality of San Rafael R. Saravia, Mayor R. Mercado, Municipal advisor T. Arana, Advisor municipal for OT A. Velasco, President of Comite de Vigilancia, OTB San Josecito J. Bailaba, vice-president of Comité de vigilancia F. Pachuri, OTB San Josema M. Surubi, OTB Sapoco R. Flores, OTB Mucha Miel R. Villarroel, OTB San Lorenzo E. Vaca, OTB Villa Fatima M unicipality of Punata J. Gonzalez, Mayor C. Rocha, OTB representative, District 1 A. Mendez, OTB representative, District 2 P. Blanco, OTB representative District 3 S. Aguirre, OTB representative, District 4 N. Claros, OTB representative, District 5 R. Ramirez, President of Comite de vigilancia L. Flores, Vice president of Comite de vigilancia Other M unicipalities G. Sermenio, Advisor Unit for OT in Tiquipaya municipality L. Villazon, Mayor of Tiquipaya municipality F. Ormachea, Mayor of Sipe Sipe municipality F. Pinto, Mayor of Quillacollo municipality F.Aguila, Advisor Planning Unit for Vinto municipality R. Calvo, Advisor Cadastre Unit for Vinto municipality J. Ojalvo, Mayor of Colcapirhua municipality Development Agencies and Non- governmental organizations CLAS FBC FAO Other S. Laguna, former member of the group that introduces and elaborated the OT guidelines. N. Mendoza, former Director OT Head office.

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