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Université De Montréal Protective Liberalization: the State and The Université de Montréal Protective Liberalization: The state and the Mexican petrochemical industry 1958-2000 par Ana Beatriz Vila Freyer Département de Science Politique Faculté des Arts et des Sciences Thèse présentée a la Faculté des Arts et des Sciences en vue de l’obtention du grade de doctorat en Science Politique Août, 2009 © Ana Beatriz Vila Freyer, 2009 ii Université de Montréal Faculté des études supérieures et postodctorales Cette thèse intitulée Protective Liberalization: The state and the Mexican petrochemical Industry 1958-2000 présentée par Ana Beatriz Vila Freyer a été évaluée par un jury composé des personnes suivantes Graciela Ducatenzeiler Présidente - rapporteur Jane Jenson Directrice de recherche Laura Loaeza Reyes Examinatrice externe Martial Foucault Membre du jury Catherine Poupeney-Hart Représentant du doyen iii ABSTRACT This thesis follows and analyses the involvement of both social actors and the state in the industrial transformation of Mexico. While these actors have been key associates in the development of the Mexican economy for decades, with the 1982 debt crisis, and especially after the promotion of a structural reform in 1986, the patterns of their involvement changed. However, this change was more limited than expected, and the state did not abandon its participation in some key industrial sectors. This thesis will demonstrate that the role of the state remained important during the process of change towards an Export-Oriented developmental paradigm, although the state continued to participate in fashioning social relations, it did so in new ways that can be termed “protective liberalization.” Key words: Mexico, petrochemical industry, developmental state, protective liberalization, state participation Cette thèse évalue et analyse la participation des acteurs sociaux et de l'État dans la transformation industrielle du Mexique. Alors que durant plusieurs décennies ces acteurs on été des partenaires stratégiques dans le développement de l’économie mexicaine, avec la crise de la dette de 1982 et spécialement suite à la réforme structurelle de 1986, le modèle de leur participation a changé. Néanmoins, ce changement a été plus limité que prévu et l‘État n‘a pas abandonné sa participation dans certains secteurs industrielles clés. Cette thèse démontre que le rôle de l’État n’a pas perdu de son importance pendant le transfert vers un paradigme du développement orienté vers l’exportation et que même si l ́État a continué à participer dans la structuration des relations sociales, cela c’est fait d’une nouvelle manière que l'on pourrait dénommer “libéralisation protective”. Mots clés: Mexique, Industrie pétrochimique, participation de l’État, libéralisation protective. iv To my Mom v I want to thank Jane Jenson for all her unconditional support To Consejo Nacional de Ciencia y Tecnología (CONACYT) and the Edward E. Ford, John D and Catherine T MacArthur, and The William and Flora Hewlett Foundations’ Graduate Fellowships in the Social Sciences Program for the scholarships supporting my graduate studies To the Sociological Studies Center of El Colegio de Mexico for receiving me as invited researcher during my field research To all my professors and friends To my familly 6 Contents CHAPTER 1. INTRODUCTION ......................................................................................................8 CHAPTER 2. UNDERSTANDING STATES AND DEVELOPMENT ...................................... 21 2.1. THE STATE OF THE ART .........................................................................................................................21 2.1.1 Market­pull theoretical models.................................................................................................22 2.1.2 State and Market: Corporatism ................................................................................................32 2.2 STATE DIRECTED APPROACHES AND EMBEDDED AUTONOMY.........................................................38 2.3 PROTECTIVE LIBERALIZATION..............................................................................................................53 2.4 OUTLINE....................................................................................................................................................59 CHAPTER 3. INSTITUTIONALIZING PUBLIC/PRIVATE RELATIONS: PREPARING THE MEXICAN DEVELOPMENTAL STATE ............................................................................. 63 3.1 THE DEVELOPMENTAL BUREAUCRACY ................................................................................................67 3.1.1 The institutionalization of a developmental bureaucracy............................................71 3.1.2 The officials’ education.................................................................................................................75 3.2 THE ADJUSTMENT OF THE STATE ACTION AND ITS TECHNICAL EDUCATION ................................78 3.2.1 Institutional re­arrangements ..................................................................................................80 3.2.2 Broadening elite recruitment ....................................................................................................87 3.3 ABOUT EMBEDDEDNESS.........................................................................................................................90 3.4 THE YEARS OF THE PARADIGM SHIFT...................................................................................................99 CHAPTER 4. THE PETROLEUM INDUSTRY IN MEXICAN HISTORY AND POLITICS104 4.1 PETROCHEMICALS ORIGIN .................................................................................................................. 105 4.2 THE MEXICAN OIL INDUSTRY ............................................................................................................. 109 4.3 THE AMERICAN FACTOR AND THE REINFORCEMENT OF NATIONALISM IN THE OIL INDUSTRY ......................................................................................................................................................................... 114 4.4 THE PETROCHEMICAL SECTOR BEFORE 1958 – RISING OUT NATIONALISM AND CORPORATISM ......................................................................................................................................................................... 119 4.5 STATE ORGANIZATION OF THE OIL INDUSTRY ................................................................................. 123 4.6 CONCLUSION.......................................................................................................................................... 130 CHAPTER 5. THE MEXICAN PETROCHEMICAL INDUSTRY – EMERGENCE AND INSTITUTIONALIZATION.........................................................................................................132 5.1 SETTING THE DEVELOPMENTAL POLICY PIECES IN PLACE ............................................................ 133 5.2 THE MAIN POLICY LINES...................................................................................................................... 135 5.3 DEFINING THE PLAYERS: CUSTODIAL AND DEMIURGIC ROLES ..................................................... 138 5.4 THE PETROCHEMICAL COMMISSION................................................................................................. 142 5.5 THE RESULTS ........................................................................................................................................ 149 CHAPTER 6. THE DEMIURGIC STATE IN DANGER ...........................................................156 6.1 A SECTOR IN TROUBLE......................................................................................................................... 159 6.2 FACING SCARCITY: A NEW UNDERSTANDING IN THE PETROCHEMICAL INDUSTRY ................... 164 7 6.2.1 Custodial role and the Petrochemical Commission....................................................... 165 6.2.2 New collaborative pattern: The ANIQ ­ PEMEX Commission.................................... 167 6.3 THE POLICY SHIFT: THE CREATION OF AN EXPORT‐ORIENTED INDUSTRY (1977‐1982) ... 170 6.3.1 Embedded Autonomy and the “boom” of the petrochemical industry.................. 175 6.3.2 The 1979 Petrochemical program: Midwifery and husbandry roles..................... 177 6.3.3 The results ....................................................................................................................................... 183 6.4 THE 1982 DEBT‐CRISIS: BANCO DE MEXICO AND THE PRIVATE EXTERNAL DEBT ................. 185 6.5 LAST BREATH OF THE DEMIURGIC STATE......................................................................................... 188 6.6 DIFFERENT VISIONS TO FACE THE CRISIS ......................................................................................... 191 6.6.1 Continuity: Petrochemical policy for the period of 1983­1985................................ 193 6.6.2 Preparing the paradigm shift: the rational route.......................................................... 195 CHAPTER 7. THE PARADIGM SHIFT.....................................................................................200 7.1 THE NEW WORLD CONTEXT................................................................................................................ 202 7.2 FROM ECONOMIC STRINGENCY TO DISMANTLING THE DEMIURGE APPARATUS ........................ 207 7.3 STATE PROMOTIONAL ROLES: TWO MODELS LIVING TOGETHER? ............................................... 217 7.4
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