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Número 88 Febrero 1995 Impreso Y Hecho En México INSTITUTO NACIONAL DE ADMINISTRACiÓN PÚBLICA, A.C. REVISTA DE ADMINISTRACiÓN PÚBLICA José Chanes Nieto Director ISSN 0482-5209 Certificado de Licitud de Título 2654 Certificado de Licitud de Contenido 1697 Publicación Periódica Registro número 102 1009 Caracterfsticas 21024 1801 Edición Comité Editorial © Revista de Administración Pública Instituto Nacional de Administración Pública, A.C. Km. 14.5 Carretera Libre México-Toluca Col. Palo Alto Delegación Cuajimalpa, 05110 México, D.E Tels. 5706945 Y 570 71 40 Número 88 febrero 1995 Impreso y hecho en México Los articulos que aparecen en esta obra son responsabilidad de los autores y no expresan necesariamente el punto de vista del Instituto Nacional de Administración Pública, A.C. México, 1995 Se autoriza la reproducción total o parcial de esta obra, siempre y cuando no sea con fines de lucro. INSTITUTO NACIONAL DE ADMINISTRACiÓN PÚBLICA, A.C. Sección Mexicana del Instituto Internacional de Ciencias Administrativas CONSEJO DIRECTIVO Adolfo lugo Verduzco COORDINADORES Presidente Centro de Estudios de Administración Estatal y Municipal José Natividad González Parás Roberto Ávalos Aguilar Vicepresidente Desarrollo y Formación Permanente Luis F. Aguilar Vlctor Hugo Alarcón limón Carlos F. Almada lópez Sergio Garcla Ramírez Arturo Núñez Jiménez Consultoría y Alta Dirección Mariano Palacios Alcocer J. Alejandro Jaidar Cerecedo Gustavo Petricioli Iturbide Fernando Solana Morales Jorge Tamayo lópez Portillo Investigación y Documentación María Elena Vázquez Nava Adriana Hernández Puente Consejeros Relaciones Internacionales lucila leal de Araujo Antonio Sánchez Gochicoa Tesorero Nestor Fernández Vertti Administración, Finanzas y Difusión Secretario Ejecutivo Vicente Hernández Verduzco COMITÉ EDITORIAL Roberto Ávalos; María Teresa Brindis; José Chanes Nieto; Néstor Fernández Vertti; Adriana Hernández Puente; Carmelina B. de Perea INSTITUTO NACIONAL DE ADMINISTRACiÓN PÚBLICA, A.C. MIEMBROS FUNDADORES Antonio Carrillo Flores Mario Cordera Pastor Gilberto Loyo Gabino Fraga Magaña Rafael Mancera Ortiz Jorge Gaxiola Ricardo Torres Gaytán José Iturriaga Raúl Salinas Lozano Antonio Martinez Báez Enrique Caamaño Lorenzo Mayoral Pardo Daniel Escalante Alfonso Noriega Raúl Ortiz Mena Manuel Palavicini Rafael Urrutia Millán Jesús Rodríguez y Rodríguez José Attolini Andrés Serra Rojas Alfredo Navarrete Catalina Sierra Casasús Francisco Apodaca Gustavo R. Velasco Alvaro Rodríguez Reyes CONSEJO DE HONOR Gustavo Martlnez Cabañas; Andrés Caso Lombardo; Luis García Cárdenas; Ignacio Pichardo Pagaza; Raúl Salinas Lozano , Indice Presentación IX La Evolución del Derecho Administrativo Mexicano en el Siglo XX . Antonio Carrillo Flores Los Organismos Descentralizados y las Empresas de Participación Estatal en el Desarrollo Económico 39 Gilberto Layo El Presupuesto Fiscal y la Economía Nacional 53 Rafael Mancera Ortiz La Administración Pública como Instrumento para el Desarrollo Económico y Social 75 Ricardo Torres Gaytán Comisión de Inversiones .................................... 103 Raúl Salinas Lozano Reformas para el Próximo Milenio ........................... 119 Enrique Caamaño Muñoz El Ombudsman: Defensor de los Ciudadanos . 127 Daniel Escalante Ortega La Política Fiscal Moderna ' 139 Raúl Ortiz Mena La Conferencia Internacional sobre el lngreso y la Riqueza Nacionales . 157 Rafael Urrutia Millón El Tratado de Comercio México Americano. ..................... .. 179 José Attolini Administración Pública: Papel en 1995 de la Banca de Fomento en México 205 Alfredo Navarrete Romero La Nueva Organización del Tribunal Fiscal de la Federación 219 Mario Cordera Pastor Tendencias de la Administración Pública Contemporánea 231 Gabino Fraga Magaña La Crisis del Pensamiento Político 243 Jorge F Gaxiola La Administración Pública durante la Administración Santanista 267 José Iturriaga Sauco El Ejecutivo y su Gabinete 281 Antonio Martinez Báez Los Derechos Sociales 303 Alfonso Noriega Cantú El Refrendo y la Perfección del Acto Legislativo 345 Jesús Rodríguezy Rodríguez Panorama de la Administración Pública Mexicana 355 Andrés Serra Rojas Hacienda Pública 379 Catalina Sierra Casasús Relaciones Administrativas entre la Federación y los Estados 399 Gustavo R. Velasco Organización y Cibernética 431 Alvaro Rodríguez Reyes Lorenzo Mayoral Pardo 459 Manuel Palavicini Piñeiro ................................... .. 463 Francisco Apodaca y Osuna ................................. .. 467 Presentación Las raíces del Instituto Nacional de Administración Pública, título del presente número de su revista, se remontan a sus fundadores, quíenes aportaron su experíen• cia y conocimientos para establecer las bases de una institución que se ha ido fortalecíendo con las aportaciones de sucesivas generaciones. Nuestros fundadores, desde 1955, determinaron el propósito, objetivos y medios del entonces Instituto de Admínistración Pública. Así se constituyó como un foro abierto a la reflexión, al libre examen, al análisis profundo y propositivo, a la enseñanza y a la difusión de la cultura administrativa, para contribuir a una buena administración. Al efecto está obligado a mantener cordiales y estrechas relaciones con las autoridades federales, estatales y municipales, sin menoscabo de la libre investigación, discusión crítica de los problemas administrativos de cada ámbíto de gobierno del país. Antonio Carrillo Flores señaló en su discurso inaugural del ahora Instituto Nacional de Administración Pública, asociación civil: "la presencia en esta junta de algunos funcíonarios no tíene otro sígníficado que mostrar el ínterés del gobierno en los futuros trabajos del Instituto y de ofrecerle toda la colaboración a su alcance, lo cual -resulta casi innecesario decirlo- no supone limitación de ningún orden para la libertad en la investigación y en el examen de las cuestiones". Esta actitud y colaboración ha prestigiado a nuestro Instituto y le ha permitido, gracias a su labor, pasar de la generosa hospitalidad de los despachos particulares de don Gabino Fraga, primer presidente de su Consejo Directivo, y del licenciado Gustavo Martínez Cabañas, quien lo sucedió, a sus actuales instalaciones. El vigor actual del INAP y las posibilidades amplias de acción fecunda para el futuro son fruto de los empeños de los fundadores, de sus consejos directivos y de sus presidentes. El maestro Gabino Fraga dejó un imperecedero ejemplo de dedicación, independencia y rectitud en los trabajos de nuestra institución. Mostró que el afán de servir a la administración mexicana vence obstáculos y limitaciones para contri­ buir a su mejoramiento. La proyección internacional dellNAP se vigoriza con Gustavo Martínez Cabañas, quien es el único latinoamericano que ha presidido al Instituto Nacional de Ciencias Administrativas, justo reconocimiento a SllS tareas, en tantos aspectos precursores, x PRESENTACiÓN en el ámbito de la administración pública. De él seguimos compartiendo sus experiencias, aportaciones y entusiasmo. Andrés Caso cumplió la obligación de dar respuesta a las necesidades planteadas por nuestra sociedad y de actuar como administradores comprometidos con ella. Con él se inicia la creación de institutos estatales y municipales, contribuyendo a su mejoria. Igualmente con una más, entre tantas, de sus aportaciones, está la creación del premio que anualmente otorga el INAP, reconocido estimulo para la elaboración de trabajos que han contribuido al desenvolvimiento de la teoria y las prácticas administrativas. La dimensión internacional de las actividades institucionales fue excepcional y tuvieron su culminación con la exitosa organización en la ciudad de México del XVI Congreso Internacional de Ciencias Administrativas, celebrado por única vez en el continente americano. La creación de la maestría en administración pública, el fortalecimiento de los institutos estatales y el edificio que hoy nos alberga, amplio espacio que nos compromete a colmarlo de realizaciones, son muestras de los logros de Luis García Cárdenas. La biblioteca y un acervo bibliográfico notablemente acrecentado, cursos para formar investigadores, la introducción de un sistema de cómputo, la especialización en empresa pública, están entre las aportaciones de Ignacio Pichardo. Don Raúl Salinas Lozano apoyó la formación de altos funcionarios para las empresas públicas, la celebración de la Conferencia Internacional de Ciencias Administrativas en Toluca, Estado de México, y la capacitación de servidores públicos para contribuir a la modernización del país. Recibimos una herencia de realizaciones como estímulo y responsabilídad para incrementarla. Estas aportaciones, a su vez, son fruto de obras pretéritas que nos muestran caminos para conquistar independencia, resolver crisis, transformar y mejorar las condiciones de vida de nuestra patria. El número 88 de la RAP recoge las ideas y desempeños de nuestros fundadores. Gracias a ellos nuestra institución desde un principio ha estado guiada por ideas que se han concretado en acciones. La Evolución del Derecho Administrativo Mexicano en el Siglo XX 1. Introducción El presente siglo, se ha dicho, empezó en Europa, fuente principal de nuestras El derecho administrativo es, hay que tradiciones e instituciones jurídicas, no expresarlo asi, aunque parezca una tau­ en 1901 sino en 1914, al estallar la que tología, la rama del derecho público sería la Primera Guerra Mundial. En relativa a la Admínistración Pública.' México comenzó en noviembre Sin una idea clara acerca de lo que es, de191O, cuando se inicíó el largo y de lo que procura y de la manera como
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