Poverty, Inequality, and Low Social Mobility: Territorial Traps in Chile
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studios recientes a nivel internacional revelan claramente que la po- Ebreza, la desigualdad y la baja movilidad social tienen una dimensión territorial. Esta dimensión se expresa en verdaderas “trampas” de vulne- rabilidad y pobreza para amplios sectores de la población que enfrentan limitados horizontes para poder salir de ellas. Esto se repite generación tras generación y se expresa en el hecho de que el acceso a todo tipo de POVERTY, INEQUALITY, oportunidades se ve condicionado por diferencias territoriales. Este estudio, a través de un seguimiento a indicadores clave de bienes- AND LOW SOCIAL MOBILITY: tar con un nivel de desagregación espacial no disponible previamente en Latinoamérica, analiza los factores que imperan para que prevalezcan esas TERRITORIAL TRAPS IN CHILE, trampas en Chile, México y Perú. A través de un riguroso análisis cuantita- tivo y de un innovador enfoque cualitativo, logra identificar las principa- MEXICO AND PERU les “restricciones operativas” –económicas, institucionales y de economía política– que impiden un crecimiento inclusivo. ¿Por qué no se logra este crecimiento inclusivo? El libro documenta la existencia de las trampas de bajo nivel de bienestar y revela la importancia relativa de la falta de cohesión social, de la existencia de clases políticas del tipo clientelar, de la debilidad del estado de derecho, de la ausencia de élites emergentes, del acceso desigual a mercados y de las asimetrías de información y de acceso a programas públicos que podrían cambiar la Anthony Bebbington situación. La evidencia presentada en la obra muestra puntos de entrada Javier Escobal para generar políticas públicas territoriales que impulsen en Latinoaméri- Isidro Soloaga ca procesos de crecimiento regionalmente incluyentes. Andrés Tomaselli TERRITORIAL TRAPS IN CHILE, MEXICO AND PERU AND MEXICO CHILE, IN TRAPS TERRITORIAL Poverty, Inequality, and low Social Mobility: Inequality, and low Social Mobility: Poverty, Poverty, Inequality, and low Social Mobility: TERRITORIAL TRAPS IN CHILE, MEXICO AND PERU Board of Directors Dra. Amparo Espinosa Rugarcía President Lic. Amparo Serrano Espinosa Vice-President Mtro. Julio Serrano Espinosa Secretary Sr. Manuel Serrano Espinosa Treasurer Dr. Enrique Cárdenas Executive Director Centro de Estudios Espinosa Yglesias, A.C. Ceey Editorial © Centro de Estudios Espinosa Yglesias, A.C. Av. Insurgentes 1871 piso 8 Col. Guadalupe Inn, Del. Álvaro Obregón C.P. 01020, Mexico City www.ceey.org.mx RIMISP Yosemite 13, Col. Nápoles, Del. Benito Juárez C.P. 03810, Mexico City IBERO Prol. Paseo de la Reforma # 880, Lomas de Santa Fe Del. Alvaro Obregón, C.P. 01219, Mexico City ISBN: 978-607-8036-46-2 Printed in Mexico This document is a product of the Territorial Cohesion for Development Program, coordinated by RIMISP (Latin American Center for Rural Development) and funded by the International Development Research Centre (IDRC, Canada). Poverty, Inequality, and low Social Mobility: TERRITORIAL TRAPS IN CHILE, MEXICO AND PERU Anthony Bebbington clark university, ma, usa Javier Escobal grade, peru Isidro Soloaga ibero, mexico Andrés Tomaselli rimisp, chile 2016 INDEX preface 9 Julio A. Berdegué I. Territorial Poverty Traps and Inequality—A Summary of the Findings 13 Anthony Bebbington Javier Escobal Isidro Soloaga Andrés Tomaselli II. Poverty, Vulnerability and Opportunities in Functional Territories in Chile 53 Andrés Tomaselli III. Institutional Arrangements for Overcoming Localized Monetary Poverty Traps: The Territories of Cauquenes and Constitución in the Maule Region of Chile 117 Juan Fernández Labbé Ma. Ignacia Fernández Ricardo Fuentealba IV. Poverty and Inequality Traps in Mexico 1990-2000-2010 159 Mariana Pereira Isidro Soloaga V. Constraints and Traps Affecting Territorial Growth: Municipalities of Santa Isabel Cholula and Tianguismanalco in the state of Puebla, Mexico 223 Juan Enrique Huerta Wong Rosa María Lechuga Morales Isidro Soloaga VI. Territorial Poverty and Inequality Traps in Peru 257 Javier Escobal VII. Constraints and Traps for Territorial Growth—Two Territories in the Andean Region of Peru 329 Gerardo Damonte Methodological Appendix 367 PREFACE n Latin America, where you’re born or where you live makes a dif- Iference. The opportunities available to individuals and certain social groups are strongly determined by their territory. Even when people decide to migrate in search of better opportunities or simply because life in their place of origin becomes unsustainable, they take the territory with them, and this affects their ability to take advantage of opportunities at their destination. Territorial conditions inter- act with other determinants of opportunities—gender, social class, ethnic group—so that although women or indigenous people suffer discrimination and special constraints on their development, they are expressed differently from place to place. Geography makes a difference, but even more important are so- cial structures and institutions, and the social actors who build and reproduce them. These structures, institutions and actors are differ- ent in different territories, and to a great extent, that is why major economic, social or cultural trends, as well as public policies, do not “take root” in the same way in different places. We have been studying this situation for more than a decade in Rimisp, the Latin American Center for Rural Development, along with dozens of partners throughout Latin America. We are motivated by our desire to transform social conditions so that opportunities for and the welfare of all of us are similar, regardless of the territory where we are born and where we develop personally. This book contributes to the discussion about territorial inequali- ties. Taking the cases of Chile, Mexico and Peru, it presents new evi- dence about patterns of development in our societies, with a degree of spatial breakdown that was previously unavailable. The authors study both the outcomes of these differentiated development dynamics, in terms of poverty and vulnerability, and the opportunities that our children and young people face in defining their access to education, basic services or goods necessary for their personal growth. They also analyze how territory, compared with personal circumstances, be- comes a key factor in differentiated access to opportunities. This work also shows that we are not experiencing a process of territorial conver- gence in these countries, which would allow us to aspire to civilized levels of social cohesion within a reasonable time frame. At the same time, however, the three countries studied show growing territorial segregation, where personal aspirations are increasingly limited by the place where one lives. If we add to this territorial segregation the weakness of governance institutions in many of our Latin American countries, it is easy to see that we face an explosive mixture. But this state of growing territorial inequality can change, and the trends can be reversed. The book analyzes territories in the three countries that have managed to shed their condition of being spatial poverty traps, despite being located in disadvantaged regional en- vironments; this has translated into a better quality of life for their inhabitants. Taking these territories as case studies and comparing them with others in the same environment that have not managed to overcome the lag, this book provides new qualitative evidence about the social and political-institutional factors that cause some to con- tinue lagging, or which have been crucial for others to forge a positive path of development. We offer this book to both general readers and experts, in the hope that it will help lift the veil of spatial blindness with which most public policies are designed and implemented. Territory matters, and it matters a great deal, and as long as we do not internalize that in public policies, those policies will often unwittingly help perpetuate the territorial inequality that limits the horizons of millions of Latin Americans. Julio A. Berdegué Coordinator Working Group on Development with Territorial Cohesion Rimisp I TERRITORIAL POVERTY TRAPS AND INEQUALITY—A SUMMARY OF THE FINDINGS Anthony Bebbington, Javier Escobal, Isidro Soloaga, and Andrés Tomaselli 13 hen analyzing countries’ development and their economic Wevolution, in particular those undertaken within the fields of economics and sociology, these studies typically focus on national variables and often ignore the large variations found in development among different social groups and territories within a country. These kinds of studies have contributed to our knowledge of the factors that help explain national development patterns; however, given that they obscure variations within countries, they may not accurately reflect the true levels of well-being among individuals (Foster et al., 2003). In recent years, there has been increasing global evidence of the territorial dimensions of poverty and inequality. Various authors in both developed and developing countries1 have demonstrated spatial- ly-differentiated patterns of economic development. In a 2012 report, the European Trade Union Institute went so far as to characterize re- gional inequalities within countries as a more common and dramatic phenomenon than those between countries (ETUI, 2012). Territorial inequalities are also a reality in Latin America. The Economic Commission for Latin America and the Caribbean (ECLAC) (2010) shows significant inter-territorial differences in Gross Do- mestic Product and