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Servicios Públicos, Municipalización Y Privatización En La Historia Del Pensamiento Económico: Estudio De Caso Limpieza Viaria De Madrid (S.XV - S.XXI)

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Servicios Públicos, Municipalización Y Privatización En La Historia Del Pensamiento Económico: Estudio De Caso Limpieza Viaria De Madrid (S.XV - S.XXI) UNIVERSIDAD COMPLUTENSE DE MADRID FACULTAD DE CIENCIAS ECONÓMICAS Y EMPRESARIALES TESIS DOCTORAL Servicios públicos, municipalización y privatización en la historia del pensamiento económico: estudio de caso limpieza viaria de Madrid (S.XV - S.XXI) MEMORIA PARA OPTAR AL GRADO DE DOCTOR PRESENTADA POR Javier de Arribas Cámara Directora Estrella Trincado Aznar Madrid Ed. electrónica 2019 © Javier de Arribas Cámara, 2019 UNIVERSIDAD COMPLUTENSE DE MADRID FACULTAD DE CIENCIAS ECONÓMICAS Y EMPRESARIALES Programa de Doctorado en Economía Servicios públicos, municipalización y privatización en la historia del pensamiento económico: Estudio de caso limpieza viaria de Madrid (S.XV – S.XXI). MEMORIA PARA OPTAR AL GRADO DE DOCTOR CON MENCIÓN INTERNACIONAL PRESENTADA POR JAVIER DE ARRIBAS CÁMARA DIRECTORA Estrella Trincado Aznar MADRID, 2019 RESUMEN Servicios públicos en el pensamiento económico | Resumen Servicios públicos, municipalización y privatización en la historia del pensamiento económico: Estudio de caso limpieza viaria de Madrid (S.XV – S.XXI). Resumen El objetivo de este trabajo es arrojar luz sobre los comportamientos de los agentes e instituciones de los servicios públicos básicos y sus efectos en la propiedad y gestión de los mismos aplicando el marco teórico institucionalista. En este trabajo se analiza la evolución de la relación entre el servicio de limpieza de la ciudad de Madrid, los recursos para poder ejecutar el servicio y los factores político-administrativos y sociales. Para ello se desarrolla la transformación de la limpieza viaria desde el siglo XV, como una imposición, pasando por su transformación en un servicio ejecutado por “obligados” privados que con el transcurso de los siglos terminará convirtiéndose en un servicio básico de propiedad y gestión pública. Con el objeto de identificar las relaciones causales predominantes en los agentes e instituciones la respuesta tanto en el servicio de limpieza viaria como en su relación con el gobierno local. Se trabaja basándose en una división por etapas donde la administración, los trabajadores, las empresas y los ciudadanos van creando y asumiendo características propias que evolucionan junto con los cambios de cada una de ellas (etapas). Para dar luz a estos hechos y mejorar la compresión en el debate sobre la gestión pública o privada de los servicios públicos, se desarrolla un estudio sobre los elementos clave de este concepto y su evolución en Inglaterra, primer lugar donde hace acto de presencia el movimiento municipalista. Palabras Clave: Institucionalismo; Gobierno local; Políticas de salud pública; Historia regional y urbana. JEL Code: B52, H75, I18, N9 Síntesis y conclusiones La presente tesis surge como resultado de los conflictos suscitados por la puesta en marcha del nuevo contrato de limpieza de Madrid. El interés se centra en las dinámicas, interdependencias y conexiones entre distintas instituciones y agencias. Se selecciona el institucionalismo clásico como mejor metodología para arrojar respuestas a las preguntas que se generan. Durante la investigación aparece la necesidad de explicar los elementos que componen el concepto de servicio público y de bien económico por una parte y, por otra, encontrar un origen a las ideas que parecen seguir los agentes y agencias que participan en el proceso evolutivo del servicio de limpieza de Madrid. Por todo lo anterior, se hace necesario el estudio en profundidad de las etapas que marcan el movimiento municipalista en el primer lugar donde se generó, Inglaterra. Finalmente, se puede analizar el caso de la limpieza de Madrid a la luz del desarrollo inglés entablando una conversación/correlación ante los procesos internacionales y el desarrollo local del servicio en Madrid. iii Servicios públicos en el pensamiento económico | Resumen Las preguntas de investigaciones que se plantean son siete y, para poder dar una mejor respuesta, se analizan cuatro preguntas más a lo largo del capítulo 2 y 3. A pesar de su extensión estas preguntas pueden agruparse en (a) la dinámica realidad – teoría en la municipalización y privatización de servicios, (b) la influencia de Chadwick y el higienismo británico, (c) la evolución del servicio de limpieza de Madrid, etapas e influencias, similitudes y diferencias con el caso inglés, (d) los efectos de la ideología y el entorno internacional en las decisiones de privatización o municipalización. Las conclusiones pueden resumirse como (a) existen fases dentro de cada ola, municipalizadora o (re)privatizadora, con elementos propios que impiden, en contra de lo que tradicionalmente se ha postulado, poder tratar cada etapa de forma homogénea. (b) El efecto de Chadwick debe valorarse con respecto al movimiento municipalista inglés y, en un plano distinto, con respecto a Europa continental. La influencia de Chadwick es muy valiosa en el terreno inglés, sin embargo todo este peso no se traslada, por distintos motivos, a los movimientos que surgen en diferentes países de Europa. A pesar de lo anterior, Chadwick sí resulta muy influyente con su teoría de intervención en el mercado a través de la competencia por todo el campo. (c) Se puede realizar una división en dos bloques: se observa que la municipalización se produce de facto en el servicio de limpieza viaria cuando en las etapas anteriores se daba un elevado número de quejas tanto de los trabajadores, como de los ciudadanos y del Ayuntamiento de Madrid. Por otra parte, el transcurso del tiempo había permitido que el consistorio pudiese integrar la actividad dentro de su propia estructura, con gran importancia de las que se tomasen sobre el servicio y alcanzado la madurez suficiente del Ramo de Limpiezas de la Administración Pública, ostentando un gran peso sobre las decisiones para la ejecución del servicio, así como la propiedad de los medios de producción. Por último, el entorno internacional resulta favorable tanto para un incremento del poder de los trabajadores como para la intervención del Ayuntamiento en la ejecución directa del servicio. Desde el final de la etapa de la dictadura y, sobre todo, desde la transición, la propiedad de los medios de producción y la toma de decisiones por parte de las contratas se incrementa paulatinamente (con las primeras privatizaciones). Sin embargo, desde la década de los 90, se incrementan las quejas y se reduce el entorno internacional favorable a las contratas. (d) Las etapas generales superadas por los servicios públicos (sobre todo en el caso inglés) y las acontecidas en el servicio de limpieza de Madrid tienen puntos en común al seguir el esquema 1. Incremento de la tensión entre concesionarios y consumidores. 2. Intento de regulación infructuoso. 3. Incremento de los costes del servicio. Sin embargo, difieren en que en Inglaterra existió un propósito de eliminar tensiones sociales así como un apoyo de las industrias instaladas y un desarrollo autónomo tanto de las instituciones de los servicios públicos como la tecnocratización de dichos servicios. iv EXECUTIVE SUMMARY Servicios públicos en el pensamiento económico | Executive summary Abstract This thesis examines the behavior of agents and institutions in basic public services and its effects on the ownership and management of services. This dissertation presents the evolution of the relationship between the Municipal Street sweeping of Madrid and the resources to run the service and administrative-political and social factors since the creation of the first sweeping service in the 15th century into the 21th century. In order to identify predominant causal relationships, response is estimated in the Municipal Street sweeping and in its relationship with the local government. This thesis works in stages where the public administration, workers, companies and citizens have their own characteristics that evolve along through each stage. To shed light on these facts, and to improve understanding in the debate on the public or private management of public services, a study is being carried out on the key elements and the evolution of this concept in England, the first place where the municipalist movement appears. Key words: Institutional Approach; Local government; Public health policies; Regional and urban history. Synthesis and conclusions This thesis arises as a consequence of the conflicts caused by the new cleaning contract in Madrid. The interest focuses on the dynamics, interdependencies and connections between different institutions and agencies. Classical institutionalism is selected as the best methodology to illuminate answers to the questions that are generated. During the investigation, it was necessary to determine the elements that make up the concept of public service and economic good on the one hand and, on the other hand, to find the origin of the ideas that seem to follow the agents and agencies that participate in the evolutionary process of the cleaning service of Madrid. For all the above, it is necessary to study in depth the stages that mark the municipal movement in the first place where it was generated. Finally, we can analyze the case of the cleaning of Madrid in the light of the English development by establishing an understanding about international processes and the local development of the service in Madrid. There are seven research questions and, for a more thorough understanding, four more questions are analyzed in chapters 2 and 3. Despite their extension, these questions can be grouped into (a) the dynamic reality - theory of the municipalization or privatization of services, (b) the influence of Chadwick
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