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UC Santa Cruz UC Santa Cruz Electronic Theses and Dissertations Title Nudging the State: Economic Hotspots, Societal Coalitions, and State Territorial Reach In Colombia Permalink https://escholarship.org/uc/item/3098h1pq Author Prieto Sanabria, Juan Diego Publication Date 2019 License https://creativecommons.org/licenses/by-nc-sa/4.0/ 4.0 Peer reviewed|Thesis/dissertation eScholarship.org Powered by the California Digital Library University of California UNIVERSITY OF CALIFORNIA SANTA CRUZ NUDGING THE STATE: ECONOMIC HOTSPOTS, SOCIETAL COALITIONS, AND STATE TERRITORIAL REACH IN COLOMBIA A dissertation submitted in partial satisfaction of the requirements for the degree of DOCTOR OF PHILOSOPHY In POLITICS by Juan Diego Prieto Sanabria June 2019 The Dissertation of Juan Diego Prieto Sanabria is approved: Professor Kent Eaton, chair Professor Eleonora Pasotti Professor Benjamin L. Read Professor Sara Niedzwiecki Lori Kletzer Vice Provost and Dean of Graduate Studies This work is licensed under a Creative Commons Attribution-NonCommercial-ShareAlike 4.0 International License by Juan Diego Prieto Sanabria 2019 CONTENTS Contents iii Figures vii Maps vii Tables vii Abstract viii Acknowledgments x 1. Economic Hotspots, Societal Coalitions, and State Territorial Reach: An Introduction 1 1.1. Introduction 1 1.2. Why Sustained State Service Provision (SSSP) Matters and How to Make It Happen 6 1.3. Research Design 11 1.4. Plan of the Chapters 18 2. When Does the State Follow the Money? Explaining Sustained State Service Provision in Rural Economic Hotspots 20 2.1. Introduction 20 2.2. Conceptualizing Sustained State Service Provision 21 From State Capacity to Sustained State Service Provision 22 Public Goods Aimed at Improving Socioeconomic Well-Being 25 Service Delivery Concentrated Within A Given Locality 26 Provision by Agents of the State with Formal Authority 27 Sustained Provision Understood as Lasting Five Years or More 29 2.3. The Determinants of Sustained State Service Provision in Distant Economic Hotspots: What We Know 30 2.4. Making the State Work: A New Theory of Sustained State Service Provision in Economic Hotspots 38 2.5. Who Can Develop Local Ownership of State Power? 40 A Statist Framing 41 Organizational Structures for Collective Action 43 Stable Access to State Elites 45 iii The Mechanism: Offsetting Local Capacity Deficits through Coproduction or Contention 48 2.6. Alternative Explanations: Complementary, Not Competing 52 A (National) State Autonomy Perspective 52 The Role of Sectors: Stationary Bandits, Structural Power, and Materiality 54 The Bellicist Approach 56 3. The Booms and Busts of Oil and State Service Provision in Barrancabermeja 59 3.1. Introduction 59 3.2. A Mostly Absentee State (from Colonial Times to the Mid-20th Century) 66 The Onset of Oil Production, the Formation of the Troco’s Enclave, and an Era of Mostly Private Service Provision 69 Explaining the Absence of State Service Provision 72 3.3. A New Wave of Economic Change under Ecopetrol, A Slow Increase in State Service Provision, and a Growing Civil Society (1951-1975) 78 A Period of Expanding (But Still Mostly Episodic) Services 80 From Forced Quiescence to Incipient Local Ownership of State Power: Barranca’s Growing and Increasingly Diverse Civil Society 84 3.4. The Rise of SSSP Driven by Contentious Local Ownership of State Power (1975-1986) 90 The Development of Local Ownership of State Power by Contentious Claimants 90 SSSP in Barranca: Expanding Access to Water and Neighborhood Formalization 96 Collapsing Local Ownership and Declining State Service Provision 101 3.5. Conclusion 106 4. With and Against the Grain: State Service Provision in Huila’s Rice Region 109 4.1. Introduction 109 4.2. Huila’s Political Economy and the Rise of Agribusiness 117 From Rural Periphery to a Hotspot of Agricultural Modernization 118 The Role of the State in the Huila Flatlands in the Early 20th-Century 125 4.3. First Phase of SSSP: Coproduced Land Improvement under Minimal State Capacity (1936-1943) 131 iv The State Comes to Campoalegre: Land Parcellation, Irrigation, and Then Some 132 Explaining the Onset and Collapse of SSSP around the Llanogrande Parcellation 142 4.4. A Period of Private Initiative and No Local Ownership of State Power (1943-1961) 147 4.5. Second Phase of SSSP: Coproduction with Grains of Contention and the Many Faces of Service Provision (1961-1985) 151 The Return of Producers’ Statist Framing and the Consolidation of State Support for Rice Production in Huila 153 Agrarian Reform (This Time for Real) 155 Explaining the Second Phase of SSSP in Campoalegre and Palermo 163 4.6. By Way of Conclusion 177 5. The Ebbs and Flows of State Service Provision in Eastern Antioquia 180 5.1. Introduction 180 5.2. Eastern Antioquia’s Political Economy and the Advent of Hydropower 185 From Agrarian Crossroads to Colombia’s Powerhouse 186 Hydropower’s Socioeconomic Impact 190 5.3. State (and Non-State) Provision in Eastern Antioquia before CORNARE 192 The Colombian State’s Episodic Provision in Eastern Antioquia before the 1980s 194 State-Owned Enterprises Substituting for the State 195 An Uneven Rural Development Program 206 5.4. A Regional Pocket of Effectiveness: CORNARE 215 Electrifying Eastern Antioquia 219 Environmental Protection through Service Provision: The PRISER Model 225 5.5. Explaining CORNARE’s SSSP in Eastern Antioquia 230 The Slow Development of Regional Elites’ Reluctant Statism 231 From Localized, Company-Centered Protests to the Formation of a Statist Regional Movement 238 5.6. Conclusion 253 6. Conclusion 255 6.1. Summary of the Argument 256 v Statist Ideational Framing 258 Strong Organizational Structures for Collective Action 260 Stable Access to and Influence with State Elites 261 6.2. Further Implications and Directions for Future Research 262 6.3. Local Ownership of State Power and Other Forms of State Action 264 6.4. On the Politics of this Study 268 7. Appendix: Inventory of New Subnational Economies in 20th Century Colombia 270 7.1. Introduction 270 7.2. Inventory 272 7.3. Excluded cases 287 8. References 288 8.1. Works Cited in the Core Chapters 288 8.2. Works Cited in the Appendix 339 vi FIGURES Figure 1.1. Research Design ........................................................................................ 14 Figure 2.1. Local Ownership of State Power: An Illustration of the Argument .......... 40 Figure 2.2. Procuring Basic Resources for Sustained State Service Provision: Four Hypothetical Scenarios ................................................................................................ 49 Figure 3.1. Estimated Population of Barrancabermeja (available years, 1864-1938) . 70 Figure 3.2. Population of Barrancabermeja (census years, 1938-1985) ...................... 80 Figure 3.3. Water Service Coverage in Barrancabermeja’s Urban Area (census years, 1964-1993) ......................................................................................................... 97 Figure 5.1. Access to the Public Electricity Grid in Rural Areas (census years, 1951-1985) ................................................................................................................. 204 Figure 5.2. Access to the Public Electricity Grid in Rural Areas (census years, 1985-2005) ................................................................................................................. 224 MAPS Map 1.1. Case Study Regions in Continental Colombia ............................................ 13 Map 3.1. Municipality of Barrancabermeja in Santander, Colombia ........................ 60 Map 3.2. Urban Area of Barrancabermeja ................................................................. 86 Map 4.1. Municipalities of Campoalegre and Palermo in Huila .............................. 111 Map 5.1. Localities Under Study in Eastern Antioquia ............................................ 182 TABLES Table 3.1. Dimensions of Local Ownership of State Power and the Evolution of State Service Provision in Barrancabermeja ............................................................... 63 Table 4.1. Evolution of State Service Provision in Campoalegre and Palermo (Huila) ........................................................................................................................ 114 Table 4.2. SSSP and Local Ownership Dynamics in Campoalegre and Palermo since 1961 .................................................................................................................. 152 Table 5.1. Evolution of State Service Provision in the Reservoirs Subregion of Eastern Antioquia ...................................................................................................... 184 Table 5.2. Number of Homes Electrified by CORNARE's Rural Electrification Program (1986-1993) ................................................................................................. 223 Table 7.1. Inventory of New Subnational Economies in 20th Century Colombia ... 272 vii ABSTRACT Large-scale investment projects in extractives, industrial agriculture, and power generation continue to be an integral part of most governments’ economic strategies, especially in the global south. Yet such projects—most of which are located in rural areas far from countries’ urban centers of power—are being met with increasing skepticism and opposition by local communities. In response, researchers and policymakers have mostly focused on shorter-term consultation, regulation, and impact mitigation strategies. All of these solutions presuppose the existence of relatively

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