Municipal Development in Ecuador: 2007 Survey of IOM Municipalities
by Mitchell A. Seligson, Ph.D. Vanderbilt University Department of Political Science Nashville, TN 37235 [email protected]
under subcontract with IOM, Quito, Ecuador January, 2008
Municipal Development in Ecuador: 2004-2007 ii Contents
Contents
EXECUTIVE SUMMARY ...... VI INTRODUCTION ...... 1 I. DESCRIPTION OF THE SELECTED CANTONS ...... 3 GEOGRAPHIC LOCATION...... 4 DEMOGRAPHIC PATTERNS ...... 6 Age ...... 6 Family Size...... 9 Marital Status...... 11 SOCIO-ECONOMIC CHARACTERISTICS ...... 13 Income...... 14 Unemployment ...... 16 ETHNICITY...... 18 POLITICAL ORIENTATION ...... 20 CONCLUSIONS ...... 23 II. PARTICIPATION IN LOCAL GOVERNMENT ...... 24 ATTENDANCE AT MUNICIPAL GOVERNMENT MEETINGS ...... 24 ATTENDANCE AT PARISH COUNCIL MEETINGS...... 28 FACTORS AFFECTING PARTICIPATION ...... 29 Gender...... 29 Urbanization ...... 37 Ethnicity ...... 43 Education ...... 45 DEMAND-MAKING...... 46 PARTICIPATION IN BUDGET MAKING...... 50 CARRYING OUT TRANSACTIONS WITH THE MUNICIPALITY...... 52 CONCLUSIONS ...... 54 III. EVALUATION OF MUNICIPAL GOVERNMENT ...... 55 EVALUATION OF MUNICIPAL SERVICES...... 55 SATISFACTION WITH TREATMENT BY MUNICIPAL GOVERNMENT...... 59 DIFFUSE SUPPORT FOR MUNICIPAL GOVERNMENT...... 63 LEGITIMACY OF LOCAL GOVERNMENT...... 71 CONCLUSIONS ...... 80 IV. LOCAL PROBLEMS, EFFICACY AND RESPONSIVENESS...... 82 PERCEIVED LOCAL PROBLEMS ...... 82 CITIZEN PERCEIVED EFFICACY ...... 86 UTILITY OF THE PROBLEM-SOLVING EFFICACY SCALE ...... 97 Optimism over Impact of Citizen Problem Solving ...... 100 RESPONSIVENESS OF THE MUNICIPALITY ...... 102 CONCLUSIONS ...... 111 V. HUMAN TRAFFICKING...... 112 CONCLUSION ...... 123 VI. QUESTIONNAIRE IN SPANISH ...... 124
Municipal Development in Ecuador: 2004-2007 iii Contents
LIST OF FIGURES
FIGURE I-1. LOCATION OF THE 13 STUDIED MUNICIPALITIES IN ECUADOR, PLUS NEW ONES TO BEING ADDED...... 5 FIGURE I-2. GEOGRAPHIC DISTRIBUTION OF THE ORIGINAL 2004 MUNICIPAL SAMPLE...... 6 FIGURE I-3. MEAN AGE OF RESPONDENTS IN SELECTED CANTONS...... 8 FIGURE I-4. AVERAGE NUMBER OF CHILDREN PER RESPONDENT ...... 10 FIGURE I-5. MARITAL STATUS ...... 12 FIGURE I-6. MEAN YEARS OF EDUCATION OF IOM CANTONS ...... 14 FIGURE I-7. MEAN MONTHLY FAMILY INCOME RANGE OF IOM CANTONS ...... 15 FIGURE I-8. UNEMPLOYMENT IN CANTONS (UNEMPLOYED SOMETIME LAST YEAR) ...... 17 FIGURE I-9. ETHNIC SELF-IDENTIFICATION IN IOM CANTONS...... 19 FIGURE I-10. IDEOLOGICAL ORIENTATION: LEFT-RIGHT ...... 22 FIGURE II-1. PARTICIPATION IN OPEN TOWN MEETINGS IN IOM CANTONS ...... 25 FIGURE II-2. PARTICIPATION IN MUNICIPAL MEETINGS IN IOM CANTONS ...... 27 FIGURE II-3. ATTENDANCE AT PARISH COUNCIL MEETINGS IN IOM MUNICIPALITIES ...... 29 FIGURE II-4. PARTICIPATION IN LOCAL GOVERNMENT BY GENDER: 2007 SAMPLE...... 30 FIGURE II-5. PARTICIPATION IN “CABILDOS ABIERTOS” BY GENDER:...... 32 FIGURE II-6. PARTICIPATION IN MUNICIPAL MEETINGS BY GENDER:...... 34 FIGURE II-7. PARTICIPATION IN PARISH COUNCILS BY GENDER: ...... 36 FIGURE II-8. PARTICIPATION IN “CABILDOS ABIERTOS” BY URBANIZATION:...... 38 FIGURE II-9. PARTICIPATION IN MUNICIPAL MEETINGS BY URBANIZATION:...... 40 FIGURE II-10. PARTICIPATION IN PARISH COUNCILS BY URBANIZATION: ...... 42 FIGURE II-11. PARTICIPATION IN “CABILDOS ABIERTOS” BY ETHNICITY:...... 44 FIGURE II-12. DEMAND MAKING ON MUNICIPALITIES...... 47 FIGURE II-13. DEMAND-MAKING ON PARISH COUNCILS...... 49 FIGURE II-14. PARTICIPATION IN MUNICIPAL BUDGET FORMULATION ...... 51 FIGURE II-15. DOING TRANSACTIONS WITH MUNICIPAL GOVERNMENT ...... 53 FIGURE III-1. EVALUATION OF MUNICIPAL SERVICES ...... 56 FIGURE III-2. SATISFACTION WITH MUNICIPAL SERVICES ...... 58 FIGURE III-3. EVALUATION OF TREATMENT BY MUNICIPALITY ...... 60 FIGURE III-4. SATISFACTION WITH TREATMENT BY MUNICIPALITY ...... 62 FIGURE III-5. TRUST IN THE MUNICIPALITY ...... 64 FIGURE III-6. TRUST IN LOCAL GOVERNMENT INSTITUTIONS...... 65 FIGURE III-7. TRUST IN LOCAL VS. NATIONAL INSTITUTIONS...... 66 FIGURE III-8. TRUST IN MAYOR ...... 68 FIGURE III-9. TRUST IN THE MUNICIPAL COUNCIL ...... 70 FIGURE III-10. WHO HAS HELPED MOST TO SOLVE COMMUNITY PROBLEMS? ...... 72 FIGURE III-11. WHO HAS HELPED MOST TO SOLVE COMMUNITY PROBLEMS? IOM CANTONS IN 2004 SAMPLE...... 73 FIGURE III-12. WHO HAS HELPED MOST TO SOLVE COMMUNITY PROBLEMS? IOM CANTONS IN 2005/07 SAMPLES .....74 FIGURE III-13. ALLOCATING RESOURCES TO THE MUNICIPALITY OR TO THE CENTRAL GOVERNMENT...... 77 FIGURE III-14. WHO SHOULD GET MORE RESPONSIBILITY AND FUNDING?...... 77 FIGURE III-15. WHO SHOULD GET MORE RESPONSIBILITY AND FUNDING?...... 78 FIGURE III-16. WILLINGNESS TO PAY MORE TAXES FOR BETTER SERVICE ...... 80 FIGURE IV-1. RESPONDENT IS ABLE TO MENTION A LOCAL PROBLEM WHEN ASKED ...... 88 FIGURE IV-2. EXTENT TO WHICH MUNICIPALITY HAS PROBLEMS: IOM SAMPLE IN 2007 SURVEY ...... 89 FIGURE IV-3. MEAN RESPONSE IN IOM CANTONS TO QUESTION ABOUT EXTENT OF PROBLEMS IN MUNICIPALITY ...... 91 FIGURE IV-4. PERCENT WHO OFFERED A SOLUTION TO THE MUNICIPAL PROBLEM THAT THEY PERSONALLY COULD HELP WITH ...... 93 FIGURE IV-5. PERCENT WHO HAVE DONE SOMETHING TO SOLVE A MUNICIPAL PROBLEM ...... 95 FIGURE IV-6. EFFICACY SCALE ...... 97 FIGURE IV-7. IMPACT OF EFFICACY ON DEMAND-MAKING ON MUNICIPALITY ...... 99 FIGURE IV-8. OPTIMISM THAT COMMUNITY EFFORT CAN SOLVE PROBLEMS ...... 101 FIGURE IV-9. HOW MUCH HAS THE MAYOR OF THIS MUNICIPALITY DONE TO SOLVE CANTONAL PROBLEMS? ...... 103 FIGURE IV-10. HOW MUCH HAS THIS MUNICIPAL COUNCIL DONE TO SOLVE CANTONAL PROBLEMS? ...... 105
Municipal Development in Ecuador: 2004-2007 iv Contents
FIGURE IV-11. HOW MUCH INFLUENCE DO YOU HAVE ON WHAT THE MUNICIPALITY DOES? ...... 107 FIGURE V-1. AWARE OF CASES OF LABOR EXPLOITATION ...... 114 FIGURE V-2. AWARE OF CASES OF SEXUAL EXPLOITATION ...... 115 FIGURE V-3. CHIEF VICTIMS OF LABOR EXPLOITATION: 2007 IOM SAMPLE...... 117 FIGURE V-4. CHIEF VICTIMS OF SEXUAL EXPLOITATION: 2007 IOM SAMPLE ...... 119 FIGURE V-5. KNOWLEDGE OF WHERE TO REPORT ABUSES: 2007 IOM SAMPLE...... 121 FIGURE V-6. EVALUATION OF FIGHT AGAINST TRAFFICKING...... 122
Municipal Development in Ecuador: 2004-2007 v Contents
List of Tables
TABLE I-1. CANTONS (AND THEIR PROVINCES INCLUDED IN PARENTHESES) IN THE SURVEY BY YEAR OF INTERVIEW ..4 TABLE II-1. MEAN EDUCATION OF PARTICIPANTS IN LOCAL GOVERNMENT...... 45 TABLE IV-1. PERCEIVED MUNICIPAL PROBLEMS BY RESIDENTS OF SELECTED IOM CANTONS ...... 83 TABLE IV-2. MUNICIPAL PROBLEMS PERCEIVED BY RESIDENTS OF SELECTED IOM CANTONS (FIRST PROBLEM MENTIONED): RESULTS BY CANTON ...... 84 TABLE IV-3. WHO HAS THE MOST INFLUENCE ON MUNICIPAL DECISION-MAKING? ...... 109
Municipal Development in Ecuador: 2004-2007 vi Contents
Executive Summary
This study attempts to measure the impact of the USAID/IOM project to assist thirteen municipalities in Ecuador. The first study was undertaken in five municipalities in 2004 as a baseline measurement, and a report was written comparing the baseline survey to a national sample. The studies and questionnaires can be accessed on www.lapopsurveys.org. It was accomplished by interviewing a representative sample of adults in each of the five municipalities. In 2005, citizens in those same initial five municipalities were interviewed with an identical set of questions. In 2006, three new municipalities were added to the study and interviews were carried out there. However, in order to economize resources, the 2006 data set was not analyzed; rather, it was archived for analysis at a later date. In October/November 2007, the initial five municipalities plus the three new ones added in 2006 were again subject to study using the same survey questionnaire. In addition, five new municipalities were added, for a total of 13 included in the 2007 round of surveys.
The analysis presented in this the present study provide information about all 13 municipalities. For those included for the first time in 2007, it merely presents data for that single year. For municipalities for which data are available for 2006 and 2007, comparisons are made between the 2006 baseline and the 2007 follow-up. The core of the findings, however, focus on the longer-term data set, the one involving interviews for the baseline set of five municipalities, that were interviewed in 2004, 2005 and again in 2007.
The focus of the analysis, as in prior reports, is in two areas: citizen participation in local government and citizen satisfaction with local government. It is to be noted that the questionnaire contains main variables that were not analyzed in this report, but the data set has been provided to USAID and the IOM so that such analysis could be carried out, if desired.
The substantive results of the study focus largely on the changes 2004, 2005, 2007 for the original five municipalities. The Municipalities first surveyed in 2006 had only one year to “develop” by the resurvey in 2007. What the study finds is an uneven pattern of impact of the program on the variables included in the study. For example, compared to the baseline year of 2004, confidence in all municipal institutions have increased markedly. In 2007, however, there is some erosion of trust, perhaps indicating that the impact of the project is wearing off, or that resources have diminished. This same pattern is found in a number of the variables studied. These results, however, are quite complex and nuanced, because patterns found on one municipality are not necessarily replicated in another.
Municipal Development in Ecuador: 2004-2007 1 Contents
Introduction
This document presents a survey of Ecuadorian municipalities (also called here “cantons” since INEC, the Ecuadorian census bureau classifies them in that manner) selected by USAID for special analysis. The research was performed under the auspices of “El Programa de Desarrollo de la Frontera Norte” implemented by the International Organization for Migration (OIM) with financing from the United Stated Agency for International Development (USAID).
In 2004 an initial set of five cantons were selected and 300 respondents from each were interviewed by surveyors from CEDATOS, a well established public opinion firm based in Quito, Ecuador. In 2005, 300 respondents in each of those same five cantons were interviewed. In 2006, three new cantons were added to the pool by the IOM, and interviews were carried out in them following the template of the 2004 survey. However, because resources were limited, an analysis of the 2006 baseline data was not carried out. Instead, the survey data were put in storage for utilization at a latter date. Finally, in October and November, 2007, an additional five new cantons were added to the mix, and those cantons, along with the prior eight, were each studied with samples of 300 respondents. In total, then, this study includes 13 cantons, with comparisons 2004-2005-2007 for the original five cantons only, and for comparisons 2006-2007 for the new cantons added in 2006.
The 2004, 2005, 2006, and 2007 surveys provide a wealth of information on the residents of those cantons, including their demographic and socio-economic characteristics, the nature of their participation in municipal government activities, their evaluation of their local government, and a wide range of their attitudes and behaviors relating to democratic governance. In this study, we touch only the “tip of the iceberg,” since there are numerous additional ways in which the data could be analyzed. Moreover, in 2008 new national-level data are being gathered by the Latin American Public Opinion Project (LAPOP), which would provide the opportunity of comparisons between the selected cantons and the nation. The 2008 data are not available, but by the Spring of 2008 they should be.
It is important to note that while this study is longitudinal, it was not a “panel design” but was rather a “repeated cross-section design.” This means that while interviews in each year were conducted in the same areas and with the same design, the same individuals were not purposely interviewed, although some might have been by chance.
In the 2004 study, comparisons were made between the five cantons and the nation as a whole. That comparison was made possible by the existence of the LAPOP national sample drawn in 2004, which allowed the placement the five cantons in national perspective. The follow-up study that is described in this report will not make any comparisons to national averages since LAPOP does not have national 2007 data (as noted, the next national study will be conducted in 2008). Rather, it will focus on the new data sets collected in 2006 and 2007, and on comparisons between the 2004, 2005, 2006, and 2007 canton-specific results.
Municipal Development in Ecuador: 2004-2007 2 Contents
Just as we found from the 2004 survey, the subsequent survey data demonstrate that the selected cantons differ from each other in a wide variety of ways. Indeed, some of the cantons added beyond the original five differ quite sharply from some of the others. Some cantons are clearly more developed than others. Some have participant citizens, while others have citizens who are very disengaged from local government. It is important to be aware of these differences when implementing development programs. For example, if a canton in the 2004 survey had high levels of participation compared to the national norm, it would be unrealistic to assume that the level of participation could be raised much further. On the other hand, if starting levels are especially low, one would want to know why and perhaps dedicate special attention to that canton.
This report gives a citizen-eye view of local government. It does not intend, however to present an all-encompassing picture of each of the 13 municipalities, since other methodologies would be required to do that. For example, the survey gathered data on citizen perceptions of municipal finance, but cannot measure the actual status of those finances, which would have to be done by a careful accounting study. The study provides information on citizen perception and citizen behavior and as such gives a client-oriented perspective to the project. That perspective, while limited, is quite important. Little will it serve if the project is successful in making local government more efficient, if citizens do not believe that it is more responsive to their needs and demands.
Finally, it is important to emphasize that only a small portion of the potential relationships that could be analyzed in this report are presented here. We do not know at this juncture which findings presented in the report will be of special interest to USAID, the mayors, their councils or the public. The data base, however, can be used to answer many of those questions, and the author stands ready to respond to them at any time.
N.B. In each of the charts in this report, the extent to which a difference between cantons or between years is statistically significant is illustrated by the “I” markings on each bar of the bar charts. Each “I” shows the confidence interval around each statistic. If two “I”s overlap with each other, this indicates that the difference between the two statistics are not statistically significant.
I. Description of the Selected Cantons
USAID has selected 13 municipal governments in Ecuador that they will help strengthen (see Figure I-1). The present study reports on a baseline survey of residents in the five selected municipalities carried out in July 2004, and a follow-up survey of residents in the same municipalities in October 2005, a subsequent survey of three additional municipalities added in 2006 and a 2007, that added five more municipalities, but also collected interview data from those included in 2004 and added in 2006.
This chapter seeks to provide a general description of the demographic and socio- economic characteristics of the sample. Before the demographic and socio-economic information is presented for the selected cantons, it is important to provide the list of the cantons selected for study, and their sample sizes (Table I-1). Even though the population of these cantons vary, the reader will note that the sample size is identical for each canton. This was done so that it would be possible to compare the cantons one to another with the same degree of statistical precision (in this case, with a confidence interval of approximately ± 4.6%, at the 95% level).1 Thus, the sample is not PPS (Population Proportional to Size), but identical for each canton; identical sample size avoid drawing very small samples from the smallest municipalities, samples so small we could not have confidently talked about the results of each one individually. Compare, for example, Lago Agrio with its population of over 60,000 to Putumayo with its population of only over 6,000. If the sample had been PPS, it would have produce a sample of Lago Agrio some ten times the size of Putumayo. In terms of sample size, this would have produce a sample of about 50 respondents for Putumayo vs. 560 for Lago Agrio. It is also helpful to note the distribution of the selected cantons among the provinces of Ecuador, which are show in Table I-1.
1 The actual confidence intervals vary somewhat because of the use of stratification and clustering. The result is a “design effect” that varies for each of the variables in the study. Municipal Development in Ecuador: 2004-2007 4 Chapter I- Characteristics of Selected Cantons
Table I-1. Cantons (and their Provinces included in parentheses) in the Survey by Year of Interview Year of Canton Interviews Percent Population, interview of all 2001 Census interview s 2004 1 Eloy Alfaro (Esmeraldas) 300 20.0 2 Lago Agrio (Sucumbíos) 300 20.0
3 Putumayo (Sucumbíos) 300 20.0
4 Cascales (Sucumbíos) 300 20.0 5 Joya de los Sachas (Orellana) 300 20.0 Total 1500 100.0 2005 1 Eloy Alfaro (Esmeraldas) 300 20.0 2 Lago Agrio (Sucumbíos) 300 20.0 3 Putumayo (Sucumbíos) 300 20.0 4 Cascales (Sucumbíos) 300 20.0 5 Joya de los Sachas (Orellana) 300 20.0 Total 1500 100.0 2006 6 Río Verde (Esmeraldas) 300 33.3 7 Shushufindi (Sucumbíos) 300 33.3 8 Francisco de Orellana (Orellana) 300 33.3
Total 900 100.0 2007 1 Eloy Alfaro (Esmeraldas) 300 7.7 33,403 2 Lago Agrio (Sucumbíos) 300 7.7 66,788
3 Putumayo (Sucumbíos) 300 7.7 6,171
4 Cascales (Sucumbíos) 300 7.7 7,409 5 Joya de los Sachas (Orellana) 300 7.7 26,363 6 Río Verde (Esmeraldas) 300 7.7 22,164 7 Shushufindi (Sucumbíos) 300 7.7 32,184 8 Orellana (Orellana) 300 7.7 42,010 9 Pindal (Loja) 300 7.7 7,351 10 Calvas (Loja) 300 7.7 27,604 11 Arenillas (El Oro) 300 7.7 22,477 12 San Lorenzo (Esmeraldas) 300 7.7 28,180 13 Archidona (Napo) 300 7.7 18,551 Total 3900 100.0 340,655 Grand total, 4 years 7,800 Source of population data: INEC web page: www.inec.gov.ec
Geographic Location
The map below shows the location of all 13 cantons, as well as new cantons being added in the current program.
Municipal Development in Ecuador: 2004-2007 5 Chapter I- Characteristics of Selected Cantons
Figure I-1. Location of the 13 studied municipalities in Ecuador
Municipal Development in Ecuador: 2004-2007 6 Chapter I- Characteristics of Selected Cantons
The original sample is dispersed over two of the three main regions that constitute the nation: coast (“costa”) and east (“oriente”). The distribution into these two regions, further subdivided by urban and rural, is shown in Figure I-2. Only one of the five municipalities, Eloy Alfaro, lies in the coastal region, while the other four (Cascales, Joya de los Sachas, Lago Agrio and Putumayo) are situated in the north-east (I-e., “oriente”) region.
Geographic distribution of municipal sample
Urban coast
4.7% Rural coast
15.3%
80.0%
North east
Figure I-2. Geographic distribution of the original 2004 municipal sample
Demographic Patterns
Age
The respondents for each survey have been voting-age adults (18 and older). Figure I-3 shows that there is little variation across the years and between cantons in the mean age of respondents. This is helpful for our analytical purposes since it means that on average the respondents do not differ much from each other in terms of this key demographic characteristic. Once again, to alert the reader, the extent to which a difference between cantons or between years is statistically significant is illustrated by the “I” markings on each bar. Each “I” shows the confidence interval around each statistic. If two “I”s overlap with each other, this indicates that the difference between the two statistics are not statistically significant. For example, in the figure below, the “I”s for each year within each canton overlap with each other. This means that
Municipal Development in Ecuador: 2004-2007 7 Chapter I- Characteristics of Selected Cantons
there is no statistically significant difference in the ages of respondents in the 2004, 2005, 2006, and 2007 surveys, within any of the cantons. If, on the other hand, two “I”s do not overlap with each other, this shows that the difference between bars is statistically significant.2
2 The confidence intervals are based on the sample information for each municipality alone. That means that the confidence intervals can be expected to be somewhat wider than if they were based on the pooled sample of all municipalities. Thus, the estimates of significant differences presented here are conservative.
Municipal Development in Ecuador: 2004-2007 8 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities Year of interview 50 2004 2005 2007
40
30
40.8 20 39.1 39.5 37.9 37.5 36.9 37.5 36.8 36.0 36.3 35.6 36.0 36.2 34.6 34.0 Meannumber ofyears of age 10
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New municipalities
Year of interview 50 2006 2007
40
30
39.8 39.7 20 39.2 38.8 38.5 35.9 36.2 35.6 35.3 34.4 33.4
Mean number of years of age 10
0 R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio
Figure I-3. Mean age of respondents in selected cantons
Municipal Development in Ecuador: 2004-2007 9 Chapter I- Characteristics of Selected Cantons
Family Size
The survey asked each respondent (Q12) about the number of children that he or she had. In Figure I-4, it can be seen that family size has remained statistically unchanged in three of the original five cantons. However, it has declined somewhat since 2004 in Putumayo and Joya de los Sachas. In 2006 and 2007, in the new municipalities that were added, there is significant variation between municipalities in the mean number of children per respondents. In Río Verde and San Lorenzo respondents had a mean of 3.8 children in 2007, whereas respondents in all other municipalities had fewer. Calvas had the smallest mean number of children (2.1).
Municipal Development in Ecuador: 2004-2007 10 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities 5 Year of interview 2004 2005 2007 4
3
4.3 2 4.1 3.9 3.7 3.6 3.5 3.2 3.1 3.2 3.1 2.9 3.0 2.8 2.7 2.7 1 Mean number of children Mean number
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New municipalities 5 Year of interview
2006 2007 4
3
2 3.7 3.8 3.8
3.0 2.8 2.9 2.8 2.7 2.4 2.6 1 2.1 Mean number of children
0 R S F P C A S A í h r i a r a r o u a n l e n c sh n d v n h V c a a i L i e i l s l o d r u sc ( la r o d fi L (L s e n e n o o n a d j o ( z (E i d a ja E o ( sm ( e ) ) l N S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s) ío ld s (O a ) s) re l la n a ) Municipio Cases weighted by Weight factor
Error bars: 95% CI Figure I-4. Average number of children per respondent
Municipal Development in Ecuador: 2004-2007 11 Chapter I- Characteristics of Selected Cantons
Marital Status
Closely related to the number of children individuals have is their marital status. The results for the original municipalities and the new municipalities are contained in Figure I-5. The largest groups of respondents in all survey years were married or living in common law unions. However, the percentage of single respondents has increased over time in both the original and new municipalities.3 In addition, there has been a decrease in common law unions in the original and new municipalities. Despite the growth of the single population and decline in common law unions, the fact that most respondents across the survey years have been married or living in common law unions suggests that most of the communities are socially stable and perhaps more likely to engage in active civil society participation than other communities.
3 The difference between 2005 and 2007 in the original municipalities is not statistically significant.
Municipal Development in Ecuador: 2004-2007 12 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities Year of interview 50% 2004 2005 2007 40%
30%
44.1
Percent 41.6 % 20% 37.9 % 37.9 % 35.8 36.2 % % %
10% 19.4 16.5 % 12.7 % % 6.9% 5.2% 5.7% 0% Single Married Common Law Divorced, Separated, or Widowed What is your marital status?
Sample: New muncipalities Year of interview 50% 2006 2007
40%
30% Percent 20% 40.8% 40.9% 35.5%
28.3% 23.5% 10% 19.0%
7.4% 4.6% 0% Single Married Common Law Divorced, Separated, or Widowed What is your marital status?
Figure I-5. Marital status
Municipal Development in Ecuador: 2004-2007 13 Chapter I- Characteristics of Selected Cantons
Socio-Economic Characteristics
One of the most important variables in the study of civil society is education. Each year of this survey project, data were obtained from each respondent on the total number of years of school completed. The comparison of these averages for each canton in each year is shown in Figure I-6. On the whole, there is little variation within municipalities between the years of the survey. Only in Lago Agrio and Joya de los Sachas the mean years of education of the 2007 respondents is significantly higher than in previous years. Respondents in two of the newly participating municipalities stand out compared to the others in having higher levels of education. Pindal and Calvas respondents have an average 10.9 and 11.4 years of education, respectively, which is higher than the other newly participating municipalities. The 2007 survey participants in Río Verde had significantly fewer years of education than respondents in the other new municipalities.
Sample: Original five municipalities 12 Year of interview 2004 2005 10 2007
8
6
9.3 9.5 8.8 9.1 8.5 8.5 8.7 4 8.1 8.3 8.2 7.6 7.9 7.2 7.5 7.5
2 Meannumber of years of education 0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Municipal Development in Ecuador: 2004-2007 14 Chapter I- Characteristics of Selected Cantons
Sample: New muncipalities 12 Year of interview
2006 10 2007
8
6 11.4 10.9 9.5 9.5 9.2 9.0 education 8.8 8.5 8.5 4 7.9 7.2
2 Mean number of years of of years number Mean
0 R S Fr P C A S A ío h a in a re a rc u n d lv n n h V s c a a i L i e h i l s l o d r u s ( las r o d fi c Lo (L e n e n o n a d j o ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s po e c e m r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI
Figure I-6. Mean years of education of IOM cantons Income
The survey also asked about monthly household income (Q10), using a scale that ranged from 0 to 13. The interested reader should consult the appendix of this report to see the specific income ranges in dollars. The results in Figure I-7 show that in all cantons except for Eloy Alfaro, income has risen since the 2004 survey. The results also show that there are significant differences in the income of respondents in some of the newly participating municipalities. Río Verde and San Lorenzo have lower incomes than other municipalities, whereas Francisco de Orellana and Pindal have higher incomes.
Municipal Development in Ecuador: 2004-2007 15 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities Year of interview
2004 2005 6 2007
4
6.6 5.9 5.3 5.3 5.2 5.0 5=$151-$200) 4.9 4.9 4.5 4.5 4.5 4.6 4.2 4.4 2 4.0 Mean income (4=$101-$150, (4=$101-$150, Mean income
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 8 Year of interview
2006 2007 6
4
6.8 6.4 6.1 6.1 5.8 5.3 5.4 4.9 5=$151=$200) 4.7 4.5 2 4.3 Mean income (4=$101-$150, income (4=$101-$150, Mean 0 R S F P C A S A í h r i a r a r o u a n l e n c V s n d v n h h c a a i L i e i l s ll o d r u s ( a r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio
Cases weighted by Weight factor
Error bars: 95% CI Figure I-7. Mean monthly family income range of IOM cantons
Municipal Development in Ecuador: 2004-2007 16 Chapter I- Characteristics of Selected Cantons
Unemployment
Throughout Ecuador, unemployment and underemployment are serious problems faced by the populace. The only statistically significant change within cantons between the 2005 and 2007 surveys took place in Joya de los Sachas. In Joya de los Sachas, after a statistically significant increase in unemployment from 2004 to 2005, it increased further still to 30% in 2007. Measurement of unemployment is complex, because the rates vary by the population based used.4 In the new municipalities, there are large differences between them in rates of unemployment. For example, whereas in 2007 Arenillas and Shushufindi had rates of 33% and 25% respectively, Francisco de Orellana, Pindal, and Calvas had rates of only 6%, 4%, and 3%, respectively.
4 Percentages in Figure I-8 in the 2004 report were slightly different because analysis of the unemployment variable in that report incorporated respondents who said they were students, housewives, or retirees. Forty-three percent gave that response in Eloy Alfaro, 36% in Lago Agrio, 47% in Putumayo, 34% in Cascales, and 40% in Joya de los Sachas. In the 2005 and 2007 reports we have decided to focus on those respondents who are in the paid workforce, and therefore have excluded the students, housewives, and retirees from our calculations of unemployment rates.
Municipal Development in Ecuador: 2004-2007 17 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities Year of interview 50% 2004 2005 2007 40%
30%
20% 35.0 % 29.7 25.9 %
Percent unemployed Percent % 20.4 10% % 18.8 % 16.2 15.5 14.9 % % % 10.2 10.4 11.1 11.4 % % % 8.8% % 7.5% 6.5%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 50% Year of interview
2006 2007 40%
30%
20% 33.4 %
23.4 24.9 24.0 % % % 10% Percent unemployed 15.0 14.2 % % 11.9 11.7 % % 6.0% 4.3% 3.0% 0% R S F P C A S A í h r i a r a r o u a n l e n c V s n d v n h h c a a i L i e i l s ll o d r u s ( a r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a )
Municipio Figure I-8. Unemployment in cantons (unemployed sometime last year)
Municipal Development in Ecuador: 2004-2007 18 Chapter I- Characteristics of Selected Cantons
Ethnicity
Ethnicity, once thought to be largely subsumed by national identity, has reemerged on the world scene as a powerful force. Ethnic identity can play an important role in social organization and disorganization. The 2004, 2005, 2006, and 2007 surveys asked respondents to self-identify their ethnicity. The results are shown in Figure I-5. In all of the survey years, the largest category of respondents identified as “mestizo” or mixed. In the original municipalities, although there was a decline in mixed respondents and increase in black, indigenous, and other respondents between 2004 and 2005, little has changed between 2005 and 2007. In the new municipalities there was a slight decrease in whites and increase in indigenous and “other” respondents between the 2006 and 2007 samples. In short, ethnicity, for the period under study, is very stable.
Municipal Development in Ecuador: 2004-2007 19 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities Year of interview 80% 2004 2005 2007
60%
40% 77.1 % 68.7 69.4 Percent % %
20%
18.4 18.6 14.8 % % % 7.7% 8.8% 7.6% 4.1% 4.4% 0% 04% White Mixed Black Indigenous or Other Do you consider yourself White, Mixed, Indigenous, or Black?
Sample: New muncipalities Year of interview
2006 2007 60%
40%
62.8% 62.7% Percent
20%
21.5% 21.0%
9.4% 8.7% 7.6% 6.3% 0% White Mixed Black Indigenous or Other Do you consider yourself White, Mixed, Indigenous, or Black?
Figure I-9. Ethnic self-identification in IOM cantons
Municipal Development in Ecuador: 2004-2007 20 Chapter I- Characteristics of Selected Cantons
Political Orientation
Political ideology has become far more important in recent years in Latin America in general and Ecuador in particular. Recent research by Seligson has found that although in global perspective Latin Americans are somewhat to the right of world public opinion, the trend has been to move toward the left, however, slightly.5 In Ecuador, the proper role of the state has been at issue for some time, especially in the last few elections. In that sense, political preferences can be important in understanding the character of the cantons that are targets for the municipal development program. In Ecuador, as in much of Latin America, parties and voters differ on the basis of their ideological orientations. One issue domain in which ideological differences are usually very clear-cut is economics. Some Ecuadorians, and the political parties that represent them, favor a largely state-regulated economy, while others favor a far more neo- liberal, laissez-faire position. We tap into these differences with a question that asks respondents to locate themselves along a standard left-right scale of ideology. This question is often found to be difficult for many individuals with limited political sophistication, and not surprisingly in the 2004 IOM sample 43%, did not answer it. In 2005 the percentage of respondents who did not answer the question is still high at 32%. In 2007, in the original municipalities, this percentage of non-response increased to 39%. In the new municipalities, the percentage of “don’t know” responses was 57% in 2006 and 42% in 2007. These results are not surprising, but they do imply that the overall means for this question need to be interpreted with care since such a large proportion of respondents did not answer it.
The ideology scale is the standard one used in most surveys, including the well-known World Values Survey of the University of Michigan. It is a 10-point left-right scale in which 1 = extreme left and 10 = extreme right. As shown in Figure I-6, within almost all of the original cantons individually, respondents in 2005 placed themselves further to the left than respondents in 2004. These differences are especially noteworthy in Putumayo and Cascales, where respondents were at least two full points further to the left in 2005 than in 2004, and in Joya de los Sachas, where respondents were almost one point further to the left in 2005 than in 2004. The only exception to this leftward trend was in Eloy Alfaro, where respondents moved to the right between 2004 and 2005. In 2007, however, municipalities differed in the direction they took. Eloy Alfaro continued to trend toward the right, and Lago Agrio and Cascales continued to move toward the left. Putumayo reversed course. Whereas in 2005 respondents in Putumayo moved leftward, in 2007 they moved rightward. Joya de los Sachas experienced no statistically significant change. In the three new municipalities that were surveyed in 2006 and 2007, there were noticeable shifts leftward over the course of the two surveys. Finally, in 2007 across the eight new municipalities, there are large differences in the ideological self-placement of respondents. Whereas Calvas, Arenillas, San Lorenzo, and Archidona ranged from 4.9 to 5.9, straddling the left-right middle, Rio Verde and Pindal scored as low as 3.3 and 3.7, respectively, much further into the left-end of the continuum. What is especially puzzling is the sharp move to the left in Rio Verde. Further exploration, however, reveals that by far Rio Verde had the
5 Mitchell A. Seligson, “The Rise of Populism and the Left in Latin America,” Journal of Democracy, Volume 18, No. 3 (July, 2007), pp. 81-95. Reprinted and translated into Korean, in The Freedom Review, (No. 8), 2007, pp. 137- 143. Reprinted in Larry Diamond and Marc Plattner, How People View Democracy. Baltimore: Johns Hopkins University Press (forthcoming, 2008).
Municipal Development in Ecuador: 2004-2007 21 Chapter I- Characteristics of Selected Cantons highest proportion of missing data in the survey, especially for 2006. This means that the 2006 data point may be widely unrepresentative of the ideological orientations of the respondents in that canton, whereas the 2007 data point, with less missing data, is likely to be more accurate.
Municipal Development in Ecuador: 2004-2007 22 Chapter I- Characteristics of Selected Cantons
Sample: Original five municipalities Year of interview 8 2004 2005 2007
6
4 right)
6.8 6.7 6.7 6.8 6.1 6.3 6.3 5.3 5.4 5.4 5.1 4.9 4.8 4.5 2 4.1 Mean (1=extreme left, 10=extreme 0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities Year of intervie
2006 6 2007
4
6.2 5.9 5.4 5.4 5.0 5.1 5.1 4.9 4.7
2 3.7 3.3 10=extreme right) 10=extreme Mean (1=extreme left, Mean (1=extreme
0 R S F P C A S A í h r i a r a r o u a n e n c n d lv n h V s c a a i L i e h i l s l o d r u s la o d f c (L ( s re n e in o o L n d o ( a ( d ja j E z ( E i e ) a l o N s (S ) O ( a m u O r E p e c r o s o r e ) m ) a u ll l m a e d b n r a a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor
Error bars: 95% CI
Figure I-10. Ideological orientation: Left-Right
Municipal Development in Ecuador: 2004-2007 23 Chapter I- Characteristics of Selected Cantons
Conclusions
This chapter has painted a portrait of the respondents to the 2004, 2005, 2006, and 2007 surveys in terms of their demographic, socio-economic and political characteristics. Some characteristics of respondents have remained similar since 2004, but others have changed. Specifically, there has been little change within cantons in the ages, years of education (except in Joya de los Sachas and Lago Agrio where respondents’ education increased in 2007), and likelihood of having been unemployed (except in Joya de los Sachas where it increased). However, respondents in the cantons in the 2005 and 2007 surveys were different from those in the 2004 survey in the following ways: they had slightly fewer children, were slightly more likely to be single, and were less likely to be living in common law unions. The leftward ideological swing that was evident between 2004 and 2005 was less apparent between 2005 and 2007, when some of the municipalities continued to move to the left, but one reversed course and another showed no statistically significant change. Yet, the high non-response limits the generalizability of those shifts. Respondents in the 2007 and 2005 survey were likely to earn more income than respondents in the 2004 survey, but this probably reflects inflation rather than a real change in disposable income. Finally, there tends to be a great deal of variation across the new municipalities. For example, in the 2007 survey respondents across the new municipalities differed from each other in age, family size, education, income, unemployment, and political orientation. This is not surprising since the new ones are spread geographically throughout Ecuador, whereas the original group were all clustered in the Northern border region.
The next chapter examines the nature and level of local government participation. That is then followed by an analysis of satisfaction with local government.
II. Participation in Local Government
This chapter reports on citizen participation in local government in the fifteen selected municipalities that are part of the pilot effort in Ecuador. It does so by comparing the responses of residents in these municipalities between 2004 and 2007, for the years that data are available in each municipality.
Attendance at Municipal Government Meetings
Municipalities in Ecuador and elsewhere carry out a wide variety of meetings during the year. Some of those are formal sessions generally held in the county seat, but sometimes located in a local parish, and some are open town meetings, what are known as cabildos abiertos or cabildos ampliados. The wording used to measure attendance at these meetings was: NP1. ¿Ha asistido a un cabildo abierto o cabildo ampliado [reuniones convocadas por el alcalde] durante los últimos 12 meses? (1) Sí [Sigue con MUNIFA] (2) No [Saltar hasta NP1A] (8) No sabe/ no recuerda [Saltar a NP1A]
In order to be certain that we were not missing attendance at regular municipal meetings we added another question focusing directly on regular municipal meetings:
NP1A. ¿Ha asistido a una sesión municipal durante los últimos 12 meses? (1) Sí [Sigue con MUNIFB] (2) No [Saltar a NP1B] (8) No sabe/ no recuerda.
We first examine participation in cabildos abiertos. Although there was a large increase in participation in Lago Agrio and Joya de los Sachas between 2004 and 2005, both of these municipalities experienced a statistically significant decrease between 2005 and 2007, from 19% to 9%, and from 28% to 18%, respectively. In Putumayo, although there was little difference in participation between 2004 and 2005, participation increased sharply in 2007, from 11% in 2005 to 25% in 2007. In the new municipalities, there is a great deal of variation in participation, ranging in 2007 from Calvas and Pindal on the low end, at 4% and 6% respectively, to Archidona and Arenillas on the high end, at 20% and 14%, respectively. Although Francisco de Orellana had a 30% reported participation rate in 2006, in 2007 this fell to 9%. Rio Verde also experienced a decline in participation.
Municipal Development in Ecuador: 2004-2007 IOM Survey 25 Chapter II: Participation in Local Government
Sample: Original five municipalities Year of interview 40% 2004 2005 2007
30%
20%
28.2 % 24.7 %
10% 18.7 17.8 16.2 % 15.8 % % 13.9 % 13.5 12.6 % % 10.9 10.6 %
% attendingcabildos abiertos 9.8% 9.0% % % 7.6% 5.6%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 40% Year of interview
2006 2007
30%
20%
abiertos 29.9 %
20.0 10% % 14.9 13.5
% attending cabildos cabildos % attending % % 9.5% 9.6% 7.8% 8.6% 6.8% 5.7% 3.6% 0% R S F P C A S A í h r i a r a r o u a n e n c n d lv n h V s c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure II-1. Participation in open town meetings in IOM cantons
Just as participation in open town meetings increased in Lago Agrio between 2004 and 2005, and then decreased in 2007, Lago Agrio experienced a similar pattern with respect to participation in municipal meetings. In Lago Agrio participation in municipal meetings dropped from 16% in 2005 to 7% in 2007. In Eloy Alfaro and Putumayo, in contrast, there were sharp
Municipal Development in Ecuador: 2004-2007 IOM Survey 26 Chapter II: Participation in Local Government
increases in participation since 2005, from 7% to 17%, and from 10% to 21%, respectively. In the new municipalities, participation among 2007 respondents ranged from 17% in Archidona to 5% in Shushufindi. Respondents in Francisco de Orellana and Rio Verde, similar to their participation in cabildos abiertos, reduced their participation in municipal meetings between 2006 and 2007.
These patterns are difficult to explain, but we have a theory regarding the original five municipalities. Our suspicion is that the initial effort and excitement about the projects may have helped to stimulate participation on the part of citizens. The came out to “have a look.” Once the novelty wore off, however, “normalcy” returned and levels of participation declined. Examining particular cantons, and focusing on attendance at municipal meetings, Lago Agrio’s pattern seems to follow this explanation. So does Cascales, but the increase in 2005 was not significant, so we can’t make too much of it. On the other hand, Eloy Alfaro and Putumayo show a very different pattern. In both of those cantons, the real increase occurs in 2007, a sharp change from prior years. This pattern would suggest that in those cantons the program may have had a slow start or there may have been a change in staffing or approach. Only those closely involved with the project would know. In Joya de los Sachas, what we see is the large increase between 2004 and 2005, but an insignificant erosion in 2007.
Overall, then, for the original five cantons, three of them (Eloy Alfaro, Putumayo and Joya de los Sachas) show significant increases in 2007 from their starting levels in 2004. Of the remaining two, Lago Agrio showed an initial dramatic spurt and then decline, whereas Cascales began quite high and had remained there throughout the course of the project. It may well be that high starting levels mean that the room for growth is limited and it is difficult to expect much more. Yet, the very high levels in Joya de los Sachas suggests that even higher levels can be obtained.
In the five new municipalities added in 2007, we find low to modest initial levels in all but Archidona, which has quite high initial levels of municipal meeting attendance. In the three added in 2005, we find modest to low levels, with indications of decline in all of them, but especially in Francisco de Orellana. The decline is so steep that it is tempting to speculate that there was some unique event in that canton in 2005 that may have artificially boosted municipal participation (a change in mayors, an important controversy?).
All of these results suggest that the only proper way to interpret them would be to involve directly the project teams so that they can discuss the particulars of each municipality and the explanations for the patterns that have emerged.
Municipal Development in Ecuador: 2004-2007 IOM Survey 27 Chapter II: Participation in Local Government
Sample: Original five municipalities Year of interview 30% 2004 2005 2007
20%
21.5 20.5 % % 19.8 10% % 17.2 16.7 % 15.5 % 15.3 % 14.4 % % 11.4
% attending municipal meetings municipal % attending % 10.2 % 9.7%
7.1% 6.6% 6.5% 6.4%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 40% Year of interview
2006 2007
30%
20% meetings 25.4 %
10% 17.0 13.4 % % 12.1 % attending municipal % 9.0% 8.7% 7.1% 7.1% 6.9% 6.1% 5.3% 0% R S F P C A S A h r i a ío a n a re rc u n d lv n n h V s c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure II-2. Participation in municipal meetings in IOM cantons
Municipal Development in Ecuador: 2004-2007 IOM Survey 28 Chapter II: Participation in Local Government
Attendance at Parish Council Meetings
In Ecuador, Article 228 of the Constitution provides for “juntas parroquiales” which are local parish associations connected, at least in theory, to the cantonal municipal government. These parish councils are newly founded, emerging when the most recent code was approved in October 2000. Surprisingly, this is clearly the most popular of the levels of local government, since a far higher percentage of respondents attended these meetings than those of the municipality itself. Participation in parish meetings has risen dramatically in each of the survey years in Eloy Alfaro and Joya de los Sachas. It also rose in Cascales between 2005 and 2007, even though it did not between 2004 and 2005. However, in Lago Agrio it showed an insignficant decline. In Putumayo, however, the sharp growth experienced between 2004 and 2005 reversed course in 2007, declining 37% to 18%, respectively. Participation in the new municipalities in 2007 ranged from 47% in Río Verde to 9% in Pindal, with no significant changes in the 2006-07 comparisons. Overall, the parish councils are very popular venues for local participation.
Sample: Original five municipalities Year of interview
2004 2005 2007
60%
40%
59.5%
46.6% 43.4% 20% 36.5% 37.3% 33.5% 31.1% 31.2% % attending% parish council meetings
25.3% 23.4% 20.4% 21.0% 16.8% 17.7% 17.5%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los Sachas (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Municipal Development in Ecuador: 2004-2007 IOM Survey 29 Chapter II: Participation in Local Government
Sample: New muncipalities 60.0% Year of interview
2006 50.0% 2007
40.0%
30.0%
46.6 meetings % 20.0% 40.0 38.5 % % 32.1 28.5 % 27.6 25.0 % % 24.0 % 21.8 % 10.0% 17.6 % % 9.0% % attending parish% attending council 0.0% R S F P C A S A r ío h a in a re a rc u n d lv n n h V s c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o n a d j ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure II-3. Attendance at parish council meetings in IOM municipalities
Factors Affecting Participation
In order to determine which factors affect participation, we ran several multiple regression analyses. Based on those results, we determined that the relationships between participation and gender, urbanization, and ethnicity were the most relevant.
Gender
In a national study of democratic values and behaviors carried out by LAPOP in Ecuador it was found that females participated at levels far lower than those of men. This is a common, but not universal finding in Latin America. For example, the gender gap is very wide in Guatemala, but quite narrow in Nicaragua and Costa Rica. Is there a gender gap in the thirteen IOM cantons? In the 2007 survey, similar to the 2005 survey, on average in the original and new municipalities, women reported participating at lower rates than men in cabildo abiertos and municipal meetings. In parish council meetings, however, the gap between men and women was not statistically significant (see Figure II-4 below). This suggests that as the cost of participation for women declines, their participation goes up. Women who are mothers and caring for their children would have a hard time leaving the home for many hours at a time to attend a meeting in the county seat (cabacera cantonal), but a neighborhood meeting is far more accessible to them.
Municipal Development in Ecuador: 2004-2007 IOM Survey 30 Chapter II: Participation in Local Government
Sample: Original five municipalities Have you attended a 50% cabildo abierto in last 12 mths? Have you attended a m session in last 12 mths? Attended a parish counc meeting in last 12 mths? 40%
30%
20% 39.1% 35.1% % attending meetings 10% 19.9% 20.3%
11.4% 11.5%
0% Male Female Gender
Sample: New muncipalities Have you attended a 40% cabildo abierto in last 12 mths? Have you attended a m session in last 12 mths? Attended a parish counc meeting in last 12 mths?
30%
20%
27.9% 24.8%
% attending meetings % attending 10%
11.7% 11.5%
7.4% 6.6%
0% Male Female Gender
Figure II-4. Participation in local government by gender: 2007 sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 31 Chapter II: Participation in Local Government
These same data can be examined at the level of the individual cantons in the 2007 sample. The results for the cabildo abierto question are shown in Figure II-5. In the overall sample, where the N is large, the aggregate male/female differences are statistically significant. Within the smaller municipal samples, however, the gender differences are statistically insignificant in most of the original and new municipalities. Despite the lack of statistical significance, the raw percentages indicate that the pattern is for females participate at lower levels than males in 10 of the 13 municipalities; Rio Verde, Francisco de Orellana, and Calvas are the exceptions to this trend. However, in none of those cases is the difference significant, so it cannot be said that females participate more in them.
Municipal Development in Ecuador: 2004-2007 IOM Survey 32 Chapter II: Participation in Local Government
Sample: Original five municipalities Gender 40% Male Female
30%
20%
27.9%
21.5% 21.1% 10% 19.0% 18.5% 14.5% 12.8%
% attending cabildos abiertos 8.8% 6.3% 5.4%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 40% Gender Male Female
30%
20% abiertos
25.4 % 10% 19.2 % 14.0 14.7 % attended cabildos cabildos % attended % % 9.0% 7.4% 8.2% 7.4% 8.2% 7.8% 8.0% 6.2% 5.4% 3.7% 3.4% 3.8% 0% R S F P C A S A í h r i a r a r o u a n l e n c n d v n h V s c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o ( s ( e ) ) N m S O O (E a u r ro s p e c e ) m o ra u l ) l m la e d n r a b a a s ío ld ) s ( a ) O s re ) l la n a )
Municipio Figure II-5. Participation in “cabildos abiertos” by gender: Comparisons of cantons in 2007 sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 33 Chapter II: Participation in Local Government
The comparisons of participation in municipal meetings at the level of the canton are presented in Figure II-6. Here, similar to cabildos abiertos, although gender differences in participation are statistically significant when all of the 2007 survey participants are averaged together, an examination of each canton separately reveals that there is a statistically significant gender difference only in Putumayo, Cascales, Shushufindi, and Pindal. Only in Francisco de Orellana is the pattern reversed, but once again the difference is not significant.
Municipal Development in Ecuador: 2004-2007 IOM Survey 34 Chapter II: Participation in Local Government
Sample: Original five municipalities Gender 40% Male Female
30%
20%
26.9%
21.8% 22.8% 10% 21.0% 16.9% 13.6% 14.3%
8.9% 9.0% % attending municipal meetings 4.2% 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 30% Gender
Male Female
20%
22.5 meetings % 10% 16.3 % 13.2 % 11.8 10.0 % % % attending municipal municipal % attending 9.0% 7.3% 8.1% 7.8% 8.0% 8.0% 6.4% 5.8% 4.9% 4.4% 1.9% 0% Rí S F P Ca Ar S Ar h r i o a n e a c u n d lv n n h Ve s c a a i L i h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e ) m o ra u l ) l m la e d n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor
Error bars: 95% CI Figure II-6. Participation in municipal meetings by gender: Comparisons of cantons in 2007 survey
Municipal Development in Ecuador: 2004-2007 IOM Survey 35 Chapter II: Participation in Local Government
We now take a final look at the impact of gender by examining participation in parish councils. The results are shown in Figure II-7. In the 2007 survey, the only statistically significant differences in the likelihood of men and women participating in parish meetings were in Río Verde and Pindal, where men participated more than women. Even so, differences are sharp in some cantons, such as Lago Agrio, with men participating at the rate of 30.9% and women at only 19.9%.
Municipal Development in Ecuador: 2004-2007 IOM Survey 36 Chapter II: Participation in Local Government
Sample: Original five municipalities Gender 80% Male Female
60%
40%
meetings 62.5% 56.6%
48.3% 44.7% 20% 38.6% 36.0% 30.9% % attending% parish council 19.9% 19.7% 15.4%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities Gender
Male 60% Female
40%
55.0
meetings %
20% 38.7 % 32.5 30.2 31.8 26.9 % % 29.0 27.1 % % 26.2 % 21.7 22.0 % 20.7 % 18.7 % % 14.9 16.5 % % % % %attending parish council 3.4% 0% R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s la o d f c (L ( s re n e in o o L n a d j o (E z (E i d a ja o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure II-7. Participation in parish councils by gender: Comparisons of cantons in 2007 Survey
Municipal Development in Ecuador: 2004-2007 IOM Survey 37 Chapter II: Participation in Local Government
Urbanization
In the 2007 survey, as in the 2005 survey, there are no statistically significant differences between urban and rural respondents in their likelihood of participating in cabildos abiertos (see Figure II-8) among the original set of cantons, but in the new sample of 2007, there is a difference in Archidona (Napo). Normally participation is higher in local government in more rural areas, but in the IOM cantons the term “urban” does not really mean what most readers might think it does. These cantons are not large cities, but rural villages and towns with an urban component. From the point of view of the census bureau, these non-rural areas are considered urban, but they should not be confused with major urban concentrations in cities such as Quito.
Municipal Development in Ecuador: 2004-2007 IOM Survey 38 Chapter II: Participation in Local Government
Sample: Original five municipalities Area 40% Urban Rural
30%
20%
26.2% 23.9%
10% 18.7% 16.7% 13.7% 13.5% 13.6% 12.4% 12.8% % attending cabildos abiertos 6.4%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 40% Area
Urban Rural
30%
20% abiertos 26.8 %
10% 16.7 %
% attending cabildos 12.7 11.6 10.9 % 10.6 9.8% % % % 7.3% 7.5% 7.6% 8.5% 5.7% 4.7% 4.5% 5.2% 0% R S F P C A S A í h r i a r a r o u a n l e n c V s n d v n h h c a a i L i e i l s ll o d r u s ( a r o d fi c L (L s e n e n o o o n a d j (E z (E i d a ja o ( e ) l N s (S ) O ( a m u O r E p e c r o s o r e ) m ) a u ll l m a e d b n ra a í a s o ld ) s ( a ) O s re ) l la n a ) Municipio
Figure II-8. Participation in “cabildos abiertos” by urbanization: Comparisons of cantons in 2007 survey
Municipal Development in Ecuador: 2004-2007 IOM Survey 39 Chapter II: Participation in Local Government
We next look at attendance at municipal meetings. The results for the urban/rural comparisons are shown in Figure II-9. Here we find again that there is no statistically significant difference between urban and rural respondents in their likelihood of participating in meetings, except in Archidona. In that canton, 10% of urban respondents have participated in meetings, compared to 23% of rural respondents.
Municipal Development in Ecuador: 2004-2007 IOM Survey 40 Chapter II: Participation in Local Government
Sample: Original five municipalities Area 40% Urban Rural
30%
20%
26.9% 24.9%
10% 18.8% 17.1% 16.8% 15.9% 14.3% 15.3% 10.2% % attending municipal meetings 3.9% 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 30% Area Urban Rural
20%
22.8 meetings % 10%
12.4 10.9 11.5 10.7 % % 10.0 9.5% % % % attending municipal 8.7% % 7.3% 6.9% 6.3% 5.2% 6.0% 5.9% 4.2% 3.5% 0% R S F P C A S A í h r i a r a r o u a n e n c n d lv n h V s c a a L e h l s il o id r u is la o d f c (L ( r e i L s e n n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure II-9. Participation in municipal meetings by urbanization: Comparisons of cantons in 2007 Sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 41 Chapter II: Participation in Local Government
The last examination of urbanization focuses on the parish councils. Here, as in the 2004 and 2005 surveys, the differences between urban and rural, as shown in Figure II-10, are sharp. Moreover, in almost every canton participation in these councils is heavily dominated by rural areas. Apparently, in parish council meeting participation, unlike in municipal and cabildo abierto participation, there is a wide urban/rural gap. The important point is that unlike what some people assume, it is rural areas where participation is the highest.
Municipal Development in Ecuador: 2004-2007 IOM Survey 42 Chapter II: Participation in Local Government
Sample: Original five municipalities Area 100% Urban Rural
80%
60% meetings 40% 74.0 68.1 % % 58.5 %
41.9 20% % % parish attending council 24.0 18.6 18.0 17.3 % % 13.6 % % 12.8 % % 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 80% Area Urban Rural
60%
40%
62.7 63.1 meetings 56.3 % % 57.6 % 53.2 % %
20% 35.5 28.3 % %
13.4 12.9 12.7 10.3 % attending parish council 9.5% 9.9% % % % 6.8% 9.0% % 3.8% 0% R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s la o d f c (L ( s re n e in o o L n a d j o ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio
Figure II-10. Participation in parish councils by urbanization: Comparisons of cantons in 2007 sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 43 Chapter II: Participation in Local Government
Ethnicity
As we found in Chapter I, Ecuadorians self-identify into several major ethnic groupings. Does ethnicity play a role in participation? We examine participation in the cabildo abierto. In the 2007 data, as in 2005 and 2004, the reliability of the results regarding ethnicity is affected by small samples of certain ethnic groups. For example, the 2007 mean scores in Eloy Alfaro are not reliable because there were only ten self-identified “white” respondents and no respondents of indigenous or other ethnicity. Similarly, 2007 results for Cascales are not reliable because there was only one black respondent. Means are not reliable when the sample is very, very small. Nevertheless, Figure II-11 below indicates that differences in participation between ethnic groups are not statistically significant in any of the thirteen cantons (confidence bars are not show in the graphs because several of them extend below the X axis because of the small sample sizes).
Municipal Development in Ecuador: 2004-2007 IOM Survey 44 Chapter II: Participation in Local Government
Sample: Original five municipalities Ethnicity
40% White Mixed Black Indigenous or Other
30%
39.9 20% %
31.8 %
25.3 25.0 % attending a cabildo abierto 24.5 % % %
10% 18.3 17.2 % 17.6 % 16.3 % % 14.0 13.8 13.8 % 12.9 % % %
9.2%
6.9%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los Sachas (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) (Orellana) Municipio
Cases weighted by Weight factor
Sample: New muncipalities
50% Ethnicity White Mixed Black 40% Indigenous or Other
30%
46 % 40 20% %
27 % 25 % 20 10% 19 % % 15 % % attending cabildos abiertos 12 11 10 10 10 11 % % 9% % % % % 8% 7% 7% 7% 5% 3% 4% 4% 0% R S F P C A S A í h r i a r a r o u a n l e n c V sh n d va n h e c a il L id r u isc l s la o o d f (L ( s re n e in o o L n o ( a ( d d ja j E z ( E i e ) a l o N sm (S ) O ( a u O r E p e r o sm c e ) o ra u l ) l m la e d b n ra a í a s) o ld s) ( a O s) re l la n a ) Municipio
Cases weighted by Weight factor
Figure II-11. Participation in “cabildos abiertos” by ethnicity: Comparisons of cantons in 2007 (note small N among Indigenous and Black makes the means unreliable)
Municipal Development in Ecuador: 2004-2007 IOM Survey 45 Chapter II: Participation in Local Government
Education
Education has distinct associations with participation in local government depending on the types of meeting participants are attending. Across all years of the survey, participants in cabildos abiertos and municipal meetings tended to be more highly educated than non- participants, though these differences with respect to cabildos abiertos were not statistically significant in 2004 and 2006. Participation in parish councils was characterized by the opposite trend: across all survey years, participants tended to be less well educated than non-participants, though these differences were not statistically significant in 2004, 2005, nor the original municipalities in 2007. This is certainly an interesting pattern. That is, higher education is associated with higher levels of participation in those municipal events that are related to canton- wide institutions, whereas lower education is associated with higher participation in neighborhood activities. This finding is consistent with earlier work in the political participation field in political science that identifies “specialist” in different types of participation. For example, there are those who “specialize” in voting, while others “specialize” in community groups. Apparently, parish councils are more likely to attract individuals with a somewhat lower level of education than local government activity at related to the central administration of municipal government.
Table II-1. Mean Education of Participants in Local Government Participant Non- Participant Non- Participant Non- in participant in participant in parish participant cabildos in municipal in councils in parish abiertos cabildos sessions municipal councils abiertos sessions Original 8.47* 8.11* 8.86 8.07 7.87* 8.22* municipalities 2004 Original 9.22 7.96 9.03 8.02 7.94* 8.28* municipalities 2005 New 8.99* 8.51* 9.34 8.44 8.09 8.88 municipalities 2006 Original 9.24 8.57 9.57 8.53 8.40* 8.75* municipalities 2007 New 10.69 9.15 10.70 9.17 8.81 9.48 municipalities 2007 *Differences in education between participants are not statistically significant in the cells marked by asterisks.
Municipal Development in Ecuador: 2004-2007 IOM Survey 46 Chapter II: Participation in Local Government
Demand-Making
Attending meetings can be a passive experience, sometimes involving little more than socializing with friends. Demand-making is a more active way of participating in local government. The 2004, 2005, 2006, and 2007 surveys asked the same question (NP2):
NP2. ¿Ha solicitado ayuda o ha presentado una petición a alguna oficina, funcionario, concejal o síndico de la municipalidad durante los últimos 12 meses? (1) Sí (2) No (8) No sabe/ no recuerda
The large gains in demand-making in some of the original cantons between 2004 and 2005 were not repeated between 2005 and 2007. Whereas in Putumayo the percent of respondents making demands on local government increased from 7% in 2004 to 22%, in 2005 and in Lago Agrio it increased more than two-fold, from 10% to 25%, in 2007 demand making in both of these municipalities declined, though in Putumayo the drop was not a statistically significant change compared to 2005. Among the new municipalities in 2007, there was a broad range of demand making, from 9% in Francisco de Orellana, to 25% in Arenillas. Three of the new municipalities added in 2007 are especially high in demand-making. The comparisons of the 2004 and 2005 samples within the municipalities are shown in Figure II-12.
Municipal Development in Ecuador: 2004-2007 IOM Survey 47 Chapter II: Participation in Local Government
Sample: Original five municipalities Year of interview 40% 2004 2005 2007
30%
20%
25.3 % 22.2 % 19.6 18.9 10% % 18.7 18.6 % % %
12.3 11.4 12.0
% making demands on municipality on demands % making 11.3 % 10.5 % % 10.1 % 9.2% % % 7.8% 7.2%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 30% Year of interview
2006 2007
20%
24.9 23.3 22.6 % % %
municipality 10% 17.9 % 16.2 15.2 % % 12.9 13.0 % 10.2 %
% making demands on % 8.4% 9.3%
0% R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Figure II-12. Demand making on municipalities
Municipal Development in Ecuador: 2004-2007 IOM Survey 48 Chapter II: Participation in Local Government
The survey included an item (NP2A) about demand-making at the level of the parish council. The results are presented in Figure II-13. In all five original cantons, the 2007 levels were higher than the 2004 starting points. Although in three of the cantons, demand- making on parish councils increased between 2004 and 2005, this trend was not sustained in 2007. In Putumayo, the percent of respondents who had made demands on their parish council rose from just 3% in 2004 to 27% in 2005, but fell back sharply to 7% in 2007. In Joya de los Sachas demand making rose from 3% to 10%, and continued the trend to 12% in 2007. In Lago Agrio demand-making on parish councils rose from 7% in 2004 to 18% in 2005, but dropped to slightly 16% in 2007, a decline that was not statistically significant. Eloy Alfaro saw a sharp increase between 2005 and 2007. Although demand-making increased little in Eloy Alfaro between 2004 and 2005, it rose from 10% in 2005 to 20% in 2007. In Francisco de Orellana, one of the new municipalities, demand-making on parish councils dropped from 18% in 2006 to 10% in 2007, but that decline was not significant.
Municipal Development in Ecuador: 2004-2007 IOM Survey 49 Chapter II: Participation in Local Government
Sample: Original five municipalities Year of interview 40% 2004 2005 2007
30%
20% councils
26.5 %
19.6 10% % 17.7 % 16.3 % 10.7 11.5 10.0 10.1 % % making demands on parish parish on demands making % 9.6% 9.5% 9.0% % % % 7.4% 6.5% 2.9% 3.4% 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 30% Year of interview
2006 2007
20%
24.1 %
10% 18.2 16.2 % parish councils % 15.2 12.4 % 11.1 11.2 % 10.4 10.1 11.0 % % % % % making demands on demands on % making 8.3% %
0% R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L id e h i l s l o r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u ll ) ) a m a e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio
Figure II-13. Demand-making on parish councils
Municipal Development in Ecuador: 2004-2007 IOM Survey 50 Chapter II: Participation in Local Government
Participation in Budget Making
Perhaps the most politically significant form of participation in local government is participation in budget-making. We asked about this (MUNI5) in the 2004, 2005, 2006, and 2007 samples, but this is a rare form of participation. In 2004 1% of the IOM respondents had participated in budget-making, in 2005 and 2006 3% had done so, and in 2007 5% of respondents in the original municipalities had done so, indicating a trend in the right direction, even if the percentages are low. Among those in the new municipalities, 2% of them had done so. As is shown in Figure II-14, there was little statistically significant change within the individual most of the municipalities between 2004 and 2007 in the percentage of respondents who had participated in budget making, but the changes were almost all in a positive direction. Putumayo actually had a statistically significant increase in participation in budget making between 2005 and 2007. There are two exceptions to this upward trend. In Lago Agrio, although participation increased between 2004 and 2005, there was a statistically significant decrease in participation 2007. Participation also decreased in Francisco de Orellana between 2006 and 2007, though the change was not statistically significant.
Municipal Development in Ecuador: 2004-2007 IOM Survey 51 Chapter II: Participation in Local Government
Sample: Original five municipalities Year of interview 12% 2004 2005 2007 10%
8%
6%
8.8 4% % 6.8 % 5.6 % 4.9 4.1 % 2% % 3.4
budget formulation 2.4 2.4 % 2.0 2.3 1.8 % % % % % 0… 0… 0… 0% … % participating in municipal %
-2%
Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 10% Year of interview
2006 2007 8%
5%
6.4% 2% 4.9%
2.5% 2.4% 2.1% 2.4% 1.5% 1.5% 1.1% budget formulation budget 0.8% 0.9% 0% % participating in municipal in % participating
R S F P C A S A í h r i a r a r o u a n e n c n d lv n h V s c a a i L i e h i l s l o d r u s la o d f c (L ( s re n e in o o L n a d j o ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure II-14. Participation in municipal budget formulation
Municipal Development in Ecuador: 2004-2007 IOM Survey 52 Chapter II: Participation in Local Government
Carrying out Transactions with the Municipality
The final form of participation that is examined in this chapter is the carrying out of business with the municipality. Local governments provide a wide variety of services to residents that require a trip to the county seat to ask for a permission form, a waiver, proof of tax payment, etc. We asked (MUNI8) about these kinds of activities, the results of which are presented in Figure II-15. In every canton except Lago Agrio, the 2007 levels of participation were higher than the initial levels of 2004. Although between 2004 and 2005 the percentage of respondents who had conducted a transaction in their county seat rose in Lago Agrio and Cascales, from 24% to 36% and from 26% to 37%, respectively, this trend was not sustained in 2007. Lago Agrio experienced a statistically significant drop in the percentage of respondents who made a transaction, and Cascales experienced a drop that was not statistically significant. Joya de los Sachas, although it did not experience an increase in transactions between 2004 and 2005, experienced a large increase between 2005 and 2007, from 25% to 44%. In the new municipalities between 2006 and 2007, Shushufindi experienced an increase in participation from 14% to 26%, but Francisco de Orellana experienced a decrease from 37% to 14%.
Municipal Development in Ecuador: 2004-2007 IOM Survey 53 Chapter II: Participation in Local Government
Sample: Original five municipalities Year of interview 50% 2004 2005 2007
40%
30%
43.5 % 20% 36.9 35.5 % %
% doing a transaction 28.8 % 25.9 25.4 24.3 23.7 % % % % 22.6 22.3 % % 10% 19.2 % 16.3 13.6 % 12.2 % % 9.2%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 50% Year of interview
2006 2007 40%
30%
20% 36.5 % 34.9 % 27.3 28.2 25.7 % % % 21.9 19.1 % 10% % 16.8
% doing a transaction 14.3 14.2 14.4 % % % %
0% Río Verde (Esmeraldas)S Fra Pindal (Loja) Calvas A San Loren A hu ren rch sh nci ill idon uf sc ( as (El Oro) in o d Lo a ( di ja z ( e Ore o (Esmeraldas) Na S ) uc po) um llan b ío a ( s) Or ellan
a)
Municipio Figure II-15. Doing transactions with municipal government
Municipal Development in Ecuador: 2004-2007 IOM Survey 54 Chapter II: Participation in Local Government
Conclusions
This chapter has highlighted differences between 2004, 2005, 2006, and 2007 in levels of citizen participation with local government. It has looked at a variety of ways in which citizens interact with their governments, both at the municipal and sub-municipal levels. The results show that some of the municipalities that experienced an increase in participation between 2004 and 2005 did not sustain this growth in 2007, especially Joya de los Sachas and Lago Agrio. Other municipalities, however, which did not experience increased participation between 2004 and 2005, did see an increase in participation in 2007. Finally, respondents in the new municipalities reported a wide range of variation in participation rates.
III. Evaluation of Municipal Government
Thus far, we have seen in some detail the ways in which Ecuadorians in the 13 selected cantons interact with their local government. We now turn to their evaluations of those governments at the start of the IOM project before inputs had been made, and compare them to evaluations made one year later. There are several variables that allow us to carry out this evaluation.
Evaluation of Municipal Services
A basic question we have asked in Ecuador and in other countries in Latin America that forms part of the Latin American Public Opinion Project is the following:
SGL1. ¿Diría usted que los servicios que el municipio está dando a la gente son ...? (1) Muy Buenos (2) Buenos (3) Ni buenos, ni malos (4) Malos (5) Muy Malos (8) No sabe
This is a very general item and can give us a good sense of the respondents’ overall evaluation of those services.
The first noticeable change between 2004 and later years relates to the “don’t know” response to this question. In 2004, 17% of the IOM sample responded that they did not know whether the services the municipality provided were good or bad. In the 2005 and 2007 original municipalities, in contrast, only 4% and 6%, respectively, gave the “don’t know” response. In the new municipalities in 2006 and 2007, respectively, 3% and 4% said “don’t know.” This suggests that IOM residents have become more informed than they were in 2004 about the activities of their municipality.
The second noticeable change is that not only are respondents more informed about the services of their municipality, but they have also grown more satisfied with them since 2004. This is evident in Figure III-1, which shows that perceptions of municipal services were more positive in the original municipalities in 2005 and 2007 than in 2004. Perceptions were also more positive in the new municipalities in 2007 than in 2006, though the mean difference between 2006 and 2007 is not statistically significant.
Municipal Development in Ecuador: 2004-2007 IOM Survey 56 Chapter III: Evaluation of Municipal Government
Figure III-1. Evaluation of municipal services
Municipal Development in Ecuador: 2004-2007 IOM Survey 57 Chapter III: Evaluation of Municipal Government
Next, we turn our attention to each of the municipalities individually, which helps to locate the specific sources of the overall trend described above. The results, which we present by converting the “very good” to “very bad” answers into a 0-100 scale and excluding the non- respondents, are shown in Figure III-2. The chart shows that although satisfaction increased statistically significantly between 2004 and 2005 in Eloy Alfaro, Putumayo, and Joya de los Sachas, Joya de los Sachas is the only municipality that sustained this upward trend. Satisfaction declined in Eloy Alfaro and Putumayo, though in Putumayo the decline was not statistically significant. In Río Verde, satisfaction declined between 2006 and 2007, but in Francisco de Orellana it increased.
Municipal Development in Ecuador: 2004-2007 IOM Survey 58 Chapter III: Evaluation of Municipal Government
Sample: New muncipalities
Year of interview
2004 2005 2007
60
40
58.2 55.9 53.6 54.0 52.8 50.8 49.9 50.0 49.6 47.8 46.5 45.0 43.4 20 40.0
Mean Evaluation of municipal services of municipal Evaluation Mean 34.6
0 Eloy Alfaro Lago Agrio Putumayo Cascales (Sucumbíos) Joya de los Sachas (Esmeraldas) (Sucumbíos) (Sucumbíos) (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities
Year of interview
2006 2007
60
40
63.7 61.8
56.1 55.4 52.8 54.2 50.4 49.8 47.3 44.6 20 39.5 Mean Evaluation of municipal services municipal of Evaluation Mean
0 Río Verde Shushufindi Francisco de Pindal (Loja) Calvas (Loja) Arenillas (El San Lorenzo Archidona (Esmeraldas) (Sucumbíos) Orellana Oro) (Esmeraldas) (Napo) (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Figure III-2. Satisfaction with municipal services
Municipal Development in Ecuador: 2004-2007 IOM Survey 59 Chapter III: Evaluation of Municipal Government
Satisfaction with Treatment by Municipal Government
Another way to examine the issue of satisfaction is by focusing on treatment received when respondents carried out bureaucratic transactions with the municipality. The question asked was:
SGL2. ¿Cómo considera que les han tratado a usted o a sus vecinos cuando han ido al municipio para hacer trámites? ¿Le han tratado muy bien, bien, ni bien ni mal, mal o muy mal? (1) Muy bien (2) Bien (3) Ni bien ni mal (4) Mal (5) Muy mal (8) No sabe
The results for the 2004 through 2007 IOM samples are shown in Figure III-3. In all years, perhaps because many people did not have dealings with the local government, we have a high non-response rate in this question. However, the non-response rate has declined since 2004. Whereas in 2004 31% of respondents said “I don’t know,” in 2005 and 2007 in the original municipalities this number declined to 13% and 20% respectively. In the new municipalities, 12% of respondents in 2006 and 14% in 2007 said “I don’t know.” The percentage of respondents who said they were treated very well or well has not changed much over time, similar to the percentage of respondents who said they were treated “very badly” or “badly.” There is no statistically significant difference in the mean responses between 2004 and 2007 in the original municipalities, nor between 2006 and 2007 in the new municipalities.
Municipal Development in Ecuador: 2004-2007 IOM Survey 60 Chapter III: Evaluation of Municipal Government
Figure III-3. Evaluation of treatment by municipality
Municipal Development in Ecuador: 2004-2007 IOM Survey 61 Chapter III: Evaluation of Municipal Government
We examine perceptions of treatment by municipalities within each of the IOM municipalities by converting the answer choices into a 0-100 scale and excluding the non- respondents, as shown in Figure III-4. Although we found above that, on average, levels of satisfaction have changed little over the years of the survey, when we examine specific municipalities we do find some change. In Joya de los Sachas, respondents were significantly more satisfied in 2007 than in previous years. In Cascales, in contrast, they were less satisfied in 2007 than they were in both 2004 and 2005. In Eloy Alfaro, despite the increase in satisfaction between 2004 and 2005, there was a large decrease in satisfaction between 2005 and 2007, dropping the municipality below 2004 levels of satisfaction. Francisco de Orellana also experienced a decline in satisfaction between 2006 and 2007.
Municipal Development in Ecuador: 2004-2007 IOM Survey 62 Chapter III: Evaluation of Municipal Government
Figure III-4. Satisfaction with treatment by municipality
Municipal Development in Ecuador: 2004-2007 IOM Survey 63 Chapter III: Evaluation of Municipal Government
Diffuse Support for Municipal Government
In much of the work of the Latin American Public Opinion Project we have focused on the legitimacy of the political system as a key variable linked to democratic stability. We refer to this as “diffuse support” or “system support.” Although we have an extensive battery of items measuring support for various institutions (see questionnaire “B” series) the focus here, of course, is on municipal government. We asked respondents how much they trusted their municipality (item B32). We found that although in three of the cantons trust in government increased substantially between 2004 and 2005 (Putumayo, Eloy Alfaro, and Joya de los Sachas), this increase was sustained until 2007 only in Joya de los Sachas. In Putumayo and Eloy Alfaro, trust actually declined in statistically significant terms between 2005 and 2007. In the new municipalities, trust increased in Shushufindi between 2006 and 2007, but decreased in Francisco de Orellana and Río Verde.
Municipal Development in Ecuador: 2004-2007 IOM Survey 64 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Year of interview 2004 2005 60 2007
40 100)
57.3 55.5
44.6 42.4 20 38.3 36.9 36.3 34.3 35.9 34.6 32.5 30.8 29.6 29.8 30.9 Mean trust in municipal govt (0- govt municipal in trust Mean
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities Year of interview
2006 60 2007
40
61.6 54.1 55.0 49.2
govt (0-100) 46.5 43.7 20 39.3 36.6 35.1 30.8 25.6 Mean trust in municipal municipal trust in Mean
0 R S F P C A S A í h r i a r a r o u a n l e n c V s n d v n h e h c a a il L id r u is l s la o o d f c (L ( r e i L s e n n o o o ( n a ( d d j j E z E i a a l o (N s ( e ) ) m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure III-5. Trust in the municipality
Municipal Development in Ecuador: 2004-2007 IOM Survey 65 Chapter III: Evaluation of Municipal Government
The 2004 through 2007 surveys of IOM project cantons included a series of items that were focused on measuring different aspects of public confidence in local government. These were: trust in the junta parroquial, the mayor, the municipal council and the Association of Ecuadorian Municipalities (AME). The results are shown in Figure III-6. The figure shows that between 2004 and 2005 confidence in all municipal institutions increased markedly for the sample as a whole. In 2007, however, there was some erosion of trust relative to the prior survey, perhaps indicating that the impact of the project is wearing off, or that resources have diminished.
Figure III-6. Trust in local government institutions
We need to contextualize these results so that the reader can compare confidence in local government with confidence in national government. Although we have many items measuring trust in national government, the comparisons in Figure III-7 make it sufficiently clear that trust in local government is far higher than it is in key national institutions such as the legislature or political parties. Figure III-7 also shows that, trust in political parties and the legislature have increased since 2004 in the original five municipalities, but this is not the case in the new ones. Furthermore, the mean score for trust in parties and the legislature is lower than trust in any of the local entities. It is an important finding that residents of the original five IOM municipalities have increased their trust in local government and, in 2007, and increase at the national level.
Municipal Development in Ecuador: 2004-2007 IOM Survey 66 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Trust in municipal 50 govt Trust in junta parroquial Trust in AME 40 Trust in mayor Trust in municipal council Mean trust Trust in Congress 30 Trust in political parties
43 43 42 41 20 39 39 39 37 36 36 Year of interview 33 32 32 29 2004 27 27 25 2005 21 21 10 18 2007 14
0 Trust in Trust in Trust in Trust in Trust in Trust in Trust in municipal junta AME mayor municipal Congress political govt parroquial council parties
Cases weighted by Weight factor
Sample: New muncipalities Trust in municipal 50 govt Trust in junta parroquial Trust in AME 40 Trust in mayor Trust in municipal Mean trust council Trust in Congress 30 Trust in political parties 48 48 45 45 44 43 42 43 20 39 39 Year of interview 2006
23 23 22 2007 10 20
0 Trust in Trust in Trust in Trust in Trust in Trust in Trust in municipal junta AME mayor municipal Congress political govt parroquial council parties
Cases weighted by Weight factor
Figure III-7. Trust in local vs. national institutions
Municipal Development in Ecuador: 2004-2007 IOM Survey 67 Chapter III: Evaluation of Municipal Government
A breakdown of the original municipalities shows that although trust in the mayor increased between 2004 and 2005 in all but one, this upward trend was sustained in 2007 only in Joya de los Sachas. In some municipalities the increase is quite large. In Eloy Alfaro and Putumayo there was a statistically significant decline in trust, and in Lago Agrio there was no statistically significant change. In the new municipalities, trust increased between 2006 and 2007 in Shushufindi, and declined in Río Verde. There was also a great deal of variation in 2007 across the new municipalities, ranging from the lowest mean trust of 23 in Río Verde to the highest of 63 in San Lorenzo.
Municipal Development in Ecuador: 2004-2007 IOM Survey 68 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Year of interview 2004 2005 60 2007
40
58.4 54.8
46.6 45.4
20 37.5 38.4 38.6 32.4 31.0 29.3 27.7 28.0 26.4 28.2 28.0 Mean trust in mayor (0-100)
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities Year of interview
2006 60 2007
40
63.1 63.3 59.0 52.7 46.1 44.0 41.5 43.4 20 37.8
25.3 22.8 Mean trust in mayor (0-100) 0 R S F P C A S A h r i a ío a n a re rc u n d lv n n h V s c a a i L i e h i l s l o d r u s ( la r o d f c L ( s e n e in o o L n a d j o (E z (E i d a ja o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Figure III-8. Trust in Mayor
Municipal Development in Ecuador: 2004-2007 IOM Survey 69 Chapter III: Evaluation of Municipal Government
The last item in this series is trust in the municipal council. The results are shown in Figure III-9. Here again, in the original municipalities, trust increased between 2004 and 2005 in every single canton except Cascales. However, similar to the pattern in trust in the mayor, this trend was sustained in 2007 only in Joya de los Sachas. In the new municipalities, between 2006 and 2007 trust in the municipal council increased in Shushufindi, but decreased in Río Verde and Francisco de Orellana. There was also extensive variation in 2007 across the new municipalities in trust in the municipal council, with Archidona having the lowest score (21) and San Lorenzo having the highest (52).
Municipal Development in Ecuador: 2004-2007 IOM Survey 70 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Year of interview 60 2004 2005 2007 50
40
30 100) 53.1 51.0
42.9 41.0 20 39.2 34.7 36.2
28.2 26.3 27.7 27.4 25.3 25.7 24.7 25.8 10 Mean trust in municipal council(0- 0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities Year of interview
2006 60 2007
40
61.1
52.1 48.4 43.3 42.4 40.8 20 38.3 39.8 council (0 -100) 30.2 23.2 20.8 Mean trust in municipal
0 R S F P C A S A í h r i a r a r o u a n e n c n d lv n h V s c a a L i e h l s il o d r u is la o d f c (L ( re e i L s n n o o o ( n a ( d d j j E z E i a a o (N s ( e ) ) l m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a )
Municipio Figure III-9. Trust in the municipal council
Municipal Development in Ecuador: 2004-2007 IOM Survey 71 Chapter III: Evaluation of Municipal Government
Legitimacy of Local Government
LAPOP has developed a series of three items to measure the legitimacy of local government. These items focused first on comparisons of preference for national vs. local government and willingness to pay taxes for local services.
The first item in the series asks:
LGL1. En su opinión, ¿Entre el gobierno nacional, los diputados, o el municipio quién ha respondido mejor para ayudar a resolver los problemas de su comunidad o barrio? ¿El gobierno nacional? ¿Los diputados? O ¿El municipio? (1) El gobierno nacional (2) Los diputados (3) El municipio (4) [NO LEER] Ninguno (5) [NO LEER] Todos igual (8) No sabe / no contesta
This item was asked in all years of the survey. The results are shown in Figure III-12. Although in the five original cantons, on average, the belief that the municipality is best suited to solving community problems increased between 2004 and 2005, this upward trend was not sustained in 2007. There has been a large increase, in sharp contrast, in the belief that the central government is best suited to solving community problems. This suggests an interesting shift in faith from the local to the central level of government. The new municipalities mirror the same shift between 2006 and 2007: faith in the municipality declined, and faith in the central government increased. This may indicate good news, since restoring faith in national government is vital. Recall, that respondents who selected national are, by definition, shifting away from local. Thus, these results do not mean a decline in absolute terms of confidence in local government, but a relative increase in confidence in national government. But, the most important result from this question is that overwhelmingly, Ecuadorians see local government as responsible for solving local problems.
Municipal Development in Ecuador: 2004-2007 IOM Survey 72 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Year of interview 80% 2004 2005 2007
60%
40% 74 % 70 Percent 64 % %
20%
21 18 % % 12 9% % 6% 6% 7% 4% 3% 3% 3% 0% 1% The central Deputies Municipality None All of them government equally Who helps the most to solve neighborhood problems?
Sample: New muncipalities Year of interview 100% 2006 2007
80%
60% Percent 40% 79%
62%
20%
24% 14% 9% 3% 3% 3% 0% 0% 2% The central Deputies Municipality None All of them government equally Who helps the most to solve neighborhood problems?
Figure III-10. Who has helped most to solve community problems?
Municipal Development in Ecuador: 2004-2007 IOM Survey 73 Chapter III: Evaluation of Municipal Government
Breakdowns of municipalities in the 2004 samples compare results from 2004 to 2007 (Figures III-13 and III-14 below, respectively), show that in three of the municipalities there was been a growing sense that municipal government is better able than other entities to address community issues. In 2007, however, that trend reversed in most municipalities.
100% 1.2% 1.2% 2.5% 5.6% 4.3% In your 4.7% 14.1% 17.6% 13.6% opinion, who has respo... 80% The central 48.6% government
60% Deputies 73.3% Municipality 63.6% 80.2% None 77.7% Percent 40% All of them
32.3% equally
20% 9.7% 12.8% 6.4% 9.9% 7.0% 1.4% 1.3% 5.6% 0% 3.1% 2.1% Eloy Lago Putumayo Cascales Joya de Alfaro Agrio los Sachas
OIM cantons
Error bars: 95.00% CI
Figure III-11. Who has helped most to solve community problems? IOM cantons in 2004 sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 74 Chapter III: Evaluation of Municipal Government
100% 1% 1% 0% 2% 6% 3% In your 11% 10% 18% opinion, who 19% has respo... 80% The central government
60% Deputies 79% 58% Municipality 77% 82% None 71% Percent 40% All of them equally
2% 20%
21% 2% 9% 2% 9% 3% 6% 5% 0% 4% Eloy Lago Putumayo Cascales Joya de Alfaro Agrio los Sachas
OIM cantons
Error bars: 95.00% CI
Sample: Original five municipalities, Year of interview: 2007
100% Eloy Alfaro 5.2% 4.3% (Esmeraldas) 12.3% 13.5% 7.4% 17.0% 9.0% Lago Agrio 1.4% (Sucumbíos) 3.0% 7.7% 80% Putumayo 0.8% (Sucumbíos) 28.7% Cascales 29.2% (Sucumbíos)
60% Joya de los 6.7% Sachas 0.7% (Orellana) 61.5% 73.1% 82.1% Percent 40% Who helps the most to solve 44.1% 50.6% neighborhood problems? 20% Missing
6.4% 11.6% The central 1.1% government 1.6% 1.0% 3.7% 3.3% 4.9% 0% Deputies Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas Municipality (Orellana) None All of them equally Cases weighted by Weight factor
Figure III-12. Who has helped most to solve community problems? IOM cantons in 2005/07 samples
Municipal Development in Ecuador: 2004-2007 IOM Survey 75 Chapter III: Evaluation of Municipal Government
The next item asked about responsibility and funding. The question reads as follows
LGL2. En su opinión ¿se le debe dar más obligaciones y más dinero al municipio, o se debe dejar que el gobierno nacional asuma más obligaciones y servicios municipales? (1) Más al municipio (2) Que el gobierno nacional asuma más obligaciones y servicios municipales (3) [NO LEER] No cambiar nada (4) [NO LEER] Más al municipio si da mejores servicios (8) No sabe / no contesta.
The responses for the 2004 through 2007 samples are presented in Figure III-13. In the original municipalities, in 2005, respondents were much more likely to say that responsibilities and money should be given to the municipality if it provides better services than in 2004. In contrast, in 2005 respondents were less likely to say that the municipality should be given more responsibilities and resources, regardless whether it provides better services. This pattern shifted in 2007. Respondents were more likely to say that the central government should be given more responsibilities and money than they were in past years, and less likely to say that they should be given to the municipality if it providers better services. In the new municipalities, between 2006 and 2007, there was also a shift toward advocating that the central government receive more money and responsibilities.
Municipal Development in Ecuador: 2004-2007 IOM Survey 76 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Year of interview 2004 2005 60% 2007
40%
63.4 % Percent
47.6 49.0 % % 41.3 20% % 33.0 32.7 % %
17.9 %
7.3% 2.4% 2.4% 0% 12% 1.8% More to More to central No change Municipality if municipality government beter service In your opinion, should we give the municipality more obligations and money or should we let the …
Sample: New muncipalities Year of interview 60% 2006 2007
50%
40%
30%
52.2% Percent 50.3%
20% 36.6% 34.1%
10%
11.5% 9.9% 4.2% 0% 1.4% More to More to central No change Municipality if municipality government beter service In your opinion, should we give the municipality more obligations and money or should we let the …
Municipal Development in Ecuador: 2004-2007 IOM Survey 77 Chapter III: Evaluation of Municipal Government
Figure III-13. Allocating resources to the municipality or to the central government
In the two figures below, we show the results in 2004 and 2005 within the IOM cantons. In all of the municipalities, there has been an increase in the percent who said that more resources should be allocated to the municipal government if they provide better services. In Putumayo, the percent who said that the municipal government should receive more resources, regardless of whether it provides better services, has increased sharply, and the percent who said that the central government should receive resources has decreased. In contrast, the opposite trend took place in Cascales and Joya de los Sachas. By 2007 however, that trend had reversed.
0.0%0.3% 0.3% 0.3% 100% 4.0% 0.7% 0.8% 7.0% 0.6% In your 3.6% 23.6% opinion, 80% 27.4% 34.8% should we 29.4% 50.7% giv... More to 60% municipality More to central Percent 40% 75.3% government 68.0% 64.2% 60.1% No change 48.9% 20% Municipality if beter service
0% Eloy Lago Putumayo Cascales Joya de Alfaro Agrio los Sachas
OIM cantons
Error bars: 95.00% CI
Figure III-14. Who should get more responsibility and funding? IOM cantons 2004
Municipal Development in Ecuador: 2004-2007 IOM Survey 78 Chapter III: Evaluation of Municipal Government
100% In your 7.6% 16.3% 0.7% 15.6% 22.7% opinion, 27.6% 0.0% 2.8% should we 80% 23.7% 0.7% giv... 4.5% More to 39.8% 34.6% 60% municipality 24.5% 43.1% More to central
Percent 40% government 67.9% No change
47.0% Municipality if 20% 43.8% 43.4% 33.5% beter service
0% Eloy Lago Putumayo Cascales Joya de Alfaro Agrio los Sachas
OIM cantons
Error bars: 95.00% CI
Sample: Original five municipalities, Year of interview: 2007 Eloy Alfaro 100% 2.4% 7.5% 7.1% (Esmeraldas) 14.0% 13.9% Lago Agrio (Sucumbíos)
80% Putumayo 33.0% (Sucumbíos) 42.7% Cascales 59.0% 40.7% (Sucumbíos) Percent 48.0% 60% Joya de los Sachas (Orellana)
40% Se le debe dar más 51.5% obligaciones y más 35.2% 44.7% 19.8% dinero al mu... Missing 20% 36.5% 4.7% More to municipality 0.7% 13.6% 0.7% 9.5% More to central 6.7% 0% 2.8% 1.4% government Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas No change (Orellana) Municipality if beter service
Cases weighted by Weight factor
Figure III-15. Who should get more responsibility and funding? IOM cantons 2005/07
Municipal Development in Ecuador: 2004-2007 IOM Survey 79 Chapter III: Evaluation of Municipal Government
The final item in the series focuses on willingness to pay greater local taxes for better services. Few of us want to pay taxes, so we were not expecting a lot of positive replies on this item, but it is the patterns of response that interest us. The item read:
LGL3. ¿Estaría usted dispuesto a pagar más impuestos al municipio para que pueda prestar mejores servicios municipales o cree que no vale la pena pagar más impuestos al municipio? (1) Dispuesto a pagar más impuestos (2) No vale la pena pagar más impuestos (8) No sabe
The results of the analysis are presented in Figure III-16, which shows the percent of respondents who said they were willing to pay more taxes, as opposed to saying that paying more taxes was not worth it. Across all the years of the survey, and in both the original and new municipalities, there has been a statistically significant change in willingness to pay taxes only on one canton: Joya de los Sachas. There, between 2004 and 2005, willingness to pay taxes rose from 2% to 14%. This increase was not sustained in 2007, however. There is a great deal of variation across the new municipalities in 2007 in their willingness to pay taxes for better services, ranging from 7% in Río Verde to 40% in San Lorenzo.
Municipal Development in Ecuador: 2004-2007 IOM Survey 80 Chapter III: Evaluation of Municipal Government
Sample: Original five municipalities Year of interview 40% 2004 2005 2007
30%
20%
33.1 30.5 % % 25.4 %
for the municipality for the 10% 16.1 14.2 % 14.1 12.2 % % 11.3 % 10.4 % % 7.4% 8.2% 8.2% 5.3% 6.0% Percentpay more taxes willing to 2.3% 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 40% Year of interview
2006 2007
30%
20% 33.9 %
24.5 24.2 % % 10% 17.1 % 12.9 13.9 % % 9.0% 9.0%
taxes for the municipality for the taxes 6.5% 5.8% 6.7% Percent willing to pay more more to pay willing Percent 0% R Shus F Pindal (Loja C A San Lor A ranc ío a re rchidona lv Ve as ni hu i l rd s las ( findi c ( en e o d Loja) ( El zo ( Es e ) N ( Or m Sucu Or (Es a o) p er e me o) llana al m d r as bíos) al d ) (O as) re l lan a)
Municipio Figure III-16. Willingness to pay more taxes for better service
Conclusions
Municipal Development in Ecuador: 2004-2007 IOM Survey 81 Chapter III: Evaluation of Municipal Government
This chapter has examined attitudes toward satisfaction with local government. It has been found that although knowledge about, perceptions of, and trust in local government improved in the IOM cantons between 2004 and 2005, in some of the cantons this was not sustained in 2007. In addition, in 2007 compared to earlier years there was a growth in positive feelings about the central government, and a respective decline in positive feelings about municipal government. In the next chapter we examine citizen perception of problems, perceived efficacy and responsiveness of local government.
Municipal Development in Ecuador: 2004 IOM Survey 82 Chapter IV. Local Problems, Efficacy
IV. Local Problems, Efficacy and Responsiveness
Up until this point in the analysis of the 2004 through 2007 surveys of municipalities selected for the IOM project, there have been noted many changes in citizen participation and citizen satisfaction with local government. Variation has also been found across the municipalities in participation and satisfaction. Some of this variation may be a function of the kinds of challenges faced by the individual municipalities. Consider a municipality that is faced with enormous challenges in terms of infrastructure construction, while another has the luxury of operating in an area already well endowed with good roads, sanitation facilities, etc. Citizens may express more demands where the need is greatest, and given the limited resources of municipalities in Ecuador, they will have a difficult time satisfying those demands.
This chapter first examines perceived problems and then goes on to measure levels of perceived efficacy and concludes with a measure of responsiveness.
Perceived Local Problems
In the 2004 study, an “open ended” question asked respondents to name any problem that they believed their municipality faced. The question was repeated three times to allow for up to three problems to be noted. In the 2005, 2006, and 2007 surveys, in order to be able to accommodate new items that had not been asked in 2004, the surveys dropped the second and third set of problems that respondents could mention. Therefore the answers presented in the table below (Table IV-1) represent only the first responses given by the 2004 IOM residents. The 2004 report contained data on as many as three problems. The most noticeable difference across the years in the original municipalities is that in 2004 lack of water was the problem mentioned by the greatest number of respondents, while in 2005 the economic situation was the most frequently voiced concern, and in 2007 road maintenance was most frequently mentioned. In the new municipalities, in 2006 lack of services was the most frequently mentioned concern, and in 2007 road maintenance was most frequently mentioned.
Municipal Development in Ecuador: 2004-2007 IOM Survey 83 Chapter IV: Local Problems, Efficacy and Responsiveness
Table IV-1. Perceived municipal problems by residents of selected IOM cantons
Original Municipalities Problem 2004 2005 2007 Lack of water 26.1 10.5 11.7 Road maintenance 24.7 17.2 24.5 Poor administration 12.6 14.7 16.8 Lack of services 9.2 10.9 13.0 Lack of funds, help 9.2 12.5 10.1 The economic situation 7.1 25.2 6.1 Lack of security, crime 5.0 5.6 12.6 Clean up of public places 2.0 1.0 2.4 None 1.1 0.3 0.4 Others 1.0 -- -- Lack of environmental care 0.9 1.9 2.3 High taxes 0.6 -- Abuse of Mayor’s authority 0.4 -- --
New Municipalities Problem 2006 2007 Lack of services 21.4 10.9 Road maintenance 19.7 27.4 Bad administration 17.9 14.1 Lack of water 17.0 17.6 The economic situation 11.1 10.9 Lack of funds, help 9.2 9.5 Lack of environmental care 1.5 1.6 Clean up of public places 1.2 1.7 Lack of security, delinquency 1.0 5.4 None -- 0.5 Corruption -- 0.0 High taxes -- 0.1 Other -- -- Abuse of the Mayor’s authority -- --
The figures below examine these results for each of the cantons separately. To do this, we look only at the first-mentioned problem in the 2004 data, and compare it to the parallel question in the 2005 and 2007 surveys survey. We also examine the responses to the 2006 and 2007 surveys. The results are shown in Table IV.2 (again, these data differ from 2004 since in that report the actual totals were for all three mentions, which totaled more than 100%). In almost all of the original municipalities, concerns about the lack of water have decreased since 2004. Cascales experienced a sharp rise in concern about security and delinquency in 2007.
Municipal Development in Ecuador: 2004-2007 IOM Survey 84 Chapter IV: Local Problems, Efficacy and Responsiveness
Table IV-2. Municipal problems perceived by residents of selected IOM cantons (first problem mentioned): results by canton
Original Municipalities Joya Joya Joya Eloy Eloy Eloy Lago Lago Lago Putu- Putu- Putu- Cas- Cas- Cas- de los de los de los Alfaro Alfaro Alfaro Agrio Agrio Agrio mayo mayo mayo cales cales cales Sachas Sachas Sachas 2004 2005 2007 2004 2005 2007 2004 2005 2007 2004 2005 2007 2004 2005 2007 None 3.0 ------.4 0.8 1.6 1.8 1.1 -- -- 0.4 34.3 17.1 13.2 20.2 8.0 13.6 14.9 7.1 11.9 15.1 4.8 1.5 42.6 16.3 18.5 Lack of water 31.3 10.1 11.8 30.2 28.0 55.4 30.2 4.2 16.1 19.4 11.0 4.7 13.5 30.1 33.0 Road maintenance 1.0 3.5 3.2 8.3 15.2 6.6 3.3 2.1 4.2 12.0 3.1 48.0 1.4 3.3 0.7 Lack of security, delinquency 2.4 1.3 1.1 .8 1.0 3.5 2.1 .4 4.6 3.9 .9 0.7 1.4 1.1 2.2 Clean up of public places 6.1 11.4 9.6 7.9 4.5 13.9 7.9 25.8 20.3 9.3 7.9 2.5 14.9 4.7 19.3 Lack of services 3.7 24.6 12.1 5.2 16.6 1.4 9.5 39.9 13.4 14.7 17.1 2.9 3.2 26.1 0.7 The economic situation 6.1 18.9 21.4 8.3 6.9 1.7 19.4 12.0 12.3 8.9 21.1 9.1 4.3 6.9 6.3 Lack of funds, help 10.4 13.2 27.5 15.5 19.0 2.4 11.2 7.8 14.2 11.2 27.6 26.5 14.9 8.0 13.3 Bad administration .7 -- -- .8 .7 1.4 -- .7 1.9 -- 4.8 2.9 2.8 3.6 5.6 Lack of environmental care High taxes .3 -- -- .4 -- -- .4 -- -- 1.2 -- -- .7 -- --
Abuse of ------0.4 .4 ------Mayor’s authority Other 1 ------1.6 ------
Other 2 .7 -- -- 2.4 -- -- .8 -- -- .8 -- -- .4 -- --
Excludes those who did not know.
Municipal Development in Ecuador: 2004 IOM Survey 85 Chapter IV. Local Problems, Efficacy
Río Verde 2006 Río Shushufindi 2006 Shushufind Francisco de Francisco Pindal Calvas Aren San Lorenzo Archidona Verd i 2007 Orellana 2006 de 2007 2007 illas 2007 2007 e Orellana 2007 2007 2007 Lack of water 23.7 52.1 15.4 16.7 12.7 22.5 7.3 6.0 15.8 3.4 3.2 Road maintenance 6.4 19.8 25.7 26.0 25.1 24.6 29.1 46.0 13.6 23.4 37.1 Lack of security, delinquency 0.8 -- 1.8 6.7 0.4 10.0 2.1 8.9 0.5 9.7 3.9 Clean up of public places 2.0 -- 1.1 2.6 0.7 1.8 3.0 1.6 0.9 3.1 0.4 Lack of services 17.7 5.9 19.6 8.9 26.5 9.3 8.5 8.5 13.1 22.8 9.6 The economic situation 11.2 6.3 6.1 12.3 15.9 12.1 9.8 9.3 14.9 11.7 11.4 Lack of funds, help 11.6 3.5 9.3 14.9 7.1 6.4 16.2 7.7 11.3 11.4 6.1 Corruption ------0.4 ------
Bad administration 26.1 12.5 19.3 7.4 9.5 11.8 18.8 10.1 26.2 12.1 16.8 Lack of environmental care 0.4 -- 1.8 4.1 2.1 1.4 2.6 1.2 1.4 2.1 0.4 High taxes ------0.9 -- 0.7 Other ------0.5 -- -- Abuso de autoridad del alcalde ------0.5 -- -- Excludes those who did not know.
Municipal Development in Ecuador: 2004-2007 IOM Survey 86 Chapter IV: Local Problems, Efficacy and Responsiveness
Citizen Perceived Efficacy
The perception that citizens can have an impact on their governments is at the heart of the democratic process. If citizens feel powerless, they are not likely to be willing to cooperate with governments. In dictatorships, of course, coercion can readily be used to force cooperation. But in democracies, citizens can frustrate government action in a wide variety of ways. A scale of a sense of efficacy was developed by Seligson and is employed in this study.6
The scale itself, which is called the “Problem-Solving Efficacy Scale,” involves a series of questions related to the problems mentioned in the preceding section. In this way the efficacy is grounded in a problem that the respondent him or herself has mentioned rather than in some artificial scenario developed by the researcher. The standard efficacy scale, used ever since the days of The Civic Culture7 refers to some unidentified bad law and ask the respondents if they feel that they could do something about it. This classic approach, which might work well in the U.S., is inappropriate in unitary government systems like those found in much of Latin America, including Ecuador. It is simply unreasonable to think that an individual would be effective in getting a law passed by the national legislature. The “Problem-Solving Efficacy Scale” avoids this problem entirely by focusing on a local problem named by the respondent. The scale has shown to function reliably in the Latin American context.
The notion behind the scale is that for citizens to be efficacious, they must first be able to identify a local problem. Then they must believe that they can help solve the problem. After that, they must be able to know what it is that they can do to solve it, and finally, they have to make the effort to solve it. A series of questions was asked in the survey (the EFF series shown below), and the interested reader should examine the questionnaire for the wording of the series. We first examine each of the questions, one-by-one and then create an overall scale of efficacy and see how the five municipalities vary one from another. In the 2005, 2006, and 2007 surveys, in order to be able to accommodate new items that had not been asked in 2004, the survey dropped the second and third set of problems that respondents could mention. The efficacy series that follows in 2005, 2006, and 2007, therefore is not parallel to the one utilized in 2004. Therefore, in this study, we report on the 2005, 2006, and 2007 data alone for the EFF1-EFF5 items.
6 Mitchell A. Seligson, "A Problem-Solving Approach to Measuring Political Efficacy," Social Science Quarterly 60 (1980):630-42. 7 Gabriel A. Almond and Sidney Verba, The Civic Culture: Political Attitudes and Democracy in Five Nations (Princeton: Princeton University Press, 1963).
Municipal Development in Ecuador: 2004-2007 IOM Survey 87 Chapter IV: Local Problems, Efficacy and Responsiveness
EFF1. Como Ud. sabe, todos los municipios tienen problemas. ¿Diría Ud. que este municipio tiene muchos problemas, algunos problemas o pocos problemas? (1) Muchos problemas (2) Algunos problemas (3) Pocos problemas (8) No sabe EFF2. [PREGUNTAR A TODOS LOS QUE MENCIONARON ALGUN PROBLEMA] [SI MENCIONO MAS DE UN PROBLEMA SONDEE CUAL ES EL MAS IMPORTANTE]: En su opinión, ¿cómo se puede resolver este problema? (1) Contesta con alguna solución (2) Dice que no sabe, o dice que no hay solución (9) Inap (no mencionó problemas) EFF3. ¿Cree que Ud. pueda ayudar a solucionar este problema? (1) Si [sigue con EFF4] (2) No [pasar a EFF6] (8) No sabe [pasar a EFF6] (9) Inap (no mencionó problemas)
EFF4. ¿Qué puede hacer UD? (1) Contesta (2) No contesta (8) NS (9) Inap (no mencionó problemas)
EFF5. ¿Ha hecho algún esfuerzo alguna vez solo o en grupo para resolver este problema?(1) Sí (2) No (8) NS (9) Inap (no mencionó problemas)
The first step is to distinguish between respondents who were able to name a problem and those who were not. This focuses on item MUNI2, which was analyzed above. In that analysis the focus was on the series of three questions that asked about the most important local problems. Here we look just at the first, since if that was not answered, the remaining two questions were skipped. The results of this first stage of the efficacy scale are shown in Figure IV.1. There we see that in the original municipalities there has been some variation in the percent of respondents who were able to mention a political problem.
Although the average percentage of respondents in all five municipalities who were able to mention a municipal problem did not change significantly between 2004 and 2005, an examination of each municipality separately does reveal some shifts. Whereas in Eloy Alfaro and Cascales the percent dropped from 2004 to 2005, in both municipalities the percentage rebounded in 2007. In Lago Agrio the percentage increased between 2004 and 2005, and remained high in 2007, but in Putumayo the increase between 2004 and 2005 reversed course in 2007. In the new municipalities, in 2007 the percent who could identify a problem ranged from 73% in Arenillas to 97% in San Lorenzo.
Municipal Development in Ecuador: 2004-2007 IOM Survey 88 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 100% 2004 2005 2007
80%
60%
95.7 96.0 95.7 93.9 93.5 % 93.2 % 91.7 % % % 90.4 % 89.8 84.3 86.0 84.6 % % % problem % 80.6 % % 40% 76.0 % 74.2 % %
20% Percent that mentioned a local a local mentioned that Percent
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 100% Year of interview
2006 2007 80%
60%
96.0 93.5 94.2 93.7 96.5 % 93.1 % % 89.7 % % % 83.3 % 82.3 % 40% 75.7 % 73.2 % % local problem
20% Percent thatmentioned a
0% R S F P C A S A í h r i a r a r o a n e n c u n d lv n h V s c a a L e h il o id r u is l s la o d f c (L ( r e i L s e n n o o o ( n a ( d d j j E z E i a a o (N s ( e ) ) l m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s (O a ) s re ) l la n a ) Municipio Figure IV-1. Respondent is able to mention a local problem when asked
Municipal Development in Ecuador: 2004-2007 IOM Survey 89 Chapter IV: Local Problems, Efficacy and Responsiveness
Next, are the results from EFF1, which asks respondents whether their city hall has a lot of problems, some problems, or not many problems. The figure below presents answers only to the 2007 survey. In the original municipalities, on average, 68% of respondents in the 5 IOM municipalities said that their local governments had a lot or some problems, and 19% said they had few problems. Thirteen percent said “don’t know.” In the newly participating municipalities, 64% of respondents said that their local government had a lot or some problems, and 17% said it had few problems. Nineteen percent said “don’t know.”
Sample: Original five municipalities Would you say this city hall has a lot o problems, some problems, or not ma problems? 13.1% Lot of problems Some problems Few problems Don´t know/ No respon
42.0% 19.4%
25.5%
Sample: New muncipalities Would you say this city hall has a lot o problems, some problems, or not ma problems? Lot of problems 18.7% Some problems Few problems Don´t know/ No respon
35.1%
16.9%
29.3%
Figure IV-2. Extent to which municipality has problems: IOM sample in 2007 survey
Municipal Development in Ecuador: 2004-2007 IOM Survey 90 Chapter IV: Local Problems, Efficacy and Responsiveness
When the municipal problems question is transformed into a scale ranging from 0 to 100, where 0 indicates no problems and 100 indicates a lot of problems, some interesting differences emerge across the years and between the municipalities. Within five original municipalities, there have been some changes between 2005 and 2007 in the extent to which respondents think their municipality has problems (see Figure IV-3). In Eloy Alfaro and Cascales perceptions of problems have risen substantially, while in Putumayo and Joya de los Sachas they have decreased. In the new municipalities in 2006, the mean score in the perception-of-municipal- problems scale ranged from a low of 43 in Pindal to 79 in Arenillas.
Municipal Development in Ecuador: 2004-2007 IOM Survey 91 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 100 2005 2007
80
60
85.9 40 76.9 72.2 of problems") 65.4 65.2 62.8
50.7 46.0 20 41.5 31.2 Mean (0="few problems," 100="lot 100="lot Mean (0="few problems," 0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 100 Year of interview
2006 2007 80
60
40 78.5 68.9 66.6 65.9 62.0 58.4 55.8 57.1 56.4 55.1
20 43.2 100="lot of problems") Mean (0="few problems,"
0 R S F P C A S A r ío h a in a re a rc u n d lv n n h V s c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o ( n a ( d d j j E z E i a a o (N s ( e ) ) l m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Figure IV-3. Mean response in IOM cantons to question about extent of problems in municipality
Municipal Development in Ecuador: 2004-2007 IOM Survey 92 Chapter IV: Local Problems, Efficacy and Responsiveness
The next question in the series, EFF4, probes this matter a bit further. It asks, “What could you do about the problem?” The results are shown in Figure IV.6, which shows the percentage of respondents who are able to offer a solution to a municipal problem. There has been very little variation over the years or across municipalities; almost all respondents who said that they personally felt they could solve a municipal problem were able to suggest a solution.
Municipal Development in Ecuador: 2004-2007 IOM Survey 93 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 100% 2005 2007
80%
60%
99.1% 95.7% 97.1% 96.6% 93.6% 93.0% 91.3% 92.6% 84.4% 40% 75.6%
20% Percentsolutionmunicipal who offer a to a problem that they personally could help with 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 120% Year of interview
2006 100% 2007
80%
60% with 97.5 97.2 91.2 92.6 94.5 93.9 94.9 92.8 % % % % 84.7 % % % 84.4 82.6 % 40% % % %
20% they personally could help help could personally they to a municipal problem that that problem to a municipal Percent who offer a solution solution offer a who Percent 0% R S F P C A S A h r i a ío a n a re rc u n d lv n n h V s c a a i L i e h i l s l o d r u s ( la r o d f c L ( s e n e in o o L n a d j o ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure IV-4. Percent who offered a solution to the municipal problem that they personally could help with
Municipal Development in Ecuador: 2004-2007 IOM Survey 94 Chapter IV: Local Problems, Efficacy and Responsiveness
We then ask (EFF5) if the respondent has actually done something to solve the problem. The results are shown in Figure IV-7. In four out of five of the original municipalities, the percent of respondents who had done something to solve a municipal problem declined between 2005 and 2007, though this decline was statistically significant only in Eloy Alfaro and Putumayo. In Francisco de Orellana, a newly participating municipality, problem solving declined between 2006 and 2007.
Municipal Development in Ecuador: 2004-2007 IOM Survey 95 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 100% 2005 2007
80%
60%
91.6 % 83.1 78.8 % 40% % 74.4 70.5 73.0 68.0 % 68.4 70.2 % % % % %
50.4 % 20% solve municipal problems Percentwho have taken action to 0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 100% Year of interview
2006 2007 80%
60%
80.4 40% problems % 71.3 72.6 % 64.3 62.1 % 60.7 % 58.5 59.3 % 56.8 % 57.3 57.0 % % % % % 20% Percent who have taken action to solve municipal action to solve
0% R S F Pi C A Sa A í h r a r r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s ( la r o d f c L ( s e n e in o o L n d o ( a ( d ja j El z ( Es i e ) a o Na ( ) O me S O (E u r ro s p c e me o r u l ) ) a mb la ld n r a a a s ío ld ) s (Ore a ) s ) l la n a ) Municipio
Figure IV-5. Percent who have done something to solve a municipal problem
Municipal Development in Ecuador: 2004-2007 IOM Survey 96 Chapter IV: Local Problems, Efficacy and Responsiveness
In order to examine each of the selected municipalities for differing levels of efficacy, we create an overall scale based on the items reviewed above. In an attempt to make the scale comparable to the one used in the 2004 report, we include in the 2005, 2006, and 2007 scales only the five items that were included in the 2004 scale; EFF1 is omitted from the scale. The scale ranges from being able to mention at least one local problem through actually having done something to solve a local problem. The results for each municipality in the project are shown in Figure IV-8. In the original municipalities, there no significant changes except for the large drop in Putumayo. In the new municipalities, feelings of efficacy dropped in Río Verde and Francisco de Orellana between 2006 and 2007, but rose in Shushufindi.
Municipal Development in Ecuador: 2004-2007 IOM Survey 97 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 5 2005 2007
4
3
2 4.1
Mean efficacy(0-5) 2.5 2.6 2.4 2.1 2.1 2.2 2.1 1 1.9 2.0
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 4 Year of interview
2006 2007
3
2
3.4 3.3
2.7 2.5 2.3 2.1 1 2.0 1.9 2.0
Mean efficacy (0-5) efficacy Mean 1.6 1.6
0 R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a il L i e h i l s o d r u s la o d f c (L ( s re n e in o o L n d o ( a ( d ja j E z ( E i e ) a l o N s ( ) O m S O (E a u r ro s p e c e ) m o ra u l ) l m la e d b n ra a í a s o ld ) s (O a ) s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure IV-6. Efficacy Scale
Utility of the Problem-Solving Efficacy Scale
Municipal Development in Ecuador: 2004-2007 IOM Survey 98 Chapter IV: Local Problems, Efficacy and Responsiveness
The problem-solving efficacy scale allows us to have a fine-grained measure of each respondent’s sense of personal efficacy? Is the scale valid? That is, does it relate to municipal participation in ways that make sense? In the original municipalities, the 2005 and 2007 data, shown in Figure IV-9, suggest that the relationship may be strong. The figure shows that the relationship between a higher sense of problem-solving efficacy and demand-making at the level of the municipality is, for the most part, close. In the new municipalities, the relationship is less consistent.
Municipal Development in Ecuador: 2004-2007 IOM Survey 99 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 40 2005 2007
30
20
28.4 29.0 % %
10 16.8 17.4 % 15.1 14.6 % 13.4 % 11.8 12.1 % % 10.4 % % % % making demands 6.2% 4.3% 0
-10 0 1 2 3 4 5 Efficacy scale
Sample: New muncipalities Year of interview 40 2006 2007
30
20
24.1 % 21.1 21.8 10 % 19.5 19.2 % % % 15.2 % 14.0 % 10.6 9.3% % % making demands 6.1% 3.6% 0 …
-10 0 1 2 3 4 5 Efficacy scale
Figure IV-7. Impact of efficacy on demand-making on municipality
Municipal Development in Ecuador: 2004-2007 IOM Survey 100 Chapter IV: Local Problems, Efficacy and Responsiveness
Optimism over Impact of Citizen Problem Solving
We asked our respondents (EFF6) if they felt that community-level effort could help resolve municipal problems. The item read as follows:
EFF6. [Preguntar a todos] ¿Qué tan probable cree Ud. que el esfuerzo del pueblo pueda servir para resolver los problemas de este municipio? ¿Diría que hay mucha probabilidad de resolverlo, alguna probabilidad, poca probabilidad o casi ninguna probabilidad? (1) Mucha (2) alguna (3) poca (4) casi ninguna (8) NS
The results are shown in Figure IV.10. There it can be seen that in the original municipalities, although optimism increased in four out of five municipalities between 2004 and 2005, optimism increased between 2005 and 2007 only in Cascales and Joya de los Sachas. In Eloy Alfaro, Lago Agrio, and Putumayo optimism decreased. In all three of the new municipalities that were surveyed in both 2006 and 2006, optimism increased in 2007.
Municipal Development in Ecuador: 2004-2007 IOM Survey 101 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 100 2004 2005 2007
80
60
40 80.9 71.0 68.1 68.9 63.9 57.9 57.6 55.1 56.1 55.8 47.9
Mean optimisn (0-100)Mean optimisn 45.1 42.7 41.5 20 38.9
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 80 Year of interview
2006 2007
60
40 77.5
66.7 68.9 62.4 59.2 57.8 59.7 55.0 56.0 45.1 20 32.1 Mean optimism (0-100)
0 R S F P C A S A í h r i a r a r o u a n l e n c s n da v n h V c a i L i er h i l s l o d u s ( la r o d fi co Lo (L s e n e n n a d j o ( z (E i d a ja E o ( e ) l N s (S ) O ( a m u O r E p e c rel o) s o r u m ) a m la er ld n a b a a s ío ld ) s (O a ) s re ) l la n a)
Municipio Cases weighted by Weight factor
Error bars: 95% CI Figure IV-8. Optimism that community effort can solve problems
Municipal Development in Ecuador: 2004-2007 IOM Survey 102 Chapter IV: Local Problems, Efficacy and Responsiveness
Responsiveness of the Municipality
Little it would serve to have citizens participate in municipal affairs if the institution is unresponsive to its constituents. In order to tap into municipal responsiveness, we asked the following questions:
MUNI3. ¿Cuánto ha hecho el alcalde de este municipio por resolver los problemas del cantón? [leer respuestas] (1) Mucho (2) Algo (3) Poco (4) Nada (8) NS
MUNI3A. ¿Cuánto ha hecho el concejo municipal de este municipio por resolver los problemas del cantón? [leer respuestas] (1) Mucho (2) Algo (3) Poco (4) Nada (8) NS
Looking first at the mayor, we see the results presented in Figure IV-11. Although in the original municipalities perceptions of the mayor improved sharply in every canton between 2004 and 2005, this improvement was not sustained in all cantons in 2007. In Eloy Alfaro, Lago Agrio, and Putumayo there were significant declines in evaluations of the mayor in 2007, and in Cascales there was a decline that was not statistically significant. Joya de los Sachas was the only municipality that experienced consistent increases in evaluations of the mayor from 2004 to 2007. In the new municipalities in 2007, evaluations of the mayor ranged from a high of 68 in San Lorenzo to 25 in Río Verde.
Municipal Development in Ecuador: 2004-2007 IOM Survey 103 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities Year of interview 60 2004 2005 2007 50
40
30
53.6 52.3 47.9
41.8 41.1 20 39.4 34.1 31.0 30.8 27.8 29.2 27.1 26.1 25.5 24.4
cantonal problems (0-100) 10 Mean evaluation of mayor solving Mean evaluation
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 80 Year of interview
2006 2007
60
40
(0-100) 67.8
50.0 51.8 50.4 48.3 47.2 20 38.1 39.9 32.3 31.5 25.4 Mean evaluationof mayor solving cantonal problems
0 R S F P C A S A r ío h a in a re a rc u n d lv n n h V s c a a i L i e h is l s l o d r u ( la r o d fi c L (L s e n e n o o o ( n a ( d d ja j E z ( E i ( a o N s e ) ) l m S O O (E a u r ro s p e c el ) m o ra u ) ld m lan er b a as í a o ( ld ) s a ) O s rel ) la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure IV-9. How much has the mayor of this municipality done to solve cantonal problems?
Municipal Development in Ecuador: 2004-2007 IOM Survey 104 Chapter IV: Local Problems, Efficacy and Responsiveness
We next look at the council, which is shown in Figure IV-12. In the original municipalities, similar to perceptions of the mayor, the almost universal improvement in perceptions of the council between 2004 and 2005 reversed course in some of the municipalities in 2007. Perceptions declined in Eloy Alfaro, Lago Agrio, and Putumayo. In Cascales and Joya de los Sachas, however, perceptions improved between 2005 and 2007. In the new municipalities in 2007, perceptions ranged from a low of 22 in Río Verde to a high of 51 in San Lorenzo.
Municipal Development in Ecuador: 2004-2007 IOM Survey 105 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities
50 Year of interview 2004 2005 2007 40
30
45.3 45.3 44.2
20 38.3 36.9 35.6 35.5 31.1 28.8 27.4 27.0 27.4 25.0 25.8 22.1 10 municipal problems (0-100) problems municipal Mean evaluation of council solving solving council of evaluation Mean 0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Sample: New muncipalities 60 Year of interview
2006 50 2007
40
30
(0-100) 50.7 45.3 43.5 42.8 41.3 20 39.6 37.9 34.1 33.4 28.5 22.3 10 Mean evaluation of council solving municipal problems problems municipal solving 0 R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s ( la o d f c L ( s re n e in o o L n a d j o ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Figure IV-10. How much has this municipal council done to solve cantonal problems?
Municipal Development in Ecuador: 2004-2007 IOM Survey 106 Chapter IV: Local Problems, Efficacy and Responsiveness
Another question tapping into responsiveness is MUNI11:
MUNI11. ¿Qué tanta influencia cree que tiene Ud. en lo que hace la municipalidad? ¿Diría que tiene mucha, algo, poca, o nada de influencia? 1. Mucha 2. Algo 3. Poca 4. Nada 8, NS/NR
The results are shown in Figure IV-13. Unlike in the previous two variables, in which in several of the original municipalities responsiveness of the mayor and municipalities declined since 2005, perception of personal influence on the municipality improved in 2007 in all municipalities except Joya de los Sachas, and all of those improvements were statistically significant except in Putumayo. Even in Joya de los Sachas, although perceptions declined since 2005, they are still higher than 2004 levels. In the new municipalities, we also see statistically significant improvements in Río Verde and Francisco de Orellana between 2006 and 2007.
Municipal Development in Ecuador: 2004-2007 IOM Survey 107 Chapter IV: Local Problems, Efficacy and Responsiveness
Sample: Original five municipalities
50.00 Year of interview 2004 2005 2007 40.00
30.00
46.1
20.00
33.0 30.6
municipality (0-100) 23.3 23.4 21.7 22.5 10.00 15.6 15.6
9.8 9.7 9.7
Mean personal influence on the 9.1 7.8 4.1 0.00 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 40 Year of interview
2006 2007
30
20
31.5 28.4 27.4 26.4 26.0 26.9 24.4 22.7 10 18.5 19.5 16.4 the municipality (0-100) municipality the Mean personal influence on 0 R S F P C A S A í h r i a r a r o u a n l e n c n d v n h V s c a a i L i e h i l s l o d r u s ( la r o d f c L (L s e n e in o o n a d j o (E z (E i d a ja o ( s ( e ) ) l N m S O O (E a u r ro s p e c e ) m o ra u l ) l m la e d b n r a a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure IV-11. How much influence do you have on what the municipality does?
Municipal Development in Ecuador: 2004-2007 IOM Survey 108 Chapter IV: Local Problems, Efficacy and Responsiveness
We followed that question with one that asks respondents to select from a list of 10 possible options which one on the list has the greatest influence over decisions the municipality takes. As these results are too complex for a graph, they are presented in tabular form (see TableIV-3). In both 2004 and 2005, the mayor stands out as having the strongest influence.
Municipal Development in Ecuador: 2004-2007 IOM Survey Chapter IV: Local109 Problems, Efficacy and Responsiveness
Table IV-3. Who has the most influence on municipal decision-making?
Original Municipalities
Joya de Joya de Joya Eloy Eloy Eloy Lago Lago Lago Putu- Putu- Putumayo Cascales Cascales Cascales los los de los Alfaro Alfaro Alfaro Agrio Agrio Agrio mayo mayo 2007 2004 2005 2007 Sachas Sachas Sachas 2004 2005 2007 2004 2005 2007 2004 2005 2004 2005 2007 The mayor 78.4% 67.6% 32.4% 44.3% 60.1% 64.5% 56.9% 62.8% 79.1% 43.3% 50.9% 64.5% 47.3% 65.3% 64.1% (president of city council) The mayor's 9.9% 8.1% 21.7% 28.5% 23.7% 4.7% 19.7% 6.0% 8.2% 24.2% 17.1% 13.7% 35.6% 11.1% 4.3% party City Council 7.1% 18.8% 27.6% 25.5% 10.3% 6.2% 22.2% 24.2% 4.5% 31.7% 27.1% 20.8% 16.3% 15.5% 25.6% Your Province's .7% .4% 5.1% 1.3% 2.4% 1.4% .4% 2.0% 1.0% .8% .7% -- -- 2.6% 1.1% Deputy Central 2.5% 2.9% 10.7% -- 1.7% 21.7% -- 2.3% 6.8% -- 2.2% .7% .4% 1.5% 3.9% Government Communitarian 1.1% 1.5% 1.5% -- 1.7% 1.1% .8% 1.7% .3% -- 1.5% .3% -- 1.5% 1.1% Organizations NGOs -- .4% .7% -- -- .4% ------1.1% --
Private .4% -- .4% .4% ------1.0% -- -- .4% -- -- 1.5% -- entrepreneurs Others -- .4% ------.4% -- -- Total 100.0% 100% 100% 100.0% 100.0% 100% 100.0% 100.0% 100% 100.0% 100.0% 100% 100.0% 100.0% 100%
Municipal Development in Ecuador: 2004-2007 IOM Survey Chapter IV: Local110 Problems, Efficacy and Responsiveness
New Municipalities
Río Río Shushufindi Shushufindi Francisco de Francisco Pindal Calvas 2007 Arenillas 2007 San Archidona 2007 Verde Verde 2006 2007 Orellana 2006 de 2007 Lorenzo 2006 2007 Orellana 2007 2007 The mayor 65.5% 85.2% 59.9% 41.2% 78.5% 73.8% 73.3% 68.6% 57.0% 76.8% 74.4% (president of city council) The mayor's 7.9% 2.8% 15.1% 17.3% 1.7% 5.1% 11.9% 14.0% 15.8% 8.1% 13.0% party City Council 12.0% 8.3% 11.1% 28.2% 14.7% 8.2% 11.5% 11.1% 18.4% 7.0% 7.5% Your Province's 3.0% .3% 3.9% 2.5% 2.0% 3.4% .4% 1.8% 3.7% 1.8% 1.4% Deputy Central 3.0% 1.7% 5.4% 4.7% 1.7% 9.2% 1.9% 3.7% 3.7% 6.0% 2.4% Government Communitarian 4.5% 1.0% 2.5% .7% 1.0% .3% .4% -- .7% - .7% Organizations NGOs 3.0% .3% 1.8% 2.2% ------.4% -- .4% --
Private 1.1% -- .4% 3.2% .3% -- .7% .4% -- -- .7% entrepreneurs Others ------.7% -- -- Total 100% 100% 100% 100% 100% 100% 100% 100% 100% 100% 100%
Municipal Development in Ecuador: 2004-2007 IOM Survey 111 Chapter IV: Local Problems, Efficacy and Responsiveness
Conclusions
This chapter has provided an X-ray of the concerns expressed by the residents of the 13 selected municipalities. We now know what are the problems that are most commonly seen as being important. We also know how efficacious citizens feel about their ability to solve local problems, and we have an image of the degree to which their municipal governments are seen as responsive to their needs. The findings here consistently demonstrated that there is variation across municipalities, and that the improvement in perceptions of mayoral and municipal responsiveness between 2004 and 2005 were often not sustained in several municipalities in 2007.
Municipal Development in Ecuador: 2004-2007 IOM Survey 112 Chapter V. Human Trafficking
V. Human Trafficking
In the last chapter of this report, we present findings for a new series of questions that were asked in the 2005 and 2007 surveys. The questions relate to human trafficking. We are unable to compare responses to these questions to the 2004 survey because they were not asked then, but the answers to the questions shed light on issues that are of growing concern in Ecuador. The question wording for the basic core of questions is as follows:
EXPLOIT1.¿Sabe Ud. De casos de personas, incluyendo niños/as y adolescentes, que en el último año han sido víctimas de explotación laboral, es decir, que aceptaron trabajos en que otros les quitan el dinero que ganan, y no pueden abandonar su trabajo porque están amenazados?
1Sí 0 No 8 NS/NR
EXPLOIT2. ¿Sabe Ud. de algún caso de mujeres, adolescentes o niñas que en el último año han sido víctimas de explotación sexual, es decir, les obligaron a trabajar como prostitutas?
1Sí 0 No 8 NS/NR
EXPLOIT3.En su opinión, de los siguientes grupos de personas ¿cuál es lo más victimizado por casos de explotación laboral? [LEER LISTA]
1. Niños 2. Niñas 3. Adolescentes Varones 4. Adolescentes Mujeres 5. Adultos Varones 6. Adultos Mujeres 7. Ninguno 8. NS
EXPLOIT4.En su opinión, de los siguientes grupos de personas ¿cuál es lo más victimizado por casos de explotación sexual? [LEER LISTA]
1. Niños 2. Niñas 3. Adolescentes Varones 4. Adolescentes Mujeres 5. Adultos Varones 6.Adultos Mujeres 7. Ninguno 8. NS
First, we focus on perceptions of the prevalence of labor exploitation. In Figure V-1 we show that perceptions of the prevalence of labor exploitation have increased markedly in Eloy Alfaro and Joya de los Sachas between 2005 and 2007, but decreased in Lago Agrio, Putumayo, and Cascales (though the decrease in Cascales was not statistically significant). Between 2006 and 2007 in the new municipalities, perceptions of labor exploitation increased in Río Verde and Francisco de Orellana, but decreased in Shushufindi.
Municipal Development in Ecuador: 2004-2007 IOM Survey 113 Chapter V. Human Trafficking
Sample: Original five municipalities Year of interview 2005 2007 60.00
40.00
55.1 % exploitation 47.5 % 45.7 41.7 % 20.00 % 30.2
Percent aware of labor 27.6 % % 23.4 % 21.6 % 14.1 13.6 % %
0.00 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 80 Year of interview
2006 2007
60
40 71.1
exploitation 51.6 52.9
40.6 20 36.4 38.5 33.5 29.0 24.3
Percent aware of labor Percent aware of labor 21.8 15.8
0 R S F P C A S A í h r i a r a r o u a n e n c n d lv n h V s c a a i L i e h i l s l o d r u s la o d f c (L ( s re n e in o o L n a d j o ( z (E i d a ja E o ( s ( e ) ) l N m S O O (E a u r ro s p e c e m o r u l ) ) a m la e ld n r a b a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor
Error bars: 95% CI
Municipal Development in Ecuador: 2004-2007 IOM Survey 114 Chapter V. Human Trafficking
Figure V-1. Aware of cases of labor exploitation
Just as there was an increased in awareness of labor exploitation between 2005 and 2007 among Eloy Alfaro and Joya de los Sachas residents, these same municipalities also experienced an increase in awareness of sexual exploitation (see Figure V-2). Awareness of sexual exploitation decreased in Lago Agrio. In the new municipalities, awareness increased in Río Verde and Francisco de Orellana, and decreased in Shushufindi.
Municipal Development in Ecuador: 2004-2007 IOM Survey 115 Chapter V. Human Trafficking
Sample: Original five municipalities Year of interview 2005 2007 60%
40%
55.6%
exploitation 49.6%
42.3% 20% 40.4% 31.8% Percent aware of sexual 23.4%
17.0% 16.2% 17.7% 12.5%
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities 80% Year of interview
2006 2007
60%
40% 73.4 %
55.7
exploitation % 49.2 % 20% 37.6 37.9 33.2 % 34.2 % % % 29.0 27.5 % 24.3 % %
Percent aware of sexual Percent aware of sexual 13.1 % 0% R S F P C A S A í h r i a r a r o u a n l e n c V s n d v n h h c a a i L i e i l s ll o d r u s ( a r o d f c L ( s e n e in o o L n o ( a ( d d ja j E z ( E i e ) a l o N s ( ) O m S O (E a u r ro s p e c e ) m o ra u l ) l m la e d b n r a a a s ío ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor Error bars: 95% CI Figure V-2. Aware of cases of sexual exploitation
Municipal Development in Ecuador: 2004-2007 IOM Survey 11 6 Chapter V. Human Trafficking
IOM residents were asked which demographic segments of the population are most commonly victimized by labor exploitation. As shown in Figure V-3 below, in both the original and new municipalities, a large percentage of respondents said they do not know (17% and 10% respectively). The second most commonly given response was that boys are the primary victims.
Municipal Development in Ecuador: 2004-2007 IOM Survey 11 7 Chapter V. Human Trafficking
Sample: Original five municipalities Of the following groups, which is the most victimized by labor exploitation? Boys Girls 16.9% Adolescent males Adolescent females Men Women … 28.2% None Don't know
3.6%
12.9%
18.9%
16.7%
Sample: New muncipalities Of the following groups, which is the most victimized by labor exploitation?
9.9% Boys Girls Adolescent males … Adolescent females Men
6.6% Women None 34.0% Don't know
13.1%
17.6% 16.2%
Figure V-3. Chief victims of labor exploitation: 2007 IOM sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 118 Chapter V. Human Trafficking
Patterns in perceptions of who are the chief victims of sexual exploitation are somewhat different. As shown in Figure V-4, the percentage of respondents who said that they did not know who the main victims are was similar to the percentage in the question regarding labor exploitation. However, among respondents who were able to name a primary target, the vast majority named adolescent females and girls.
Municipal Development in Ecuador: 2004-2007 IOM Survey 119 Chapter V. Human Trafficking
Sample: Original five municipalities Of the following groups, which is the most victimized by sexual 3.6% exploitation? Boys Girls Adolescent males 17.7% Adolescent females Men Women
… None Don't know … 37.5%
34.8%
3.5 %
Sample: New muncipalities Of the following groups, which is the most victimized by sexual exploitation? 4.6% 9.5% Boys Girls Adolescent males … 2… Adolescent females … Men Women None Don't know
35.4%
44.0%
…
Figure V-4. Chief victims of sexual exploitation: 2007 IOM sample
Municipal Development in Ecuador: 2004-2007 IOM Survey 120 Chapter V. Human Trafficking
The penultimate set of questions in the exploitation series asked whether respondents were aware of resources they can access to report cases of labor and sexual exploitation, and to seek help for victims of both types of exploitation. The chart below shows the percentage who said that they are aware of such resources, as opposed to saying that they are not, that they did not know, or that they refused to answer.
Sample: Original five municipalities Do you know of institutions where you can go to report a 80% case of labor exploitaton? Do you know of institutions where you can go to report a case of sexual exploitaton? Do you know of institutions where you can go to get assistance for victims of labor exploitation? Do you know of institutions 60% where you can go to get assistance for victims of sexual exploitation?
40%
Percent 70.9 69.6 68.3 63.3 64.0 60.1 57.3 55.6 56.5 52.4 51.8 51.1 49.9 49.9
20% 37.5 38.0 34.6 34.0
28.2 27.5
0% Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Cases weighted by Weight factor
Error bars: 95% CI
Municipal Development in Ecuador: 2004-2007 IOM Survey 121 Chapter V. Human Trafficking
Sample: New muncipalities Do you know of 80% institutions where you can go to report a case of labor exploitaton? Do you know of institutions where you can go to report 60% a case of sexual exploitaton? Do you know of institutions where you can go to get assistance for victims of labor 40% exploitation? Do you know of
Percent 69 68 institutions where 64 62 63 you can go to get 60 61 61 assistance for 56 54 54 55 54 55 victims of sexual 49 50 50 50 50 46 46 exploitation? 44 44 20% 42 36 37 34 31 30 30
21 23
0% Río V S Francis P Calvas (Loja) A S A hus i an L ndal reni rchi er hufi ll dona ( as or de ( co (Lo enz ndi (E de Orel ja) E (S l o Napo) smeralda O (E ucum ro) sme lana (Orell bíos ral s das) ) )
ana
)
Municipio
Cases weighted by Weight factor
Error bars: 95% CI Figure V-5. Knowledge of where to report abuses: 2007 IOM sample
Finally, the questionnaire asked respondents to evaluate the work that authorities have carried out to remedy the problems of labor and sexual exploitation. Figure V-5 shows the mean response to the questions, which have answer choices that range from “very good” (100 on the scale) to “very bad” (0 on the scale). Within each municipality there is little difference in the evaluation of how authorities have handled labor and sexual exploitation. There are differences between municipalities, however, in the evaluations of the effectiveness of efforts to solve both problems.
Municipal Development in Ecuador: 2004-2007 IOM Survey 122 Chapter V. Human Trafficking
Sample: Original five municipalities How do you evaluate th work that the authorities have done to fight again the problem of labor exploitation? 60 How do you evaluate th work that the authorities have done to fight again the problem of sexual exploitation?
40
60.1 60.1 55.4 54.3 51.0 50.9 Mean evaluation 20 41.0 39.3 33.9 31.4
0 Eloy Alfaro Lago Agrio Putumayo Cascales Joya de los (Esmeraldas) (Sucumbíos) (Sucumbíos) (Sucumbíos) Sachas (Orellana) Municipio
Sample: New muncipalities How do you evaluate the work that the 60 authorities have done to fight against the problem of labor exploitation? How do you evaluate the work that the authorities have done to fight against 50 the problem of sexual exploitation?
40
30
Mean 54.6 52.4 48.4 46.4 46.1 45.6 44.8 44.2 40.8 40.2 20 38.4 38.5 38.4 37.9 35.1 37.0
10
0 R S F P C A S A í h r i a r a r o u a n l e n c s n d v n h V c a a i L i e h i l s l o d r u s ( la r o d fi c L (L s e n e n o o o n a d j (E z (E i d a ja o ( e ) l N s (S ) O ( a m u O r E p e c re o s o r u ) m ) a ll l m a e d b n ra a í a s o ld ) s ( a ) O s re ) l la n a ) Municipio Cases weighted by Weight factor
Error bars: 95% CI Figure V-6. Evaluation of fight against trafficking
Municipal Development in Ecuador: 2004-2007 IOM Survey 123 Chapter V. Human Trafficking
Conclusion
This chapter has offered preliminary insights into two growing concerns in Ecuador: labor and sexual exploitation. We have seen that some of the IOM cantons perceive these kinds of exploitations to be more widespread than others, and that some cantons are more aware of resources to addresses them than others. We have also observed that there is variation across the cantons in satisfaction with the way authorities have tried to combat labor and sexual exploitation.
Municipal Development in Ecuador: 2004-2007 IOM Survey 124 Questionnaire
VI. Questionnaire in Spanish