Linking Urban Centres and Rural Areas in Bolivia
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World Derelopment. Vol. II, No. I, pp.31—53 1983. 0305—750X!83/0l003 1—23803.00/0 Printed in Great Uritain. © 1983 Pergamon Press Ltd. Integrated Regional Development Planning: Linking Urban Centres and Rural Areas in Bolivia DENNIS A. RONDINELLI* Syracuse University and HUGH EVANS Massachusetts Institute of Technology Summary. — Ilighly polarized settlement systems in developing countries reflect and iend to reinforce strong disparities in levels of development between the largest city and other regions and between urban centres and thefr hinterlands in rural regions. Integrated regional develop ment planning seeks to create a more diffuse and articulated system of settlements in order to diversify the services and facilities available to rural residents, increase theiraccess to town-based markets, new sources of agricultural inputs and non-agricultural employment opportunities, and to provide guidelines for sectural investment and lomtion decisions. One approach to integrated regional development planning — ‘Urban Functions in Rural Development’ — was tested in the Department of Potosi, Bolivia, and its results provide insights not only into the metl,odology of analysis but also into the complex relationships among rural development, patterns of human settlement and processes of spatial interaction. I. INTRODUCTION happened in many industrialized countries of Europe and North America. But experience has The pattern of economic development that shown that the trickle down effects of concen has emerged in most of South America during trated investment have not been as strong as the past 25 years has been highly dualistic. expected in most developing nations. The bene Economic and social progress can clearly be fits of concentrated growth have accrued mainly seen in the industrial sectors of most countries to upper-income groups, skilled labourers, large and in the largest metropolitan areas — where landowners and other privileged elites in the the bulk of modem industry, infrastructure, big cities who can mobilize capital and other services and institutions are concentrated — but resources. Development has failed to filter pervasive poverty remains in rural areas where and spread to the poor in peripheral rural nearly 4O; of the population lives. Large and areas. Instead, in many developing countries growing disparities in income, wealth and access the economy has become more dualistic: the to services and productive resources are evident wide disparity between modern and traditional among different income groups, between urban sectors has increased, and the spatial system and rural areas, and between more and less has become more polarized. Many countries urbanized regions. have ‘primate city’ structures, in which one The economic dualism that characterizes major city or region has grown to such a large development in South America is reflected in size and amassed such a large proportion of and reinforced by a polarized settlement pattern. Investment in productive activities, * infrastructure, services and facilities has gener Research for this paper was partially funded through a project in Bolivia sponsored by the Regional and ally been concentrated in the largest cities in Rural Development Division, Science and Technology the belief that the higher returns in these Bureau, US Agency for International Development centres would accelerate economic growth, and by the US AID Mission in Bolivia. The opinions and the benefits would ‘trickle down’ and and conclusions, however. are those of the authors spread out to smaller cities and rural areas, as and do no necessarily reflect US A ID policy. II I 32 WORLD DEVELOPMENT national resources that it dominates the development planning, the ‘Urban Functions national space economy.’ in Rural Development (UFRD)’ approach, Potosi It is now recognized that such an economic which was tested in the Department of and spatial development pattern not only fails in Bolivia through a grant from the US Agency to generate growth in rural areas, but drains for International Development. The paper them of their resources in order to maintain review’s tile problems associated with polarized the primacy of the largest cities. It discourages and unintegrated settlement patterns in South the growth of secondary urban centres and America and especially in Bolivia; describes the smaller settlements in rural areas, and eventually concept of integrated regional development inhibits further expansion of the national that lies behind the UFRD approach; and economy, preventing widespread distribution outlines the methodology used to analyse the of the benefits of growth.2 spatial system in the Department of Potosi; Historical studies of economic development and summarizes the findings of the analyses in both industrially advanced and developing and the resulting plans, policies and projects. nations have shown that a key to internal economic growth has been the close relation ship between urban centres and the countryside, 2. SPATIAL SYSTEMS AND ECONOMIC and the emergence of market towns and small DEVELOPMENT IN SOUTH AMERICA and intermediate size cities that stimulate the commercialization of agriculture, facilitate the Spatial development in much of South efficient production and exchange of goods America is a reflection of polarized urban throughout the national economy, provide ization and dualistic economic growth. Urban access for rural people to central places that ization has spread in most of the continent, have sufficient numbers of inhabitants to but it has been heavily concentrated in a support a wide range of services and facilities, relatively few places. Economic progress in and that offer off-farm employment oppor the big metropolises has attracted a steady tunities.3 But in much of the developing stream of migrants from poverty-stricken world, the spatial system is not well articulated rural areas. Average annual growth rates of and a hierarchy of different size settlements, urban population have been higher than total performing specialized functions, and linked average annual population increases in every together in a mutually beneficial system of Latin American country since 1960. Increases production and exchange, has not emerged. in the percentage of population living in urban Thus, there has never been an appropriate areas between 1960 and 1975 were dramatic — more in spatial structure through which the benefits of in many countries rising by I 5% or concentrated investment could filter down and Brazil, Colombia and Peru, and by more than spread out, or that would generate productive I 0% in Chile and Venezuela. activities in rural hinterlands.4 Whatever the But in most South American countries the merits of the original theory of concentrated highly concentrated pattern of urbanization in investment — and there are strong indications has created ‘primate city’ spatial structures, that many aspects of it were inappropriate — 1975 more than 40% of the urban population in most underdeveloped countries the political, of Uruguay, Paraguay, Bolivia, Argentina and economic and spatial conditions required to Chile was concentrated in the largest city, as make the theory work effectively have never was more than a quarter of the urban popu been established. lation of Colombia, Venezuela and Ecuador. Both international assistance agencies and In Uruguay, Bolivia, Ecuador, Chile and some governments in developing countries Venezuela, a third or more of the urban popu began to recognize during the l97Os that a lation lived in only one or two cities with more articulated and integrated system of more than half a million people, while in Peru cities and towns was needed in rural regions 40% of the urban population lived in four to reduce urban—rural and regional disparities.5 cities of that size, and in Argentina 60% in New approaches to regional development five cities, Moreover, annual growth rates in were planning — aimed at integrating urban centres many leading cities of South America and rural hinterlands, building the capacity extremely high between 1960 and 1970, of towns and cities to stimulate rural econ ranging from a relatively modest 2.3% in omies, and increasing the access of rural popu La Paz to 7.0% in Bogota. During the past two lations to town-based services and facilities — decades, the growth of the urban population were tried in several countries. This paper in most countries, and of the principal city, reports on one method of integrated regional has surpassed the growth of GNP (see Table I). j INTEGRATED REGIONAL DEVELOPMENT PLANNING 33 Table 1. Selected economic and demographic characteristics of South American countfles Country Y/P dY P77 dP %PU6O %PU75 dI’UJ dPU, Brazil 1360 4.9 116.0 2.9 46.0 61.0 4.8 4.5 Argentina 1730 23 26.0 1.3 74.0 81.0 2.0 1.9 Colombia 720 2.7 24.6 2.1 48.0 66.0 5.2 3.9 Peru 840 2.3 16.4 2.8 46.0 63.0 5.0 4.5 Venezuela 2660 2.7 13.5 14 67.0 80.0 4.7 4.4 Chile 1160 1.0 10.6 1.7 68.0 79.0 3.1 2.5 Ecuador 790 3.1 7.3 3.0 34.0 42.0 4.4 4.1 Bolivia 630 2,3 5.2 2.9 24.0 30.0 4.1 4.2 Uruguay 1430 0.8 2.9 0.3 80.0 83.0 1.3 0.4 Paraguay 730 2.4 2.8 2.9 36.0 38.0 3.0 3.3 % Urban population % Urban population in Number of cities Annual growth in lamest city cities over 500,000 with over 500,000 rate of main Country 1960 1975 1960 1975 1960 1975 city 1960—1970 Brazil 14.0 16.0 35.0 50.0 6 12 6.4 Argentina 46.0 46.0 54.0 60.0 3 5 3.0 Colombia 17.0 24.0 28.0 48.0 3 4 7.0 Peru 38.0 39.0 38.0 39.0 I I 5,1 Venezuela 26.0 27.0 26,0 34.0 I 2 5.5 Chile 38.0 43.0 38.0 43.0 0 2 3.1 Ecuador 31.0 30.0 0.0 52.0 0 2 5.9 Bolwn 47.0 45.0 0.0 45.0 0 1 2.3 Uruguay 56.0 53.0 56.0 53.0 I 1 4.7 Paraguay 44.0 45.0 0.0 0.0 0 0 3.6 Sourcws: World Rank, World Dcrelopmcnt Report 1979 (Washington: VorId Bank, 1979); World Bank, Urban ization Sector Working Paper (Washington: World Bank, 1972).