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Linking Civil Society and the State gerd schönwälder IDRC.ub. -t_n_- — AR.Ct4)V SCltopn,) -i'o. the pennsylvania state university press university park, peunsylvaeis linking civil society and the state urban popular oveeots,the left. andlocal government in peru, 1980—1992 gerd schönwãkler Library of CongressCataloging-in-Publication Data Schönwalder, Gerd, 1958— Linking civil society and the state : urban popular move- ments, the Left, and local governmentin Peru, 1980—1992 I Gerd Schönwälder. p. cm. Includesbibliographical references and index. ISBN 0-271-02180-2(cloth : acid-free paper) I/Local government—Peru. 2. Urban poor—Peru—Political activity. 3. Democratization—Peru. 4. New Left—Peru. 5. Social movements—Peru. I. Title. J52667.A2S36 2002 320.8'0985—dc2l 2001055955 Copyright © 2002 The Pennsylvania State University All rights reserved Printed in the UnitedStates of America Published by The Pennsylvania State University Press, University Park, PA 16802-1003 It is the policy of The Pennsylvania State University Press to use acid-free paper for the first printing of all clothboundbooks. Publications on uncoated stocksatisfy the minimumrequire- ments of American National Standardfor InformationSciences— Permanence ofPaper for Printed Library Materials,ANSI Z39.48—1992. Futureevents. will depend, not on academic predic- tions, but on collective action guided by politicalwills that make work what is structurally barely possible. —E H. Cdosoand E. Faletto I am convinced that ifwe had not learned from Marxism to see historyfrom the point ofview ofthe oppressed, gaining a new and immense perspective on the human world, there would have been no salvation for us. —Noiberto Bobliio contents Acknowledgments ix List of Abbreviations and Frequently Used Acronyms xi Introduction i PART ONE i Urban PopularMovements in Latin America: Identity, Strategy, and Autonomy 9 z Decentralization and the Participation of Urban Popular Movements in Local Government 35 RTTh 3 Urban PopularMovements, Political Parties, and the State in Peru 6i 4 The Peruvian Left and Local Government in the Early 198os 89 5 The Barrantes Administration of Metropolitan Lima, 1984—1986 113 6 Revolutionary and Radical-DemocraticApproaches in Conflict i Conclusions and Epilogue 185 Appendix: List of Interviews Z05 Glossary of Frequently Used Spanish Terms Z09 References zi i Index Z33 vu acknowledgments As is the case with most studies, many people have contributed to this one, and I cannot possibly name them all. First, my thanks go to all those who were willing to be interviewed. I thank them for sparing some of their precious time, for their warmth and friendli- ness with which they welcomed me in their midst, and for their patience in answering my questions and in explaining, often repeat- edly, the more complex aspects of their various activities. I came away from my research with a deeper understanding of the adver- sity many of them face on a daily basis and a greater appreciation of their achievements under these difficult circumstances. Furthermore, I would like to thank the Centro de Estudios para el Desarrollo y Ia Participación (CEDEP)for offering me a home base during my research stay in Lima. I am grateful to everybody at CEDEP, not only for letting me use the facilities of the Centro and their help in collecting research materials, but also for making my stay a fruitful and pleasantone. I would like to express my spe- cial gratitude to Eliana Chavez, who was instrumental in opening CEDEP's doors to me and who later facilitated vital contacts all over Lima and supportedmy research every step of the way. Car- los Franco likewise deserves special thanks for his willingness to share his immense experience and knowledge with me, as well as for his help in organizing a seminar on my research at the end of my stay in Lima. Eddy Márquez, for his part, proved to be, not only a superbly efficient research assistant, but also a witty and lively conversation partner who enlightened me on many a mystery Ix I of Peruvian politics and culture during those seemingly interminable waits between interviews. I should not forget to mentionmy office mates, partic- ularly Edmundo Beteto, Juan Chacaltana, and LolaCastro, who introduced me to the depths and finesse of limeño humor, which I have sorely missed ever since. Finally, I would like to thank Juan Miguel Zegarra and Raül Haya de la Torre of the Centro Constitución y Sociedad in Lima for their help in setting up some important interviews, as well as for the discussions we had about commonresearch interests. At McGill University in Montreal, I am especially indebted to Philip Oxhorn, my supervisor when this book was still a doctoral dissertation. Henry Dietz of the University of Texas at Austin likewise provided valuable advice, as well as encouragement. I would also like to thank McGill's Cen- ter for Developing Area Studies (CDAS) for providing office space during my time in Montreal, Cara Murphy and lain Blair of the Documentation Center of CDAS for their assistance in collecting research materials, and all other members and visitors of CDAS,particularly Gleema Nambiar, for the animateddiscussions we had, either at fellows' seminars and presentations, or simply over lunch or coffee. I am also thankfulthat the staff of McLen- nan Library and especially its Interlibrary Loan Department remained unperturbed even by my more obscure requests. On the way from thesis to book, the editorialstaff of Pennsylvania University Press deserve credit for their professionalism and efficiency. The two anonymous reviewers con- tacted by the Press provided invaluable comments and advice, helping to distinguish the manuscript from earlier drafts and to draw in more recent debates. As always, though, responsibility for any errors or omissions rests with me. Funding for this study was provided in part through a Government of Canada Award from the Department of External Affairs and a research grant from McGill University,which is gratefully acknowledged. Last but not least, I want to express a special thank you to Janet Dorozynski for putting up with me all this time and for taking the time to help me through some of the more difficult passages of this project. abbreviations and frequently used acronyms AP Acción Popular (Popular Action Party, center-right) APRA Alianza Popular Revolucionaria Americana (Amer- ican Popular Revolutionary Alliance, center-left) CEDLA Center for Latin American Research and Documentation CEDYS Centro de Estudios de Democracia y Sociedad CELATS Centro Latinoamericano de TrabajoSocial CENCA Centro de Capacitación y AsesorIa (NGO operat- ing in the districtof El Agustino) CENDIPP Centro de Investigación y Promoción Popular (NGO operating in the district of El Agustino) CG Comité de Gestión (Management Committee) CIDAP Centro de Investigaciones,Documentación y AsesorIa CTIC Comité Coordinador Técnico Intercentros (coordi- nating committee of the three main NGOs operat- ing in the districtof El Agustino) DESCO Centro de Estudios y Promoción del Desarrollo D.L. Decreto Ley (Decree Law) FODECO Fondo de Desarrollo Comunal (Communal Devel- opment Fund, provided funding for the MIADES in the district of El Agustino) FOVIDA Fomento de La Vida FFE Fundación Friedrich Ebert GREDES Grupo de Estudios para el Desarrollo XI xl ktexiatiofls IEP Instituto de Estudios Peruanos IFEA Instituto Frances de Estudios Andinos INVERMET Fondo de Inversiones Municipales (Municipal Investment Fund in Metropolitan Lima) IPADEL Instituto para la Democracia Local ISS Institute of Social Studies IU Izquierda Unida (United Left) MAS Movimiento de Afirmación Socialista (Movement of Socialist Affirmation, leftist) MIADES Micro-Areas de Desarrollo (Micro-Areas of Development in the district of El Agustino) PMR Partido Mariateguista Revolucionario (Revolutionary Mariateguist Party, leftist) PUC PontIfica Universidad Católica del Peru PUM Partido Unificado Mariateguista (United Mariateguist Party, leftist) SEA Servicio Educativo de El Agustino (NGO operating in the district of El Agustino) SINAMOS Sistema Nacional de Apoyo a la Movilización Social (National System for the Support of Social Mobilization, created by the Velasco government in 1971) introduction Local politics in Latin America has been attracting a great deal of scholarly interest of late (see Fox '994; Nickson 1995; Reilly 1995). This interest can be attributedin part to the simple fact that over the past two decades, the institu- tional weight of Latin American local governments has con- tinued to grow, spurred as much by the popularity of decentralization policies as by the seminal crisis of the central states in the region. Faced with shrinking resources and painful structural adjustment programs,central governments 2 LiISedetyaidtheSWe were often left with no other choice but to divest themselves of responsibil- ities they could no longer meet. Even more important, local governments in Latin America have aroused the curiosity of social scientists and other observers because they seem to be situated at the confluence of two other seminal trends: the resurgence of civil society, particularly in the urban realm, and the democratization of for- merly authoritarianregimes. When viewed from this angle, local govern- ments appear to provide a crucial meeting ground for the myriad social movements and groups that emerged during and after the transitions from authoritarian rule to focus on such issues as the improvement of urban serv- ices, women's rights, nutrition, and public health (see Eckstein 1989;Esco- bar and Alvarez
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