The Changing Role of the Central Planning Offices in Latin America
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The Changing Role of the Central Planning Offices in Latin America A Comparative Historical Analysis Perspective (1950-2013) © 2014 Luis Bernardo Mejía Guinand All rights reserved. No part of this publication may be reproduced, stored on a retrieval system, or transmitted in any form, or by any means, electronic, mechanical, photocopying, recording or otherwise, without the prior permission in writing, from the author. ISBN 978 90 8666 332 3 Published by Boekenplan, Maastricht The Changing Role of the Central Planning Offices in Latin America A Comparative Historical Analysis Perspective (1950-2013) Dissertation to obtain the degree of Doctor at Maastricht University, on the authority of Rector Magnificus, Prof. dr. L.L.G. Soete in accordance with the decision of the Board of Deans, to be defended in public on Wednesday November 19 2014, at 14:00 hours by Luis Bernardo Mejía Guinand Promoter Prof. dr. Mark Bevir, Berkely Political Science, USA and Maastricht School of Governance, UM Supervisor Prof. dr. Angelika Rettberg, Political Science, Universidad de los Andes, Bogotá, Colombia Assessment Committee: Prof.dr. Chris de Neubourg, Maastricht University (Chairman) Prof.dr. Martin Lodge, London School of Economics Prof. dr. Theodorus Papodopoulos, University of Bath Dr. Zina Nimeh, Ph.D, Maastricht University This research is partially funded by Universidad de los Andes, Bogotá, Colombia To my daughter Alicia, the joy of my life Acknowledgements First and foremost, I would like to state my genuine gratitude to my supervisor Dr. Angelika Rettberg. I appreciate her involvement, contributions of time, ideas, and fieldwork funding to make my Ph.D. experience productive and motivating. The professionalism and enthusiasm she has for her own research was motivational for me, even during hard times in the Ph.D. quest. There are many other people and organizations that I sincerely thank for their contributions to this dissertation. I am especially grateful to Professor Mark Bevir not only for taking over the formal role of promoter late in the process, but also for his time, interest, and helpful comments. Also I am thankful to Professor Chris de Neubourg for his guidance and insightful questions during the development of this piece of work. I would like to express my gratitude to Dr. Mindel van de Laar for her support in every step of my Ph.D. I would like to thank my reading committee members Prof.dr. Chris de Neubourg, Prof.dr. Martin Lodge, Prof.dr. Theodorus Papodopoulos, Dr. Zina Nimeh for reading my dissertation and for useful suggestions and comments which helped to finalize it. I gratefully acknowledge the funding sources that made my Ph.D. work possible. During my first 3 years I was partially funded by Universidad de los Andes, through its Desarrollo Docente program. My fieldwork was also supported by the Universidad de los Andes Political Science Department. My gratitude is also extended to faculty members of the Political Science Department at Universidad de los Andes, whom in response both to seminar presentations and written drafts, provided helpful comments and suggestions that helped me in revising my manuscript. In particular, I would like to thank Monica Pachon and Luis Javier Orjuela for discussing my document a couple of times. I also benefited from the comments of Miguel Gandour and his staff at Gandour Consultores, particularly Diana Rocha, Christian Cadena and Carlos Mauricio Ortiz. The stimulating environment for discussing ideas that I found among them was essential to the realization of this study. My time at the Maastricht Graduate School of Governance was made enjoyable in large part due to the friends that became a part of my life there. I am thankful for time spent with colleagues from my 2008 cohort. Particularly, Aziz Atamanov, Sachin Badkas and Biniam Bedasso. My greatest debt goes to my wife Eliana Restrepo. Eliana has been essential to my completion of this study, as she has given me confidence and motivated me in so many ways. Eliana has read, discussed and improved everything I have written since we first met. For this, for her patience, support and unwavering belief in me, my deepest gratitude. Content Chapter 1: Introduction .............................................................................. 1 1.1 Outline of the dissertation .............................................................................. 4 Part I. Perspectives on Central Planning Agencies in Latin America: History and Theories of Organizational Change ................................... 7 Chapter 2: The variation of the structural arrangement of the central planning agencies in Latin America ......................................................... 8 2.1 The genesis of the central planning organizations .................................... 8 2.2 The waves of change in the planning agencies ........................................ 11 2.3 Conclusion ....................................................................................................... 15 Chapter 3: Theoretical approaches ......................................................... 16 3.1 Structural-instrumental perspective ........................................................... 17 3.2 Cultural-institutional perspective ............................................................... 22 3.3 Environmental perspective ........................................................................... 23 3.4 Task-specific perspective .............................................................................. 25 3.5 Endogenous and gradual organizational change ..................................... 26 3.6 Conclusion ....................................................................................................... 30 Chapter 4: Process tracing and causal mechanisms ............................. 32 4.1 Causal mechanisms in action ....................................................................... 33 4.2 Data collection methods ................................................................................ 39 4.3 Case studies selection criteria ...................................................................... 42 4.4 Conclusion ....................................................................................................... 43 Part II. Historical Narratives: Four Case Studies .................................. 44 Chapter 5: Argentina case study ............................................................. 45 5.1 The genesis and evolution of the planning agency ................................. 45 5.2 The National Development Council-CONADE ....................................... 47 5.3 The National Institute of Economic Planning-INPE ............................... 60 5.4 The Secretary of Planning ............................................................................. 66 5.5 The Ministry of Federal Planning, Investment and Services ................. 70 5.6 Conclusion ....................................................................................................... 73 Chapter 6: Ecuador case study ................................................................ 74 6.1 The genesis and evolution of the planning agency ................................. 74 6.2 National Board of Economic Planning and Coordination ...................... 75 6.3 National Development Council-CONADE ............................................... 86 6.4 National Planning Office-ODEPLAN ........................................................ 90 6.5 National Secretary of Planning and Development-SENPLADES ......... 91 6.6 Conclusion ....................................................................................................... 93 Chapter 7: Chile case study ..................................................................... 94 7.1 The genesis and evolution of the planning agency ................................. 94 7.2 The Chilean Development Corporation-CORFO ..................................... 95 7.3 The National Planning Office (ODEPLAN) ............................................ 100 7.4 The Ministry of Planning-MIDEPLAN .................................................... 118 7.5 Conclusion ..................................................................................................... 124 Chapter 8: Colombia case study ............................................................ 126 8.1 The genesis and evolution of the planning agency ............................... 126 8.2 The Department of Planning and Technical Services ........................... 128 8.3 The National Planning Department ......................................................... 133 8.4 Conclusion ..................................................................................................... 146 Part III. Comparative Perspectives and Conclusions ......................... 148 Chapter 9: The tale of four trajectories of organizational change .... 149 9.1 Similarities and differences among case studies .................................... 149 9.2 Organizational change in a nutshell: timelines of transformations ... 152 9.3 The weight of the structural-instrumental perspective ......................... 159 9.4 The weight of the cultural-institutional perspective ............................. 160 9.5 The weight of the environmental perspective ........................................ 161 9.6 The weight of the task-specific perspective ............................................ 163 9.7 Conclusion ....................................................................................................