01FM (i-vi) 12/9/02 11:13 AM Page iii POWER AND POLITICS IN UNIVERSITY GOVERNANCE Organization and Change at the Universidad Nacional Autónoma de México Imanol Ordorika RoutledgeFalmer New York & London 01FM (i-vi) 12/9/02 11:13 AM Page iv Published in 2003 by RoutledgeFalmer 29 West 35th Street New York, NY 10001 www.routledge-ny.com Published in Great Britain by RoutledgeFalmer 11 New Fetter Lane London EC4P 4EE www.routledge.co.uk RoutledgeFalmer is an imprint of the Taylor & Francis Group Printed in the United States of America on acid-free paper. Copyright © 2003 by Taylor & Francis Books, Inc. All rights reserved. No part of this book may be reprinted or reproduced or utilized in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publisher. 10 9 8 7 6 5 4 3 2 1 Library of Congress Cataloging-in-Publication Data Ordorika, Imanol. Power and politics in university governance : organization and change at the Universidad Nacional Autónoma de Mexico / by Imanol Ordorika. p. cm. — (RoutledgeFalmer dissertation series in higher education) Includes bibliographical references. ISBN 0-415-93515-6 1. Universidad Nacional Autónoma de México. 2. Higher education and state— Mexico—Case studies. I. Title. II. Studies in higher education, dissertation series. LE7.M599 .O73 2002 378.72'53—dc21 2002069896 01FM (i-vi) 12/9/02 11:13 AM Page v A Imanoltxu y Amaya, porque arrasan todo con su alegría y su intensidad. A Mireya, porque eres el centro desde el que lanzamos todas nuestras campañas y al que corremos a refugiarnos en las desventuras. A los estudiantes en lucha que fueron el impulso que dio sentido a mi vida política y académica y que en México son un punto de referencia para quienes luchamos por transformar a nuestro país y a la Universidad. A los estudiantes de entonces y a los de ahora. 01FM (i-vi) 12/9/02 11:13 AM Page vi 02Contents vii-viii) 12/9/02 11:14 AM Page vii Contents PREFACE ix LIST OF MAIN ACRONYMS USED IN TEXT xiii CHAPTER 1 Introduction 1 Universities and Conflict in a Historical Perspective 2 The Study of Politics and Conflict in Higher Education Today 4 An Alternative Conceptual Frame 6 The Nature of Politics and Autonomy at UNAM 7 The Process of Change at UNAM 10 Methodology and Data Sources 11 CHAPTER 2 A Model for the Study of Politics, Governance, and Change in Higher Education 17 Limitations of Existing Models and Analytical Perspectives 19 Theoretical Foundations of a Hegemonic Model 20 The Hegemonic Model of Politics and Governance in Higher Education 31 Conclusion 33 CHAPTER 3 The State, the Political System, and the University 37 The Mexican State and the Authoritarian Political System 38 Antecedents of the Universidad Nacional: Development of a Political Culture 44 vii 02Contents vii-viii) 12/9/02 11:14 AM Page viii viii Contents Developmentalism and National Unity 53 A New Hegemony 57 Summary: Authoritarianism in the University 67 CHAPTER 4 The End of University Politics 77 The Institutionalization of Power 78 Summary: The Politics of De–politicization 100 CHAPTER 5 Democratization of the University 113 1968 and the University 116 The Democratization of UNAM 122 Summary: Post–1968 Politicization 139 CHAPTER 6 A Conservative Restoration 157 The Junta Appoints a New Rector 159 Rector Soberon’s Forcible Entry 160 Soberon’s University Project 162 Dispute Over the University 164 The Battle for Unionization 170 Bureaucratic Authoritarianism 177 CHAPTER 7 Conclusions 191 The University and the State: Autonomy and Conflict 192 UNAM: Power and Politics 195 The Limits of University Autonomy 208 Politics and Change 220 Closing remarks 222 APPENDICES 233 BIBLIOGRAPHY 251 INDEX 267 03Preface (ix-xi) 12/9/02 11:14 AM Page ix Preface This book is based on my doctoral dissertation Power, politics, and change in higher education: the case of the National Autonomous University of Mexico. It is a product of my long involvement with student and faculty struggles at the Universidad Nacional Autónoma de México (UNAM). It entails an effort to understand the nature of political processes in higher education. This understanding is in itself important in the contemporary context of increased conflict in colleges and universities at the worldwide level. It is also relevant at a local level in order to inform future efforts for the transformation of our National University and in this way participate in the democratization of Mexico. This work is an attempt to make sense of my own life as a political activist and a researcher. I have been marked forever by my early memories of the student movement of 1968, by the years of despair and hopelessness of many defeats, and by the marvelous experience of the Consejo Estudiantil Universitario from 1986 to 1990. Images of its student gather- ings, its huge demonstrations, the strike, the University Congress, and the public debates with University authorities will remain in my memory as some of the most exciting and fulfilling experiences in my life. I hope that I will never lose the generosity, spirit, commitment, passion, and collective will that student struggles gave many of us during the memorable journeys of the Consejo Estudiantil. This research on the power and politics of higher education is based on an intense theoretical reflection about political processes occurring in col- leges and universities. The study of the Universidad Nacional Autónoma de México is founded on these theoretical considerations. An important part of this research is the product of interviews with key political actors with- ix 03Preface (ix-xi) 12/9/02 11:14 AM Page x xPreface in this institution. I want to thank them, Jesús Aguirre Cárdenas, Francisco Barnés, Daniel Cazés, Luis de la Peña, Jorge Del Valle, Luis Javier Garrido, Henrique González Casanova, Gilberto Guevara Niebla, Carlos Imaz Gispert, Javier Jiménez Espriú, Jorge Madrazo Cuéllar, Salvador Martínez Della Rocca, Jaime Martuscelli, Eliezer Morales Aragón, Humberto Muñoz García, Inti Muñoz, Manuel Peimbert Sierra, Evaristo Pérez Arreola, Fernando Pérez Correa, Guillermo Soberón Acevedo, Luis Villoro, Miguel José Yacamán, and Sergio Zermeño for their willingness to partic- ipate in these interviews and their support for this research. I also want to thank Celia Ramírez, director of the Archivo Histórico de la UNAM, as well as Alicia Alarcón, and other members of the executive office of the University Council for allowing me to use archival material in this research. The initial ideas for this work originated in multiple discussions with student and faculty colleagues in political gatherings and academic settings at UNAM. I recall many sessions with fellow student and faculty leaders among whom my brother Antonio Santos, as well as my comrades Óscar Moreno, Inti Muñoz, and Adolfo Gilly should be noted. I thank them for their solidarity and friendship in good and bad times. The first notions of university elites and the study of power relations in higher education emerged from never–ending discussions with Humberto Muñoz, my advisor at UNAM, and my friend and colleague in spite of political differences. At Stanford I came in contact with Martin Carnoy, Hank Levin, Patti Gumport, and John Meyer among other faculty members. As my advisor Martin provided intellectual guidance and a thorough understanding of political issues in Mexico. Martin and Hank not only offered the theoreti- cal foundation for my own work, but also helped me develop a critical stance towards mainstream theories and polished my views on power and politics in education. Patti Gumport opened the field of higher education for me. She introduced me to literature, research methods, and colleagues that have become fundamental in my academic and professional develop- ment within this field. John Meyer read my work at its early stages and offered a thorough and supportive critique as well as invaluable sugges- tions. Lorenzo Meyer provided the historical structure for my dissertation and rooted my work in the Mexican reality. Lorenzo’s enthusiastic support and good humor became a soothing remedy during the toughest part of the writing process. My student colleagues were the source of the most interesting intellec- tual challenges and the best times at Stanford. With my brothers Brian Pusser and Ihron Rensburg, I shared academic and political passions. Sandy Stein, Chris Mazzeo, and I enjoyed together the early years of this academic journey. Luis Benveniste, Diana Rhoten, and Michel Welmond helped me bring this project to a closure in our humorous but effective 03Preface (ix-xi) 12/9/02 11:14 AM Page xi Preface xi writing group that will not be forgotten. Ken Kempner and Gary Rhoades read important sections of this manu- script and provided good insights that have improved my work. They have become intellectual comrades in diverse academic projects. My Mexican colleagues and compañeros Hugo Casanova, Alma Maldonado, Alejandra Recillas, and Roberto Rodríguez were the objects of my constant requests for help and information. My teachers and friends at the UNAM have always been a source of support and encouragement for me in many situations. I thank Alipio Calles, Ana María Cetto, Montserrat Gispert, Raúl Gómez, Marili, Pepe, and Vivianne Marquina, Annie Pardo, Manuel Peimbert, Luis de la Peña, and Rosalía Ridaura at the Facultad de Ciencias; Arturo Bonilla, Fernando Carmona, José Luis Ceceña, Elvira Concheiro, and the late Sergio de la Peña at Investigaciones Económicas; as well as Alejandro Álvarez, Alfredo López Austin, and Jorge Martínez Stack. I also thank the UNAM and the Instituto de Investigaciones Económicas for supporting my doctoral studies at Stanford. Phil Altbach encouraged me to review my dissertation and publish this book.