Procesos de aprendizaje público-privado y cambios institucionales en la gestión de conflictos socio-ambientales de los territorios impactados por la minería en el Perú, 1990-2021
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2022-06-14
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Pontificia Universidad Católica del Perú
Abstract
La investigación tiene como objetivo conocer las capacidades de gestión de entidades
públicas y privadas para la mitigación y resolución de conflictos socioambientales, bajo
el modelo de concesión de territorio a diversas corporaciones extractivas de mediano y
gran capital en algunas regiones de la sierra del Perú. Se centró en las trayectorias y
procesos de aprendizaje de ambas organizaciones, pues en los hechos son aliados
estratégicos en el desarrollo extractivo, implementado en la región desde la época
colonial. Las prácticas de gestión de dichas entidades se estudian a partir del boom de
los commodities iniciado en la década de los 90 hasta el año 2021. Dichas acciones
debieran ejecutarse de acuerdo a competencias legales y roles sociales explícitos que,
en principio, se complementan para darle viabilidad no sólo económica a esta industria
y lograr ingentes réditos en favor del erario público; sino sobre todo a nivel social y
ambiental para que dicho modelo aspire a ser sostenible en el territorio y en la
población impactada directa e indirectamente. Los resultados muestran que las causas
que originan los conflictos socioambientales son difíciles y complejas de resolver
desde la agencia de los actores analizados. Las bases de las disputas y tensiones
tienen, por un lado, el tipo de bien en conflicto (bienes públicos concesionados por el
Estado a privados y bienes colectivos de las comunidades afectadas cuyo territorio
colinda con la infraestructura minera o se superpone) y por el otro a factores de
carácter estructural e histórico que el Estado y sus gobiernos de turno no han sido
capaces de resolver o enfrentar por generaciones: i) pobreza, exclusión, ii)
fragmentación de la población para plantear sus demandas, iii) débil capital social
(desconfianza para negociar); y iv) precariedad institucional (especialmente política).
Las condiciones mencionadas son afrontadas a partir de diversas estrategias legales e
instrumentales que de alguna manera han logrado cambios significativos en el manejo
de los conflictos. Sin embargo, estos todavía son insuficientes y por lo tanto no se
puede avizorar la reducción de los enfrentamientos.
The research seeks to know the management capacities of public and private entities for the mitigation and resolution of socio-environmental conflicts, under the model of concession of territory to various extractive corporations of medium and large capital in some regions of the Peruvian highlands. It focused on the trajectories and learning processes of both organizations, since in fact they are strategic allies in the extractives development implemented in the region since colonial times. The management practices of these entities are studied from the commodities boom, which began in the 1990s until the year 2021. These actions should be carried out in accordance with legal competencies and social roles that complement each other to give -not only- economic viability to this industry and achieve enormous revenues in favor of the public treasury; but above all social and environmental viability so the model could be sustainable in the territory and in the population, directly and indirectly impacted. The results show that the causes that originate socio-environmental conflicts are difficult and complex to resolve from the agency of the analyzed actors. The bases of the disputes and tensions have, on the one hand, the type of good in conflict (public goods granted by the State to private parties and collective goods of the affected communities whose territory adjoins the mining infrastructure or overlaps) and on the other, factors of a structural and historical nature that the State and its governments have not been able to solve or face for generations: i) poverty, exclusion, ii) fragmentation of the population to present their demands, iii) weak social capital (mistrust to negotiate); and iv) institutional precariousness (especially political). The conditions mentioned are confronted from various legal and instrumental strategies that in some way have achieved significant changes in the management of conflicts. However, these are still insufficient and the reduction in clashes cannot be predicted.
The research seeks to know the management capacities of public and private entities for the mitigation and resolution of socio-environmental conflicts, under the model of concession of territory to various extractive corporations of medium and large capital in some regions of the Peruvian highlands. It focused on the trajectories and learning processes of both organizations, since in fact they are strategic allies in the extractives development implemented in the region since colonial times. The management practices of these entities are studied from the commodities boom, which began in the 1990s until the year 2021. These actions should be carried out in accordance with legal competencies and social roles that complement each other to give -not only- economic viability to this industry and achieve enormous revenues in favor of the public treasury; but above all social and environmental viability so the model could be sustainable in the territory and in the population, directly and indirectly impacted. The results show that the causes that originate socio-environmental conflicts are difficult and complex to resolve from the agency of the analyzed actors. The bases of the disputes and tensions have, on the one hand, the type of good in conflict (public goods granted by the State to private parties and collective goods of the affected communities whose territory adjoins the mining infrastructure or overlaps) and on the other, factors of a structural and historical nature that the State and its governments have not been able to solve or face for generations: i) poverty, exclusion, ii) fragmentation of the population to present their demands, iii) weak social capital (mistrust to negotiate); and iv) institutional precariousness (especially political). The conditions mentioned are confronted from various legal and instrumental strategies that in some way have achieved significant changes in the management of conflicts. However, these are still insufficient and the reduction in clashes cannot be predicted.
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Industria minera--Aspectos ambientales--Perú, Conflicto social--Perú, Administración pública--Perú, Cambio organizacional--Perú
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