Table Of ContentOECD Public Governance Reviews
PERu
IntEGRatED GOvERnanCE fOR InClusIvE GROwth
OECD Public Governance Reviews
Contents
Chapter 1. Contextualising public governance reform in Peru PERu
Chapter 2. The centre of government in Peru
Chapter 3. Strategic planning and the monitoring and evaluation of public policies in Peru IntEGRatED GOvERnanCE fOR InClusIvE GROwth
Chapter 4. Implementing effective decentralisation: Achievements and challenges in multi-level governance
in Peru
Chapter 5. Building a stable and professional civil service in Peru
Chapter 6. Integrating digital government into public sector modernisation in Peru
Chapter 7. Open government in Peru
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OECD Public Governance
Reviews: Peru
INTEGRATED GOVERNANCE FOR INCLUSIVE
GROWTH
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Please cite this publication as:
OECD (2016), OECD Public Governance Reviews: Peru: Integrated Governance for Inclusive Growth, OECD
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Series: OECD Public Governance Reviews
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3
FOREWORD –
Foreword
Peru has benefited since 2001 from a period of relative political and economic
stability that has enabled millions of Peruvians to overcome poverty and join the ranks of
the middle class. In response to important outstanding challenges relating to acute and
persistent regional disparities and unequal growth, the national government is pursuing an
agenda for more inclusive development that includes a strong focus on public
administration reform. Peru is entering a new phase in its pursuit of more effective
governance. This represents a unique opportunity to overcome institutional fragmentation
and ministerial silos and enable the design, implementation and monitoring of
multi-dimensional, multi-year national development strategies. Ultimately, the goal is to
enhance institutional and decision-making capacity to achieve tangible improvements in
outcomes for citizens and businesses in all regions of the country.
It is against this background that the government of Peru asked the OECD to provide
a stocktaking analysis of Peru’s public administration policies and programmes within the
framework of the 2015-16 OECD-Peru Country Programme. This Public Governance
Review assesses key reform themes and advises on capacity issues and possible courses
of action to help the government of Peru meet its reform objectives.
This review deepens the analysis undertaken in 2015 through the OECD
Multi-Dimensional Review of Peru and is complemented by four other country
programme reviews of key practice in public governance (on regulatory policy, national
territorial development, public sector integrity and public procurement). The
recommendations in this volume should thus be read together with those in the other
reviews to obtain a more integrated, coherent multi-dimensional picture of the governance
reform advice being offered to Peru by the OECD under the country programme.
This review advises Peru to pursue a comprehensive public administration reform
agenda that promotes more robust whole-of-government co-ordination led by the centre
of government. It recommends linking evidence-based policy making, including Peru’s
results-based budgeting that is already in place, to national strategic planning, using the
results of strategic foresight and horizon scanning in multi-year planning, and harnessing
digital government for more open, transparent and clean government, to strengthen
decision making, reduce costs and enhance the quality of services to citizens and
businesses to improve outcomes. This review commends Peru on its comprehensive
human resources management reform agenda, and recommends that it pursue its
implementation nationally and at the subnational level of government to strengthen the
quality and performance of the central civil service in designing and delivering services
effectively and efficiently to citizens and businesses in all regions of the country.
This review is one in a series of OECD Public Governance Reviews that have been
carried out in member and non-member countries. It was conducted under the auspices of
the OECD Public Governance Committee, supported by the Governance Reviews and
Partnerships Division of the OECD Public Governance and Territorial Development
PERU: INTEGRATED GOVERNANCE FOR INCLUSIVE GROWTH © OECD 2016
4
– FOREWORD
Directorate that conducts assessments of, and advises on, public administration and open
government reform strategies in these countries.
The Directorate’s mission is to help government at all levels design and implement
strategic, evidence-based and innovative policies to strengthen public governance;
respond effectively to diverse and disruptive economic, social and environmental
challenges; and deliver on government’s commitments to citizens. The goal is to support
countries in building better government systems to design and implement policies at both
the national and regional levels that can lead to sustainable, inclusive economic and social
development.
This review has been produced with the financial assistance of the European Union.
The views expressed herein can in no way be taken to reflect the official opinion of the
European Union.
PERU: INTEGRATED GOVERNANCE FOR INCLUSIVE GROWTH © OECD 2016
5
ACKNOWLEDGEMENTS –
Acknowledgements
This Public Governance Review was managed by Adam Knelman Ostry, project
manager, who together with Paqui Santonja, deputy project manager for this review,
prepared the Assessment and Recommendations section. Chapter 1 was drafted by
David Goessmann, Chapter 2 by Adam Knelman Ostry, Chapters 3 and 4 by
Paqui Santonja. Daniel Gerson drafted Chapter 5, Barbara Ubaldi Chapter 6, and
Alessandro Bellantoni and Emma Cantera Chapter 7, with a contribution from
Katharina Zuegel. Andrés Bitar and Simon Schmidt contributed to different chapters.
The review team would like to thank the three peer reviewers who contributed their
extensive country-based knowledge and experience to this review:
• Holger Sperlich, Government Director, Division on International Cooperation in
Administrative Affairs, Federal Ministry of the Interior, Germany.
• Dr. Angelina Trigo, Head of OPERA, Office for the Reform of the Spanish Public
Administration, Ministry of the Presidency, Spain.
• Adriana Camacho, Director for Monitoring and Evaluation of Public Policies
(SINERGIA), National Planning Department, Colombia.
This review benefited from the ongoing support and active contribution of the
European Union Delegation to Peru led by Ambassador Irene Horejs, Ximena Sierralta,
Stefaan Pauwels and their team.
Special thanks to Lubinda Velázques Arrieta for providing information, facilitating
contacts and meetings during the whole process and for the substantial contributions to
the review. A number of international experts made substantive contributions; in
particular Javier Monzó and Silvia Losada (Chapters 2, 3 and 4) and Bernadett Koteles-
Degrendele (Chapter 6).
This review reflects contributions and assistance from a number of participants from
across the government of Peru to whom the team expresses its appreciation:
Special thanks go to the team of the Presidency of the Council of Ministers, in
particular its Secretary General, Manuel Mesones; the Secretary for Public Management,
Sara Arobes and her team, including Alberto Castro, Brenda Ormea and Patricia Guillen;
as well as representatives of other agencies of the Presidency of the Council of Ministers,
including Victor Vargas from CEPLAN; Juan Carlos Cortés, Executive President of
SERVIR and his team led by Janeyri Boyer; Mariana Mendoza from the Decentralisation
Secretariat; Cesar Vilchez from the ONGEI; and Vlado Castañeda from the Co-ordination
Secretariat.
Special thanks also go to the Ministry of Economy and Finance for its contribution to
this review, in particular to Rossana Polastri, Vice-Minister of Finance; Javier Roca,
Director General of the International Economy, Competition and Private Investments
PERU: INTEGRATED GOVERNANCE FOR INCLUSIVE GROWTH © OECD 2016
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– ACKNOWLEDGEMENTS
Office; Rodolfo Acuña Namihas, Director General of National Budget; and
Gabriela Carrasco, Director General of Quality of Public Expenditure.
The OECD Public Governance Directorate would like to express its gratitude to
Javier Iguiñiz from the National Agreement Forum of Peru (Acuerdo Nacional) for his
support throughout the review process.
Editorial work and quality control were provided by Ciara Muller and Jennifer Allain,
who also prepared the manuscript for publication. Administrative assistance to the review
team was provided by Virginie Mendy and Alpha Zambou.
OECD Public Governance Reviews are co-ordinated by the Governance Reviews and
Partnerships Division, headed by Martin Forst, in the Directorate for Public Governance
and Territorial Development, headed by Rolf Alter, Director.
PERU: INTEGRATED GOVERNANCE FOR INCLUSIVE GROWTH © OECD 2016
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TABLE OF CONTENTS –
Table of contents
Acronyms and abbreviations ................................................................................................................. 13
Executive summary ................................................................................................................................. 15
Assessment and recommendations ........................................................................................................ 17
Chapter 1. Contextualising public governance reform in Peru ........................................................... 51
Introduction ........................................................................................................................................... 52
History’s influence on present-day governance in Peru ........................................................................ 53
Today: Impressive progress, but important disparities persist .............................................................. 59
Public governance for inclusive growth in Peru.................................................................................... 65
Conclusion: Better governance and more resilient institutions for inclusive growth in Peru ............... 70
Bibliography .......................................................................................................................................... 71
Chapter 2. The centre of government in Peru ....................................................................................... 75
Introduction ........................................................................................................................................... 76
The centre of government in Peru ......................................................................................................... 84
Policy-making instruments and practices .............................................................................................. 90
Peru’s current reform agenda: The National Policy on the Modernisation of Public Administration .. 98
Assessment .......................................................................................................................................... 100
Recommendations ............................................................................................................................... 103
Notes ................................................................................................................................................... 108
Bibliography ........................................................................................................................................ 108
Chapter 3. Strategic planning and the monitoring and evaluation of public policies in Peru ........ 111
Introduction ......................................................................................................................................... 112
Institutional planning framework ........................................................................................................ 114
Peru’s national monitoring and evaluation system .............................................................................. 123
Assessment .......................................................................................................................................... 135
Recommendations ............................................................................................................................... 145
Notes ................................................................................................................................................... 148
Bibliography ........................................................................................................................................ 148
Chapter 4. Implementing effective decentralisation: Achievements and challenges in
multi-level governance in Peru ............................................................................................................ 151
Introduction ......................................................................................................................................... 152
Decentralisation in Peru: A work-in-progress ..................................................................................... 153
Institutional arrangements supporting decentralisation in Peru .......................................................... 161
Assessment .......................................................................................................................................... 175
Recommendations ............................................................................................................................... 183
Notes ................................................................................................................................................... 188
Bibliography ........................................................................................................................................ 189
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– TABLE OF CONTENTS
Chapter 5. Building a stable and professional civil service in Peru .................................................. 193
Introduction ......................................................................................................................................... 194
Civil service reforms ........................................................................................................................... 198
Implementing the reform: Considerations and challenges .................................................................. 206
Recommendations ............................................................................................................................... 223
Notes ................................................................................................................................................... 226
Bibliography ........................................................................................................................................ 227
Chapter 6. Integrating digital government into public sector modernisation in Peru .................... 229
Introduction ......................................................................................................................................... 230
Securing leadership: Governance, management and planning ............................................................ 235
Harmonising digitisation across the country ....................................................................................... 247
Paving the way to a data-driven public sector ..................................................................................... 256
Recommendations ............................................................................................................................... 261
Notes ................................................................................................................................................... 265
Bibliography ........................................................................................................................................ 266
Chapter 7. Open government in Peru .................................................................................................. 269
Introduction ......................................................................................................................................... 270
The role of citizens' participation in the policy cycle from an OECD perspective ............................. 270
Policy and legal frameworks for participation in Peru ........................................................................ 274
Definition and implementation of a national open government agenda .............................................. 279
Peru’s laws on transparency and access to public information ........................................................... 289
Recommendations ............................................................................................................................... 303
Notes ................................................................................................................................................... 306
Bibliography ........................................................................................................................................ 307
Annex 7.A1. Peru’s institutional arrangements for open government ................................................ 310
Tables
Table 1.1. Poverty headcount ratio at national poverty lines in Peru, 2005-13 .................................. 61
Table 1.2. Peru’s Human Development Index trends (selected data) ................................................ 61
Table 2.1. Multisectorial policy approach in the PCM ...................................................................... 92
Table 2.2. Cascading planning horizons: The case of Poland ............................................................ 97
Table 3.1. Six national strategic objectives ...................................................................................... 118
Table 3.2. Peru’s performance budgeting conceptual framework .................................................... 120
Table 3.3. Connections between monitoring and evaluation systems .............................................. 123
Table 3.4. Articulation of strategic objectives with indicators and goals......................................... 124
Table 3.5. Examples of foresight programmes ................................................................................. 138
Table 3.6. Profiles of strategic initiatives in Poland’s strategic development
management framework .................................................................................................. 142
Table 4.1. Number of subnational governments in the OECD in 2015 with figures on
Peru ................................................................................................................................. 154
Table 4.2. Intergovernmental fiscal transfers in Peru in PEN .......................................................... 161
Table 6.1. The characteristics of international approaches to governance ....................................... 244
Table 7.1. Comparison of the Action Plan 2012-13 and 2015-16 .................................................... 288
Table 7.2. Breadth of freedom of information laws ......................................................................... 290
Table 7.3. Cost associated with the reproduction of the information requested .............................. 299
Table 7.A1.1. Members of the National Agreement 2015 ..................................................................... 321
PERU: INTEGRATED GOVERNANCE FOR INCLUSIVE GROWTH © OECD 2016
