Since the Zapatista revolution of January 1994, Chiapas has received an enormous amount of resources from the federal government. The gaps in years of schooling between Chiapas and the rest of Mexico have been reduced, and numerous investments have been made that have improved road infrastructure, ports and airports. However, the gap that separates Chiapas from the rest of Mexico has been steadily widening. A multidisciplinary team of twelve experts has dedicated itself to studying different aspects of the productive, political and social dynamics of Chiapas. From there, five base documents have emerged: Institutional Diagnosis, Economic Complexity, Growth Diagnosis, Poverty Profile and a pilot of productive dialogue carried out in an indigenous community in Chiapas.
Our hypothesis is that Chiapas is in a low productivity trap. Modern production methods, closely linked to the growth and development process, require a set of complementary inputs that are absent in most of the territory of Chiapas. Thus, there are no incentives to acquire new knowledge that could be used in industries that do not exist. This inability to solve coordination problems and provide the inputs required by modern production has caused a good part of the social investment that has been poured into the entity to be wasted.
To overcome the current dilemma and ignite the spark of growth, Chiapas needs to solve its problems of coordination, connectivity, and gradually promote greater complexity. Our recommendations are based on taking advantage of the agglomerations of knowledge that already exist in the main urban centers of Chiapas, to address new productive sectors with greater added value and complexity. To overcome this challenge, it is necessary to create a public-private structure that iteratively solves the problems of coordination and provision of public goods that these high-potential sectors require. Public transport systems and housing policy are mechanisms to integrate the population surrounding urban centers to the new productive dynamics.
No matter which way you look at it, Chiapas is the most backward of any state in Mexico. Its per capita income is the lowest of the 32 federal entities, at barely 40% of the national median (Figure 1). Its growth rate for the decade 2003-2013 was also the lowest (0.2%),1 causing the income gap separating Chiapas from the national average to increase from 53% to 60%. That is to say that today the average income for a worker in Mexico is two and a half times greater than the average in Chiapas. The two next poorest states, Oaxaca and Guerrero, are 25% and 30% above Chiapas.2 According to the Instituto Nacional de Estadística y Geografía de México (INEGI, National Institute of Statistics and Geography), Chiapas is also the state with the highest poverty rate (74.7%) as well as extreme poverty (46.7%).3
These major differences in income levels among Mexican federal entities are reproduced as in a fractal within Chiapas. In fact, while the wealthiest entity (Mexico City) is wealthier than the poorest (Chiapas) by a factor of six, the difference within Chiapas between the wealthiest municipality (Tuxtla Gutiérrez) and the poorest (Aldama and Mitontic) is by a factor greater than eight.4
As there are different "Mexicos" within Mexico,5 in Chiapas there are also different sorts of Chiapas (Figure 2). Income per capita in Tuxtla Gutiérrez, to the right of the distribution, is five standard deviations above the state average. Next comes a series of intermediate cities, San Cristóbal de las Casas, Comitán de Domínguez, Tapachula, and Reforma, between two and a half to four standard deviations above the average. The remaining municipalities of Chiapas follow (122 in all), clustered to the far left of the distribution. In addition, both the statistics available at the town level and our visits to various municipalities in Chiapas seem to indicate that significant differences also exist within these municipalities.
From this vantage point, questions as to why Chiapas is poor, or what explains its significant backwardness compared to other areas of Mexico, become much more complex. Why do some regions in Chiapas have high income levels, while other regions remain stagnant, fully dependent on federal transfers and deprived from the benefits of modern life?
1 This is the non-oil gross domestic product growth rate reported by INEGI, considered to be more representative of the productive spectrum. In any case, the overall rate of growth in Chiapas (-0.2%) was also the lowest amongst all Mexican entities for the decade. 2 Refers to non-oil GDP; in general terms, Guerrero and Oaxaca are 19% and 16% above Chiapas. 3 Growth figures refer to the decade 2003-2013, poverty figures are those published by INEGI for 2012. 4 Comparisons of Chiapas municipalities are made based on the data from the 10% sample of the 2010 Population Census, which is representative at the state level. 5 This is a reference to the report, A tale of two Mexicos: Growth and prosperity in a two-speed economy, McKinsey Global Institute (2014).
This document proposes a new institutional framework for the implementation of productive development policies (PDP) in Chiapas , with the objective of promoting a structural change in the Chiapas economy in search of greater diversity and productive complexity.
The first section contains a diagnosis of the current context of PDP in the State. A low degree of implementation and execution is observed , despite the abundance of analysis, prescriptions and initiatives to support private companies. This situation cannot be attributed to the scarcity of resources. Although there are not many resources available at the state level for PDPs, there are at the level of existing federal programs. These are coordination and leadership deficiencies in the public sector , which interact with coordination problems within the private sector itself , with the perception of political-institutional instability , and with a history of mistrust, to form a scenario of little collaboration at different levels, so that many of the existing opportunities are wasted.
The second section describes the conceptual foundations for a new institutional framework that enables the effective implementation of PDP, reflected in four basic principles . First, the new framework must be built with relatively few state budget resources . Second, it is emphasized that it should focus on the coordination between the public and private sectors , which requires specific skills and knowledge within the public sector, the building of a relationship of trust , and the proactive promotion of the organization and coordination of the private sector.. Third, an emphasis on the provision of public goods and services, and not market interventions. Fourth, the promotion of a dynamic iterative process.
Once the principles have been established, the third section details the specific coordination proposal for the implementation of the new institutional framework. She focuses on the following five points. First, the designation of an implementing body on which the leadership and responsibility for the PDP implementation process clearly falls. Second, it is recommended to provide said entity with a technically competent staff. Third, it must have political autonomy. Fourth, it must be proactive, in an action-oriented dynamic process. Lastly, you must foster leadership in the private sector. At the end, illustrative examples of how the practical implementation of this dynamic process could be given are discussed.
The Growth Lab at Harvard's Center for International Development, the Los Grobo Foundation, and the School of Senior Management and Business Administration of Barcelona (EADA), with the support of the Ministry of Finance and Public Credit of the Government of Mexico, have partnered to conduct an exploration of the productive attitudes and skills of the indigenous communities of Chiapas. Given the high degree of dispersion of these communities, we have decided to select a pilot location, relatively close to urban areas, and implement the methodology of the Empower Communities program developed by the Los Grobo Foundation there.
Our final objective is to increase the understanding of the social, political, cultural and productive complexity of the indigenous communities of Chiapas, using as a vehicle a methodology that promotes participatory diagnosis, identifies capacities and resources, in the process of designing a collective development plan. territorial. Through the pilot implementation of Empower Communities, the team seeks to create a knowledge base that allows us to strengthen our capacity to design and implement development policies in indigenous communities with a productive aspect, as a complement to the social assistance policies that predominate in the place.
Chiapas is not only the lowest per capita entity in Mexico, but also the one that has grown the least during the last decade. As a result, the gap that separates it from the rest of the country has been widening significantly. This performance contrasts with the environment of relative macroeconomic and institutional stability that has prevailed during this period.
The low level of income in Chiapas is consistent with the inability of the state to produce things that it can sell beyond its limits. Its per capita exports are among the lowest in Mexico and are concentrated in a series of agricultural primary products, which are traded in highly competitive markets with very low margins.
What are the reasons behind Chiapas' poor economic performance? This document follows the growth diagnosis methodology developed by Hausmann, Rodrik and Velasco (2005), adapting it to a sub-national context. Our objective remains the same: to identify the main constraints to economic growth in Chiapas.
According to the results of our analysis, the main restrictions on the growth of the state are not found in any of the usual suspects. Low levels of education to some extent are associated with the backwardness of Chiapas, but barely enough to explain a small part of the gap. The orography and the climate of Chiapas represent a challenge for the lifting and maintenance of its infrastructure, but the latter does not appear as the main restriction to the development of its productive fabric. There is also no evidence of credit market failures. The low levels of private credit in Chiapas are more associated with the low productivity of the economic activities carried out there than with bottlenecks or insufficiencies in the supply of financing.
Our conclusion is that Chiapas is in a (low) productivity trap. Its main problem is that it has an economy of very low complexity or sophistication, which reflects its few productive capacities. Modern production systems require a number of complementary inputs that are absent in Chiapas. In this context, productive diversity and private investment are low because returns to investment are also very low. Since the demand derived from private investment is low, it inhibits the emergence of a supply of complementary inputs, giving rise to a problem of coordination similar to that of the egg and the hen. Solving this coordination problem requires state intervention. Some of the few cases of manufactured exports that exist in Chiapas have resulted from successful state interventions to coordinate the existence of inputs needed for production with the demand for them. This feature provides the supporting argument that justifies the creation of Special Economic Zones.
In Chiapas, this situation is further aggravated by the combination of three factors: (1) high government transfers, (2) lack of public transportation and (3) low educational level.
Government transfers have effects similar to those identified in the economic literature of the Dutch disease: to increase the relative costs of tradable goods by tilting economic activity to the non-tradable sectors. The absence of a public transport system directly reduces the net benefit of working in the city if you live in the countryside. Thus, a dual equilibrium has been established with significant differences between wages across the entire range of professions and occupations between cities and their nearest rural communities. Finally, although Chiapas has gradually closed the educational gap that separates it from the rest of the country, there are still significant differences. In our opinion, This gap is due to the fact that the decision to accumulate years of schooling is partly endogenous to the returns obtained from education. Seen this way, education gaps would be a mirror of the differences in terms of production methods that predominate in Chiapas, in contrast to the rest of the country. For this reason, we observe that while returns to education are higher in Chiapas, it is more profitable for each educational level to emigrate (to a place where there are other complementary inputs that make higher productivity and a higher salary possible) than to stay in work the entity. Chiapas emigrants, although few, receive similar incomes to workers with the same level of education at the destination. Education gaps would be a mirror of the differences in terms of production methods that predominate in Chiapas, in contrast to the rest of the country. For this reason, we observe that while returns to education are higher in Chiapas, it is more profitable for each educational level to emigrate (to a place where there are other complementary inputs that make higher productivity and a higher salary possible) than to stay in work the entity. Chiapas emigrants, although few, receive similar incomes to workers with the same level of education at the destination. Education gaps would be a mirror of the differences in terms of production methods that predominate in Chiapas, in contrast to the rest of the country. For this reason, we observe that while returns to education are higher in Chiapas, it is more profitable for each educational level to emigrate (to a place where there are other complementary inputs that make higher productivity and a higher salary possible) than to stay in work the entity. Chiapas emigrants, although few, receive similar incomes to workers with the same level of education at the destination. For each educational level it is more profitable to emigrate (to a place where other complementary inputs exist that make possible a greater productivity and a higher salary) than to stay to work in the entity. Chiapas emigrants, although few, receive similar incomes to workers with the same level of education at the destination. For each educational level it is more profitable to emigrate (to a place where other complementary inputs exist that make possible a greater productivity and a higher salary) than to stay to work in the entity. Chiapas emigrants, although few, receive similar incomes to workers with the same level of education at the destination.
The policy implications of this diagnosis point to the need to take advantage of the knowledge that already exists in the greater populated centers of Chiapas and in the rest of Mexico to promote diversification towards other more complex activities that can build upon the capacities already Existing in the area. The creation of a public transport system linking the rural communities surrounding the city could solve the constraint of labor shortages, while opening up greater urban employment opportunities for the inhabitants of neighboring rural communities. This is a typical example of the egg and chicken dynamics that prevails in Chiapas, since a minimum scale of operation is required for the creation of an efficient public transport system,
Our prescription suggests that we take the mountain to Muhammad, since Muhammad has not gone to the mountain. That is to say, to try to solve the problems of coordination through an intervention that approaches the work opportunities to where the workers are, given that under the current conditions the latter do not find it profitable to get closer to where the job opportunities are. There are rural areas with low participation rates and high poverty rates in the neighborhood of San Cristóbal de las Casas. This is also a region where there is a lot of uncertainty for private economic activity, since the existence of ejido territories of community ownership predominates there. One implication of our analysis could be to create an Industrial Park around San Cristóbal, That solves the lack of public goods that has kept away the private economic activity (legal insecurity, difficulty to get land, social unrest), and at the same time bring the companies where the available labor is. The experience within Chiapas of companies like Arnecom-Yazaki indicates that with short training periods, workers could be integrated into relatively modern systems and deal productively.
This solution is a step on which we can enter a sustained development dynamic, through successive improvements in productivity derived from the transformation of production and the progressive adoption of more modern production systems. To grow, Chiapas must start by learning to do things that are already produced in the rest of Mexico and can sell out of the state. From there, the economic fabric and knowledge associated with more modern methods of production will be created, and from there gradually the export capacity can be developed and more complex activities can be developed. This process requires coordination between the different actors, government (national and regional), private sector, and academia, with the aim of proactively seeking adjacent activities,
Chiapas es el estado más pobre de México, y también el menos diversificado en su estructura productiva. Según los hallazgos de este reporte, esa dualidad no es una coincidencia casual. La escasa complejidad económica de Chiapas, medida tanto por la escasa sofisticación de sus exportaciones como por la exigua diversidad en la composición de su empleo, es uno de los factores asociados a sus bajos niveles de ingreso y escaso crecimiento. Para cambiar el patrón de crecimiento de Chiapas es necesario cambiar su estructura de producción, haciéndola más compleja y sofisticada.
Afortunadamente, existe un enorme potencial para que diferentes lugares de Chiapas se muevan de manera gradual hacia productos e industrias de mayor sofisticación, con base en el conocimiento con el que ya cuentan hoy en día. No todos los lugares tienen el mismo potencial; la diversidad de capacidades productivas que existe en México se reproduce hacia el interior de Chiapas de manera fractal. Nuestros análisis indican que la variedad de niveles de ingresos hacia adentro de las regiones sigue siendo mayor que las diferencias entre los promedios de esas regiones. Esta característica justifica la utilización de un enfoque municipal, centrado en aquellas zonas urbanas de mayor población, con suficiente diversidad y sofisticación como para justificar un análisis de productos e industrias “adyacentes” de mayor complejidad que requieran capacidades similares a las ya existentes. Este enfoque reconoce que la esperanza en el corto plazo para muchos ciudadanos que no habitan en la vecindad de las regiones más sofisticadas del estado está en la posibilidad de moverse gradualmente hacia niveles de productividad agrícola más alta.
En este reporte se identifican cuáles son los productos e industrias que ofrecen las mejores posibilidades de diversificación productiva para incrementar la complejidad económica de cuatro de los municipios más complejos de Chiapas, considerando sus capacidades iniciales. Como resultado, se presenta un resumen diferenciado de las principales posibilidades y los retos que debe superar cada lugar para capitalizarlas. Comitán de Domínguez debe centrarse en resolver restricciones logísticas asociadas a conflictos sociales para capitalizar sus posibilidades como destino turístico de alto nivel, y desarrollar una base de fabricación de artículos para el hogar y textiles. San Cristóbal de las Casas está bien posicionado para aprovechar las habilidades desarrolladas en la producción de artesanías y transferirlas a la de textiles sofisticados, en adición a nuevas oportunidades en recubrimientos metálicos, y fabricación de alimentos y bebidas. Para materializar el potencial de Tuxtla Gutiérrez se requiere reconvertir ese amplio sector de servicios que responde a la demanda creada por el gasto público en la capital del estado, en una base de manufacturas más diversa. Los principales candidatos para movilizar esa transformación productiva son los sectores de textiles y peletería, procesamiento de alimentos, y ciertas categorías particulares de maquinaria por línea de producción.
De todas las regiones de Chiapas, Tapachula es la que posee mayor potencial para expandir su base exportadora hacia productos de mayor complejidad. La región concentra la mayoría de las exportaciones del estado, y cuenta con la creación de la Zona Económica Especial (ZEE) y su parque industrial que permiten abordar nuevas capacidades productivas más complejas y adyacentes. Se identifica el potencial de los productos plásticos, de pinturas y películas, y de metalurgia, de relojes y equipos de soldadura, como unas oportunidades únicas en el estado para promover su transformación productiva.
Nuestro reporte concluye con una reflexión sobre la necesidad de traducir la identificación de los potenciales de cada una de las regiones en una realidad distinta, en una economía diversa, compleja, y próspera. La transformación productiva de Chiapas comenzará por la mejora de la productividad agrícola y la creación de oportunidades en las zonas urbanas que permiten aglomeraciones de conocimientos diversos en firmas complejas. El crecimiento económico en Chiapas no requiere innovación, sino más bien de que el estado aprenda del resto de México a producir de manera eficiente los bienes que el resto del país ya produce.
Esta posibilidad exige a su vez de la existencia de un sector público capaz de convocar a firmas existentes, y otras que ya operan en el resto de México, para inaugurar nuevas facilidades de producción en Chiapas, combinando nuevas tecnologías y conocimientos con los que ya existen en la región. Así, se va desarrollando de forma gradual la densidad de su tejido productivo y diversidad económica. En última instancia, la clave para capitalizar el enorme potencial de Chiapas está en un cambio en la orientación del discurso productivo, que priorice la diversificación de la economía y la conquista gradual de sectores de mayor complejidad como herramienta para promover el crecimiento inclusivo.
Chiapas es, comoquiera que se le mire, el estado más atrasado de México. Su ingreso por habitante es el más bajo de las 32 entidades federativas, apenas 40% de la media nacional. Su tasa de crecimiento durante la década 2003-2013 también fue la más baja (0,2%), por lo que la brecha que lo separa del promedio nacional creció de 53% a 60%. Eso quiere decir que hoy en día el ingreso promedio de una entidad federal en México está dos veces y media por encima de Chiapas. Los dos estados que le siguen, Oaxaca y Guerrero, están 25% y 30% por encima de Chiapas2. De acuerdo con el Instituto Nacional de Estadística y Geografía de México (INEGI), Chiapas es también el estado de mayor pobreza (74,7%) y pobreza extrema (46,7%).