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1、The Politics of Pension Reform in Latin America Author(s): Carmelo Mesa-Lago and Katharina Mller Reviewed work(s): Source: Journal of Latin American Studies, Vol. 34, No. 3 (Aug., 2002), pp. 687-715 Published by: Cambridge University Press Stable URL: http:/www.jstor.org/stable/3875465 . Accessed: 2
2、1/03/2012 21:52 Your use of the JSTOR archive indicates your acceptance of the Terms C. Mesa-Lago, Modelos alternativos de la reforma de la seguridad social en Amirica Latina: comparacion y evaluacidn (San Salvador, i997); C. Mesa-Lago, La privatizaci6n de los sistemas de pensiones de la seguridad s
3、ocial en Amirica Latina: un balance al final del siglo, in FLACSO (ed.), Anuario Socialy Politico de Amirica LatinaJy el Caribe, vol. 2 (Caracas, I998), pp. 136-48. See also A. Barrientos, Pension Reform in Latin America (Aldershot, 1998), and K. Miller, Pension Privatization in Latin America, Journ
4、al of International Development, no. iz (ooo2000), pp. 5o7-I8. 688 Carmelo Mesa-Lago and Katharina Miiller legislation is not yet enacted. Many other countries in the region are currently considering pension reforms, either structural or parametric, among them Brazil, the Dominican Republic, Guatema
5、la, Honduras, Panama and Venezuela.2 In this article: (i) pensions include coverage of three risks: old age, disability and survivors; (ii) structural reforms are those that radically transform a social security system (thereafter public) by replacing, paralleling or supplementing it with a private
6、system; and (iii) parametric reforms are those that preserve a public system, strengthening its finances and/or modifying its entitlement conditions (for example, increasing contributions, cutting benefits, raising the retirement age, modifying the calculation formula). The adoption of structural pe
7、nsion reforms in Latin America (some- times called privatisation)3 involves an important political process that amounts to a fundamental departure from the previous logic of old- age security in at least four ways: from collective to individual provision for retirement; from pay-as-you-go (PAYG) to
8、fully funded (FF) financing; from the state to the market as the main supplier of pension benefits; and from solidarity-equity to competition-efficiency as the fundamental principle of the system. This paradigm shift amounts to a substantial rewrite of the underlying social contract that defies con-
9、 ventional wisdom in welfare state research: political scientists, sociologists and economists have long coincided in stressing the remarkable resilience of existing pension arrangements.4 It has long been believed that any pronounced challenge to the basic structure of the pension system is equival
10、ent to political suicide.5 The first country to privatise its public system (Chile) used to be seen as an isolated case, explained by the repressive, authoritarian character of the Pinochet regime. However, recent reform dynamics have shown that it can also be accomplished in a democracy. This surpr
11、ise has triggered fresh 2 Another wave of structural pension reforms, modelled on the Latin American precedents, can be observed in Eastern Europe. See K. Miiller, Die Reform der Alterssicherung in den dstlichen Transformationslindern: Eine Zwischenbilanz, Deutsche Rentenversicherung, no. 5, 2000, p
12、p. 139-52. a The term privatisation implies that the new pension scheme is fully private. Strictly speaking, however, this is incorrect because the state continues to play an important role with the following functions in all countries: regulation and supervision of the system, financing the high fi
13、scal costs of the transition, and offering guarantees to the insured and pensioners. See Mesa-Lago, La privatizaci6n de los sistemas de pensiones. 4 For example, P. Pierson, Irresistible Forces, Immovable Objects: Post-industrial Welfare States Confront Permanent Austerity, Journal of European Publi
14、c Policy, vol. , no. 4, 2000, pp. 639-60, p. 553: pay-as-you-go schemes may face incremental cutbacks and adjustments, but they are highly resistant to radical reform. 5 J. M. Buchanan, Social Security Survival: A Public-Choice Perspective, The Cato Journal, vol. 3, no. 2, p. 340. The Politics of Pe
15、nsion Reform in Latin America 689 exciting research into the political economy of pension reform, and this article aims at contributing to this nascent field of study.6 It has been argued that the simultaneous application of similar policy blueprints across countries suggests a common international
16、transmission mechanism of ideas. In the case of the Latin American structural pension reforms implemented in the 199os, the influence of the neoliberal new pension orthodoxy8 has been considerable, being mainly transmitted through World Bank advice.9 Yet, even though pension privatisation is closely connected with the emergence of the new pension orthodoxy, such ideas cannot explain the whole reform dynamics. This article will first focus on the domestic polit
