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Estrategias de ordenamiento territorial sostenible para el cantĂłn Gualaceo<= /span>

 

 

Sustainable territorial management strategies for the Gualaceo canton    =

 

Sandra Marisol Sarango Simbaña.[1], Marco Benigno Ăvila Calle.[2] &= amp; Yonimiler Castillo Ortega.[3]

 

 

Recibido: 04-02-2021 / Revisado: 13-02-2021 /Aceptado: 04-02-2021/ Publicado: 05-04-2021

 

Abstract.                            Â=  Â Â           DOIhttps://doi.org/10.33262/concienciadigita= l.v4i2.1627

<= o:p> 

In Ecuador, since 201= 0, planning experiences have been given through development plans and territor= ial organization in charge of the Decentralized Autonomous Governments in the c= ase of the Gualaceo canton located in the eastern part of the Azuay province. <= b>Aim. strengthen and implement strategies for land use planning that guarantees i= ts sustainability. Methodology. Once the theoretical framework of plann= ing and land use has been reviewed, it is necessary to reflect on its compliance with the evaluation of the PDOT in a given period 2015-2019, based on a documentary review, surveys and interviews of the perception of its authori= ties and planning technicians.  Resu= lts. From the analysis of the research, showing a low degree of compliance in ea= ch of the strategies proposed in the phase of the proposal regarding the territor= ial model and the management model, which allows establishing a proposal for the environmental strategy and the strengthening of the strategies outlined in their plans. Conclusion. To guarantee a sustainable land use plannin= g, understanding the vision of the canton with governmental leadership aware of the knowledge of the potentials and weaknesses of its territory.=

 

Keywords: planining, local development, land use planning, management strategie= s.

 

Resumen.

 <= /span>

En el Ecu= ador desde el año 2010 se ha venido dando experiencias planificadoras a través= de los planes de desarrollo y ordenamiento territorial a cargo de los Gobiernos Autónomos Descentralizados en el caso del cantón Gualaceo ubicado en la p= arte oriental de la provincia del Azuay. Objetivo. fortalecer e implement= ar estrategias para un ordenamiento territorial que garantice su sostenibilida= d. Metodologìa. Una vez revisado el marco teórico de la planificación y ordenamiento territorial es necesario reflexionar su cumplimiento con la evaluación del= PDOT en un período determinado 2015-2019, en base a una revisión documental, encuestas y entrevistas de la percepción de sus autoridades y técnicos de planificación. Resultados. Del análisis de la investigación, evidenciando un bajo grado de cumplimiento en cada una de las estrategias planteadas en la fase de la propuesta referente al modelo territorial y el = modelo de gestión, lo que permite establecer una propuesta de la estrategia ambie= ntal y el fortalecimiento de las estrategias planteadas en sus planes. Conclu= sión. Para garantiz= ar un ordenamiento territorial sostenible comprendiendo en la visión plantead= a del cantón con liderazgo gubernamental conscientes del conocimiento de los potenciales y debilidades de su territorio.

 

Palabras claves: planificaciĂłn, desarrollo= local, ordenamiento territorial, estrategias de gestiĂłn.

IntroducciĂłn.

En el Ecuador el Plan Nacional de Desarrollo se construyó en el año 2007 representando el primer ejercicio de planificación integral a escala nacional, incorporando al ordenamiento territorial como política de Estado con un régimen de compet= encias en la formulación de la planificación nacional a cargo del estado central= y la planificación del desarrollo y planes de ordenamiento territorial, a cargo= de todos los niveles de Gobiernos Autónomos Descentralizados y a partir del a= ño 2010 la Secretaría Técnica de Planificación definieron lineamientos con = una guía metodológica para la formulación de los planes desde el año 2011, = y en el 2015 contando con planes aprobados y actualmente se encuentran realizando l= as respectivas actualizaciones.

 

Dentro de la metodología para los Planes se plant= ea una propuesta de desarrollo como un escenario deseado encontrando la catego= rías de ordenamiento territorial en función de las variables estratégicas y de potencialidades territoriales del diagnóstico sobre la capacidad de uso de= la tierra, su vocación agro-productivas con otras variables de gran importanc= ia de acuerdo a la visión del territorio, planteando un modelo de gestión con la aplicación de estrategias necesarias para su implementación, pero en qué= medida han aportado en el ordenamiento territorial sostenible del territorio o se = han quedado simplemente en documentos obligatorios sin integración ni la aplic= ación de las estrategias planteadas.

 

Objetivos: Establecer estrategias de ordenamiento territorial sostenible = para el cantón Gualaceo, estudiando las teorías sobre la planificación y orde= namiento territorial con criterios de sostenibilidad en el ámbito local, evaluando = la planificación y ordenamiento territorial en el cantón Gualaceo 2015-2019, para establecer y fortalecer las estrategias para el ordenamiento territorial sostenible con sus elementos que la componen.

 =

FundamentaciĂłn teĂłrica de la investigaciĂłn.

Las definiciones emitidas por diferentes autores en las últimas décadas nos permiten conocer y entender los conceptos de la planificación, desarrollo = local y ordenamiento territorial a fin de llegar a establecer las estrategias.

 

PlanificaciĂłn: Para Saavedra 1993, Friedmann 1987, Yehezkel 1990, Habermas 1998, Kozikowski 1998, Galilea 1998 y Kaplan 1989, lo resumen con elementos comunes consider= ando no solamente como una disciplina sino como un proceso que se realiza en un tiempo y espacio con una visiĂłn conocida como imagen objetivo de un futuro deseado.

 

Anton et ál (2005, p.45) menc= iona a la planificaciĂłn con diferencias de la planificaciĂłn estratĂ©gica encam= inada a la acciĂłn, mientras que la territorial marca un escenario de futuro y disp= one de capacidad normativa, asĂ­ tambien Blades (2011, p. 14) ha presentado tres paradigmas de la planificaciĂłn tales como planificaciĂłn del desarrollo que tiene en su origen una fundamentaciĂłn y una lĂłgica diferente como: planificaciĂłn estratĂ©gica que alcanza el objetivo deseado con ventajas competitivas, la planificaciĂłn participativa con el compromiso y validaciĂ= łn social y la planificaciĂłn integral del desarrollo basado en la visiĂłn del territorio, relaciĂłn con el entorno y su ubicaciĂłn dentro del un contexto global en el largo y mediano plazo, es asĂ­ para Galilea ( p.67) ha conside= rado la escala local en la planificaciĂłn y en las acciones del desarrollo lo que hace que las propuestas de planificaciĂłn local tengan un mayor horizonte de factibilidad sociopolĂ­tico, econĂłmico y estricatametne tĂ©cnico.

 

Desarr= ollo Local: Vázquez-Barquero (1988; p129) lo define como un proceso de crecimiento económico y de cambio estructural que conduce a una mejora en el nivel de vida de la población local, identificando tres dimensiones: económica, sociocultural y político-administrativa. Algunos autores al sustantivo desarrollo le acompaña algunos adjetivos para Boisier (1999 p.8-21) desarr= ollo territorial, regional, local, endógeno, descentralizado de abajo-arriba, para  Rodriguez (2009 p. 40) conte= mpla además un desarrollo sostenible, Juárez (2013 p.19, 20) lo menciona directamente como desarrollo local relacionado<= /span> con el desarrollo endógeno y=   sostenible, para Albuquerque (2014, p.= 6) aborda al desarrollo con dimensiones del desarrollo social y humano, desarr= ollo institucional, político y cultural, desarrollo económico local y desarrol= lo sostenible, abordando el enfoque del desarrollo territorial que identifica y aprovecha los recursos locales endógenos así como incorpora políticas to= mando en cuenta los diferentes ámbitos global y=   local.

 

Actualmente el concepto de desarrollo local es utilizado en numerosos documentos oficiales teniendo un problema entre su funciĂłn teĂłrica y la realidad práctica, revalorizando el espacio local c= omo agente productivo global con mejoras en la comunicaciĂłn social y en el desarrollo sostenible valorando los recursos endĂłgenos con la participaciĂ= łn de la poblaciĂłn siendo una herramienta que busca mejoras en sus potencialidad= es.

 

Ordenamiento Territorial: La ordenación de un territorio ha tomado fuerza últimamente ante los nuevos desafíos territoriales y los cambios en el contexto político social de la planificación ajustada a una realidad natural que es concebida por diferentes autor= es como Anton et ál (2004, p.16) y Gómez (1994) con un enforque metodológic= o menciona que ordenar el territorio implica dar respuesta a interrogantes tales como: qué, para qué y cómo ordenar, siendo en sí misma más que una finalidad= un instrumento al servicio de los objetivos generales de equidad territorial y= el uso racional de los recursos. Así también Terán = (1983), citado por Troitiño (2008), y (Sánchez, 2014, p.11) mencionan que la ordenación del territorio alcanzará el desarrollo equilibrado de las regiones y la organización física del espac= io según un principio rector.

 

Estos conceptos van configurando el sistema territorial con la construcciĂłn planificada orientada a conseguir = un desarrollo sostenible identificando, distribuyendo y regulando de manera armĂłnica y funcional todas las actividades humanas dentro de un territorio, coincidiendo con Malo (2012), GĂłmez (2014) y Gudiño (2015) que la nueva concepciĂłn del ord= ena­miento territorial se considera no solo en el estudio interdiscipli­nario del territorio y la planifica­ciĂłn, siendo el Estado la entidad po­lĂ­tico-t= erritorial que per­mita gestionar el territorio de una manera más eficiente identifi= cando los conceptos para la aplicaciĂłn de la sostenibilidad en la acciĂłn y el cometido de las polĂ­ticas de planificaciĂłn territorial, con la utilizaciĂ= łn racional del territorio, la gestiĂłn responsable de los procesos ecolĂłgico= s, conservando la calidad ambiental y la conservaciĂłn de ecosistemas y la cal= idad de gestiĂłn pĂşblica y la coordinaciĂłn administrativa con una planificaciĂ= łn integrada de sectores y territorios.

 

La implementación de un ordenamiento territorial sostenible según Folch (2003) pone en énfasis en los principios de impacto sobre el medio ambiente, más que las actividades en el espacio; sobre los ritmos y los procesos de transformación, más que sobre el tipo de transfo= rmación; sobre el control de las redes de interrelación, además del control de los elementos individuales; sobre diferentes escalas geográficas, ámbitos sectoriales y horizontes temporales; y sobre la participación de los agent= es socioeconómicos y políticos que intervienen en los procesos de transforma= ción del territorio.

 

En la dĂ©cada del 2000 comienza a tener fuerza el tipo de ordenamiento activo inducido por polĂ­ticas de ordenamiento que buscan un desarrollo econĂłmico con enfoque territorial en el marco del desarrollo sostenible, es asĂ­ que adquiriĂł fu= erza jurĂ­dica LatinoamĂ©rica es asĂ­ en Honduras (2003), Uruguay (2008), Ecuador (2010) y El Salvador (2011) al aprobarse leyes en esta direcciĂłn. A partir= del 2010 la tendencia al Desarrollo Territorial sostenible se consolida y amplĂ= ­a a otros paĂ­ses como Argentina, Nicaragua y Guatemala, en los que está en pr= oceso la aprobaciĂłn de leyes nacionales que van en la misma direcciĂłn.

 

Los cambios más notorios son en los últimos diez= años según Cabezas (2008) cuando se observa un acercamiento entre las política= s de desarrollo económico, de ordenamiento territorial y ambiental, a partir de= la adopción del concepto de desarrollo sostenible, en países donde han ocurr= ido cambios políticos y de concepción del desarrollo, especialmente contra el= orden económico, social, cultural y territorial siendo los casos de Ecuador, Bol= ivia, Uruguay, Argentina, Venezuela, Nicaragua y el El Salvador en respuesta a los problemas de iniquidad socio territorial, destrucción de las condiciones ambientales, destrucción de los valores éticos y políticos, adoptando nu= evas visiones de desarrollo rompiendo los preceptos de neoliberalismo danto mode= los alternativos de desarrollo en los que el ordenamiento territorial se revien= ta como desarrollo territorial sostenible, surgiendo como concepto como polít= ica pública y como estrategia del desarrollo.

 

Estrategias de planificaciòn = para el ordenamiento territorial sostenible a nivel local:  Contreras (2013) Smi= th (1977) define a la estrategia como la fórmula para obtener éxito en el mu= ndo de los negocios, un plan para conseguir los mejores resultados de los recursos= y para  Schendel y Hofer (1978), cit= ados por Contreras (2013) la estrategia corresponde al modelo fundamental de despliegue de los recursos presentes y futuros; por tanto la estrategia trata de asegurar la supervivencia y prosperidad de un objeto a través de su implementación, para cumplir las expectativas de las partes interesadas en un futuro incierto (Grant, 2005, citado por Contreras, 2013). El conjunto de acciones combinadas que emprenden dirección y que pretenden lograr un fin, o luchar por una misión o visión a corto, median= o y/o largo plazo (Thompson y Strickland, 1999, citados por Contreras, 2013).

 

Todos estos conceptos de estrategia han ido transformándose de forma progresiva = desde objetivos, propósitos, metas, planes, guías, entre otros, y que de una fo= rma sirven como referentes históricos, considerando algunos aspectos y teniendo claro hacia dónde se quiere ir, dónde se quiere llegar y con qué recurso= s se cuenta para la obtención de resultados, con el uso adecuado de los recurso= s en el menor tiempo posible.

 

Según Silva (2012) presenta tipos de estrategias a nivel local visualizando enfoq= ues como estrategias de complementariedad, consolidación, diversificación, recuperación, revalorización, reequilibrio, atracción, integración y de= la comunidad, siendo todos estos tipos de estrategias que contribuyen al desarrollo sostenible del territorio, Contreras (2013) concluye que una estrategia implica conocer la actividad con un análisis prospectivo para el logro de los objetivos, teniendo claro hacia dónde se quiere ir, dónde se quiere llegar y con qué recursos se cuenta para obtención de resultados conociendo los riesgos internos y externos para las tomas de decisiones, al trazar las estrategias considerando la capacidad y el cambio en el menor ti= empo posible.

 

Rodríguez (2011) define a la estrategia en el ámbito técnico define como un conjunt= o de recursos utilizados por un equipo profesional multidisciplinario para la ejecución de tareas en un determinado espacio social y socio-cultural para producir cambios en los ámbitos planteados, para el  diseño de estrategias de intervenció= n se identifica el contexto del problema, su identificación y análisis con cau= sas, efectos para plantear los objetivos generales y específicos, seleccionando= las técnicas y recursos para la intervención con la identificación clara de = metas y logros.

 

A nivel latinoamericano los países se van consolidando teniendo una visión = global según 2019 "Nuestra Propia Agenda sobre Desarrollo y Medio Ambiente&q= uot;, en el cual se hace un diagnóstico de la realidad latinoamericana y se prop= onen las bases para la construcción de la estrategia de desarrollo sustentable = de los países latinoamericanos. Dichas bases la constituyen 7 grandes líneas maestras: 1) La erradicación de la pobreza. 2) El aprovechamiento sostenib= le de los recursos naturales. 3) el ordenamiento del territorio. 4) El desarrollo tecnológico compatible con la realidad social y natural. 5) Una nueva estrategia económica y social. 6) La organización y movilización social = y 7) La reforma del Estado, es decir al ordenamiento territorial se plantea como una estrategia para lograr el desarrollo sostenible, basada en la "distribución geográfica de la población y sus actividades de acuer= do con la integridad y potencialidad de los recursos naturales que conforman el entorno físico-biótico.

 

Para LĂłpez (1995) una estrategia no es un plan, ni siquiera un plan de largo pl= azo, aunque la planificaciĂłn sea parte importante de una estrategia, ya que un = plan es lineal, rĂ­gido y frecuentemente sectorial, una estrategia debe ser dinĂ= ˇmica ya que se trata con gran diversidad de grupos y de interĂ©s sujetos a una situaciĂłn dinámica. Las estrategias son adaptativas y gradualmente van construyendo con un objetivo en determinado plazo y es participativa con acuerdos intersectoriales, aprovecha las oportunidades y fortalece las capacidades ya existente, encuentran prioridades, reanalizan periĂłdicament= e su situaciĂłn y mantiene un sistema de seguimiento interno sus acciones van gradualmente cambiando la realidad sin perder el enfoque de proceso, con la aplicaciĂłn de estrategias tenemos se consigue mejores resultados concluyen= do que no existe receta para su aplicaciĂłn sino la adaptaciĂłn a condiciones locales, cuanto menor es la jerarquĂ­a local mayor posibilidad de aplicaciĂ= łn con participaciĂłn más amplia y resultados más tangibles, siendo necesario ac= tuar en paralelo a niveles locales y nacionales.

 

Para Aguilar et al.  (2011), Salinas (2013, p.144) es como = un instrumento que planea y programa el uso del territorio, actividades produc= tivas, ordenacion de asentamientos humanos y el desarrollo de la sociedad de conformidad con el potencial natual aprovechando de manera sustentable los recursos naturales y humanos con la protección y calidad del medio ambient= e.

 

SegĂşn, SecretarĂ­a TĂ©cnica PLANIFICA ECUADOR (2019) dentro del Modelo de GestiĂłn contiene cuatro ejes de estrategias tales como la de articulaciĂłn y coordinaciĂłn de programas y proyectos segĂşn competencias, las estrategias= para la reducciĂłn progresiva de los factores de riesgo o su mitigaciĂłn, la estrategia del seguimiento y evaluaciĂłn, la estrategia de promociĂłn y dif= usiĂłn.

 

Metodologia.

La presente investigaciĂłn contempla las bases con la formulaciĂłn de teorĂ­as= sobre la planificaciĂłn, desarrollo local, ordenamiento territorial y estrategias, seguido de un diagnĂłstico situacional del caso de estudio con la revisiĂłn documental y recolecciĂłn de informaciĂłn en un perĂ­odo determinado, con u= na investigaciĂłn mixta con enfoque cuantitativo y cualitativo.

 

En la evaluación de la información documental se procede al análisis de la información mediante matrices de cumplimiento d= e la propuesta existente, así también se ha considerado la percepción de auto= ridades y técnicos de los Gobiernos Autónomos Descentralizados del cantón, aplic= ando encuestas y entrevistas dentro del período evaluado 2015-2019 que conlleva= una administración municipal anterior y la vigente desde mediados del 2019, considerando que la población es pequeña de autoridades y técnicos dentr= o del período administrativo que comprende diez concejales del Gobierno Cantonal= y dieciséis presidentes de las ocho parroquias rurales se toma un valor de representatividad del 60% con quince autoridades para la aplicación del instrumento de encuestas cerradas aplicadas, así también entrevistas semiestructuradas dirigidas al 100% en una muestra de seis técnicos que comprende los responsables de la Planificación dentro de la Municipalidad.=

 

Con el procesamiento de toda la información obten= ida ser procede al análisis de la información con alcance descriptivo analít= ico mediante cruce de los resultados para la formulación de la propuesta como respuesta a la solución de los resultados obtenidos, a fin de mejorar las estrate= gias existentes y formulando nuevas estrategias para garantizar un ordenamiento sostenible del cantón.

Resultados.

Caso de Estudi= o: El cantón Gualaceo está situada en la parte oriental de la provincia del Azu= ay a una distancia de 35Km de Cuenca la capital provincial, conformado por nueve parroquias: = ocho rurales Mariano Moreno, Daniel Córdova Toral, Luis Cordero Vega, Remigio Crespo Toral, Jadán, Zhidmad, San Juan y Simón Bolívar y una urba= na Gualaceo, cantonizada el 25 de junio de 1824 con 196 años de fundación, c= on una superficie de 345.48Km2. en las partes más bajas la altura territorial alc= anza a 2100 msnm y en sus páramos de altitud 4000 msnm. Población proyectada a= 2020 de 49105 total de habitantes, según CPV 2010, Densidad Poblacional de 115,= 36 h/km2. con principales actividades agricultura, la artesanía y turismo con grandes atractivos naturales y naturales como los ríos Sta. Bárbara y San Francisco, así también zonas protegidas como el bosque Aguarongo y el Col= lay, declarado como Patrimonio Cultural de la Nación en diciembre de 2001.

 

Evaluación de la planificación y ordenamiento territorial en el cantón Gualaceo 2015-2019: En los años 2001-2013 se contaba con el Plan de Desarrollo Estratégico del c= antón conjuntamente con el Plan de Ordenamiento Territorial únicamente de la cab= ecera cantonal que se encuentra vigente hasta la presente fecha. En el año 2013-= 2015 se formula el PDOT sin tener documentación de soporte, desde el año 2015-= 2019 se cuenta con el PDOT Cantonal por lo que se realiza la Evaluación de este período en el ámbito de la propuesta y modelo de gestión.

 

El Modelo Territorial: basado en la zonificaciĂłn territorial por las categorĂ= ­as de ordenaciĂłn, red de asentamientos humanos jerarquizados y de comunicaciĂłn,= asĂ­ como los elementos que condicionan las actividades humanas como (ABVP Bosqu= es Protectores y Reservas Municipales). Mediante las categorĂ­as de ordenaciĂłn identificadas y clasificadas de acuerdo a cuatro niveles de actuaciĂłn sobre el medio fĂ­sico segĂşn Cuadro 1 y Gráfico 1;  con el Nivel de Uso: ProducciĂłn 40.42= %, ConservaciĂłn42.42%, RecuperaciĂłn 13.89%, ExpansiĂłn 0.97% y Ăreas Urbana= s 0.04% , que describe 14 CategorĂ­as de Ordenamiento Territorial contemplada en la ordenanza temporal del área rural con un lote mĂ­nimo general; pero dicha zonificaciĂłn no ha sido contrarrestada con el verdadero deslinde predial ni caracterĂ­sticas propias de los centros poblados que apenas desde el año 2= 018 está siendo registrado digitalmente, las zonas de expansiĂłn contempla Ăşnicamente al suelo rural de la parroquia Gualaceo y no asĂ­ de las demás parroquias rurales, existiendo un crecimiento desordenado en los corredores= de crecimiento a lo largo de vĂ­as inter parroquial, asĂ­ como áreas junto al= lĂ­mite urbano parroquial al no existir actualizado los planes de ordenamiento urba= no de las parroquias y del mismo centro cantonal.

 

Cuadro = 1. Niveles= de Uso y CategorĂ­as de OrdenaciĂłn

Fuente:= Elabora= ciĂłn Propia en base a PDOT 2015

Gráfic= o 1: Niveles= de Uso                        Â=  Â Â Â Â Â Â      

Fuente:= Elabora= ciĂłn Propia en base a PDOT 2015                        Â=                           Â=  Â Â Â Â Â Â      

La red de asentamientos se encuentra debidamente jerarquizados, la red de infraestructura vial será necesario sea actualiza= da contando con una cartografía que no solo contemplen las vías principales = sino además los caminos públicos y/o vecinales de las localidades con un alcan= ce a las demás Instituciones tales como Subsecretaría de Tierras en la legaliz= ación de terrenos en el área rural, en la propuesta está planificado una vía de cuatro carriles de comunicación con la ciudad vecina Cuenca, la misma que = no se ha realizado ni estudios ni ha sido contemplada en programas y proyectos, la Circunvalación Bullcay-Gualaceo cuenta con estudios desactualizados por va= rios años sin que tampoco conste en el listado de proyectos.<= /p>

 

Las categorĂ­as de ordenaciĂłn territorial, frente al modelo territorial propue= sto no logrĂł clasificar plenamente el territorio del cantĂłn, sin definiciĂłn de = los suelos de expansiĂłn urbana y rural dejando vacĂ­os en estas categorĂ­as que serĂ­an abordadas en la actualizaciĂłn del plan de uso y gestiĂłn del suelo= .

 

El Modelo de GestiĂłn establecidos en el PDOT con estrategias planteadas de: <= o:p>

 

ĂĽ  Estrategias de coordi= naciĂłn y articulaciĂłn para la planificaciĂłn y gestiĂłn de los planes. <= /span>

Política Pública Local. - Programas y Proyectos:= con 23 programas y 41 proyectos planteados (políticas, objetivos, metas e indicadores) y su cumplimiento según Gráfico 2, se evidencia los programas realmente ejecutados en los cuatro años con un nivel de cumplimiento gener= al del 50% y con mayor porcentaje de incumplimiento en los componentes Asentamientos Humanos del 70% y Político Institucional del 60%.=

 

Gráfic= o 2. Cumplim= iento de Programas y Proyectos

Fuente:= Elabora= ciĂłn Propia en base a PDOT 2015

 

Política Pública Local. - Agenda Regulatoria: La= s estrategias con orientaciones normativas a través de 25 ordenanzas, acuerdos y resoluc= iones con especificación de objeto y alcance según Gráfico 3., tiene un nivel = de cumplimiento general del 44% y por ende realizadas el 66%, se evidencia el = 100% de cumplimiento en los componentes sociocultural y económico productivo mientras que los restantes alcanzan un 50% de cumplimiento.

 

             Gráfico 3. Cumplim= iento de Agenda Regulatoria

Fuente:= Elabora= ciĂłn Propia en base a PDOT 2015

 

Estrategias de ArticulaciĂłn. - Programas y Proyec= tos: Las 31 estrategias de coordinaciĂłn y articulaciĂłn determinadas segĂşn GrĂ= ˇfico 4. alcanzan un cumplimiento general de apenas el 24%, siendo los componentes BiofĂ­sico y Socio Cultural con el 75% y 68% respectivamente y un incumplim= iento total en los demás componentes, pese a existir estrategias planteadas en c= ada una de los componentes no han sido aplicadas ya que los indicadores de gest= iĂłn son muy generales asĂ­ como el tiempo de ejecuciĂłn, no existe estrategias planteadas para los programas y proyectos en el programa de PlanificaciĂłn Territorial como Planes de Ordenamiento Urbano de la Cabecera Cantonal y Cabeceras Parroquiales que no han sido actualizados desde el año 2000 y la ActualizaciĂłn de los Planes de Desarrollo y Ordenamiento Territorial del c= antĂłn se han realizado de conformidad con la ley y actualmente se  encuentran en proceso; asĂ­ tambiĂ©n s= i se ha planteado en la Agenda Regulatoria la Ordenanza de Uso y OcupaciĂłn del sue= lo rural pero no se ha ejecutado contando aĂşn con una Ordenanza Temporal muy general.

Gráfic= o 4. Cumplim= iento de Estrategias para Programas y Proyectos

Fuente:= Elabora= ciĂłn Propia en base a PDOT 2015

&n= bsp;

Las estrategias de coordinación, articulación y gestión planteado en proyectos, ordenanzas y estrategias alcanzan un nivel= bajo del 47% ya que no existe evaluación ni seguimiento de lo planteado ni han = definido los responsables para su aplicación, así también no se han construido indicadores de gestión que aporten información de valor para la medición= real que no lograron enfocarse para conseguirlos.

 

Ă= Ľ  Estrategias y metodol= ogĂ­as de participaciĂłn de la ciudadanĂ­a en el proceso de planificaciĂłn y ordenami= ento territorial.

La participaciĂłn ciudadana es corresponsable de la obtenciĂłn de resultados del Plan en el proceso de formulaciĂłn, ejecuciĂłn, seguimiento y monitoreo y la evaluaciĂłn ciudadana, aplicados en los difere= ntes espacios y mecanismos participativos determinados tales como:

 

Unidades de Participación: En el proceso de Presupuestos, Rendición de Cuentas y Sistema de Participación Ciudadana, = no existe ni se ha formulado la normativa para su aplicación sino es ejecutad= o de manera general por el equipo técnico coordinador.

 

Sistemas de Gestión Social Territorial: Plantean = un sistema de información local georeferenciada que permita acceso de la información territorial generada por la municipalidad y on-line a todos los ciudadanos; pero esto no ha sido implementado y se encuentran en proceso constructivo d= esde el año 2018 con el registro de predios rurales realizado externamente.

 

Presupuesto Participativo: Se considera la asignación de recursos de acuerdo al plan per  no existe Ordenanza del Presupuesto Participativo planteado en la ag= enda regulatoria del Plan, ni sigue un procedimiento referente comisión, equipo coordinador, técnico y apoyo local, concertación de reglas de juego, sensibilización y socialización, evaluación y retroalimentación,  los demás aspectos como organización= y desarrollo de la asamblea, aspectos técnicos básicos, criterios de proyec= tos a priorizar, recopilación de los proyectos presentados por la ciudadanía, presentación de los proyectos al Concejo Cantonal.

 

La estrategia de participaciĂłn ciudadana en gener= al, no se ha implementado en su totalidad siendo mĂ­nima su aplicaciĂłn Unidades de ParticipaciĂłn y Presupuesto Participativo y nula en los sistemas de gestiĂ= łn social territorial.

 

Ă= Ľ  Estrategias y metodol= ogĂ­a de seguimiento y evaluaciĂłn del Plan y de la inversiĂłn pĂşblica.

El proceso de Seguimiento proporciona alertas tempranas que permitan retroalimentar las polĂ­ticas pĂşblicas en los terri= torios; pero han sido Ăşnicamente ejecutadas a nivel de reportes al Sistema de Info= rmaciĂłn de los GAD a la SecretarĂ­a TĂ©cnica Planifica Ecuador en lo que correspond= e al cumplimiento de metas del PDOT cuyos informes anuales segĂşn Cuadro 2 tiene= un cumplimiento de metas ICM del 0.77 al 1.00, en avances fĂ­sicos del 77 al 7= 8% y un avance presupuestario del 83.60 al 100% pero se contradice con los resultados obtenidos con la realidad interna al no existir registro alguno = de seguimiento y evaluaciĂłn.

 

Cuadro 2. Reportes SIGAD

Fuente: ElaboraciĂłn Propia en base a Registros SIGAD

 

La estrategia de seguimiento y evaluaciĂłn del Pla= n a nivel interno de la InstituciĂłn no se ha realizado para la implementaciĂłn= e intervenciones fĂ­sicas de programas y proyectos ni conclusiones ni recomendaciones oportunas y se limita a un registro obligatorio en el Siste= ma de InformaciĂłn de Gobiernos AutĂłnomos Descentralizados (SIGAD) que eviden= cia un mayor cumplimiento al registrado internamente.

 

Según la  percepción de autoridades de = los  Gobiernos Autónomos Descentralizados d= el cantón y técnicos de planificación, si bien es cierto le atribuyen la importancia con un 87% a la Planificación y Desarrollo Local del cantón, considerando el 67% que es aceptable la aplicación de los planteamientos d= el PDOT, dando una valoración negativa a la estructura organizativa de planificación de su cantón de regular el 66.7% y pésima el 13.3% y consi= deran que no se ha llegado aplicar un ordenamiento sostenible mencionando el 40% = que poco se ha aplicado y el 20% nada, pero a la vez en su mayoría se evidenci= a un desconocimiento general del PDOT en lo que respecta a la visión cantonal c= on el 73.3%, el ordenamiento territorial con el 53.3% poco y el 26.7% nada conoce= n, así también las estrategias el 46.7% poco y el 40% nada conocen al respec= to, la agenda regulatoria el 33.3% poco y el 33.3 así también mencionando el 80%= que no ha existido un seguimiento ni evaluación de la propuesta planteada; pero manifiestan en su mayoría el 80% es necesario la aplicación de más estra= tegias es decir atribuyen el éxito y/ o fracaso de la Planificación de su cantó= n el 46.7% únicamente al desconocimiento del PDOT interno y externo, y el 46.7%= al mismo desconocimiento del PDOT a nivel interno y externo, así como la  falta de estrategias, apoyo de autorid= ades de turno y personal técnico de planificación.

 


De igual manera, las encuestas de carácter abiertas para los Técnicos de planificación del Gobierno municipal mantuvieron respuestas similares, resaltando que, el PDOT no es tomado en cuenta, debido a que, solo se lo elabora para cumplir con la ley, pero, carece totalmente del interés de las autoridades para su cumplimiento, por lo que, no es conocido a nivel intern= o ni externo, por eso los informes o reportes no se han llevado a cabo sin el se= guimiento ni evaluación respectiva, salvo para cumplir con el SIGAD. Algunas de las respuestas que surgieron de las entrevistas semiestructuradas. <= /span>

Gráfic= o 5. Percepc= ión de PDOT Técnicos de Planificación

Fuente:= Elabora= ciĂłn Propia

&nbs= p;

El mayor problema que existe en relación al PDOT = y por ende de las estrategias planteadas, es la falta de conocimiento de las autoridades, técnicos municipales y la misma población, es notoria la importancia que todos le dan al Desarrollo y Ordenamiento Territorial pero = al existir un desconocimiento para su aplicación así como la falta de person= al técnico capacitado y poco interés de todos, es necesario fomentar el inte= rés y conocimiento a nivel interno municipal y se pueda proyectar a toda la pobla= ción del cantón.

 

ĂĽ  Estrategia de DifusiĂ= łn del Plan.

La estrategia de difusión se realizó únicamente en el año 2015 cuando se r= ealizaba los planes y en los años siguientes la ciudadanía en general desconoce al= igual que la mayoría de sus autoridades y jefes departamentales, ya que carecen = de un Plan de Difusión interno y externo debidamente estructurado.

 

Propuesta de e= strategias para el ordenamiento territorial sostenible: A fin de determinar un ordenamiento territorial sostenible en el cantón, de conformidad con la evaluación del PDOT 2015-2019 referente a las estrategi= as planteadas, la propuesta Gráfico 6. en la presente investigación contempl= a en primera instancia el mejoramiento y fortalecimiento de las estrategias ya p= lanteadas en el modelo de Gestión de acuerdo con la guía metodológica para la formulación/actualización del PDOT año 2019, emitida por la Secretaría = Técnica de Planificación. 

Gráfic= o 6. Estrate= gias

Fuente:= Elabora= ciĂłn Propia

&n= bsp;

Cabe señalar que la estrategia de participaciĂłn ciudadana no se encuentra ahora de manera especĂ­fica en el modelo de gesti= Ăłn sino se trata de todo un sistema presente en todo el proceso de formulaciĂłn/actualizaciĂłn e implementaciĂłn de los PDOT y presente en cad= a una de las estrategias generales; siendo necesario se desarrolle una metodologĂ= ­a de participaciĂłn ciudadana que involucre a los actores locales: administraciĂ= łn municipal, las empresas y/o instituciones con la inversiĂłn de recursos y esfuerzos, el involucramiento de la academia con iniciativas de investigaci= Ăłn y capacitaciĂłn  y sociedad civil co= n las organizaciones sociales para que lleven a cabo las acciones necesarias. =

 

ĂĽ&n= bsp; Fortalecimiento de estrategias de articulaciĂłn y coordinaciĂłn para la implementaciĂłn del PD= OT.

P= ara la propuesta de las estrategias se aplica los diferentes elementos plantead= os segĂşn Jordá., (2016) que = tiene la vocaciĂłn de transformar el territorio a medio y largo plazo= aplicados segĂşn el Cuadro 3.

1.      una visiĂłn, elemento fundamental sin el que no puede existir estrategia.

2.      unas lĂ­neas estratĂ©= gicas, aquĂ©llas en las que el territorio va a volcar sus esfuerzos y sus recursos= para convertirse en un referente entre los demás territorios.=

3.      unas actuaciones bás= icas, o proyectos clave para cada lĂ­nea, que reforzarán al territorio hasta hacer= le alcanzar la excelencia en las lĂ­neas estratĂ©gicas escogidas.

4.      un calendario, que fi= ja los grandes hitos del despliegue de la estrategia, la marcaciĂłn de plazos de ejecuciĂłn para los programas y proyectos a corto, mediano y largo plazo estableciendo compromisos con un calendario definido y conocido por los involucrados.

5.      organizaciĂłn, consti= tuida por los actores del territorio y que se encargará de impulsar, coordinar y hac= er el seguimiento del progreso de la estrategia con la misiĂłn de supervisar y coordinar la puesta en marcha con una estructura profesional con los actores territoriales implicados en la estrategia.

 

Cuadro = 3. Element= os de la Estrategias

Fuente:= Elabora= ciĂłn Propia

 

ĂĽ&n= bsp; Fortalecimiento de estrategias de articulaciĂłn y coordinaciĂłn para la implementaciĂłn del PD= OT.

En las 30 estrategias de articulación planteadas = para los programas y proyectos en el PDOT en cada uno de los componentes según = el Cuadro 4, se ajustan y determinan los indicadores de gestión y se fija el = año 1,2, 3 o 4 para su ejecución, ya que actualmente se tiene como tiempo de ejecución 4 años de manera muy general y los indicadores de gestión menc= iona presupuesto devengado/ presupuesto programado que son datos muy generalizad= os que no garantizan una retroalimentación oportuna.

 

Cuadro = 4. Estrate= gias de ArticulaciĂłn segĂşn Componente

Fuente:= Elabora= ciĂłn Propia en base a PDOT 2015

 

ĂĽ&n= bsp; Fortalecimiento de estrategias de seguimiento y evaluaciĂłn del PDOT.

En esta estrategia se reforzará según Cuadro 3, = el punto 5 de Organización en las diferentes Sesiones del GAD Cantonal con las comisiones afines a los componentes del punto 2, con previas reuniones de trabajo del Departamento de Planificación y su unidad responsable del PDOT= la misma que deberá ser fortalecida para monitorear acciones tanto a nivel in= terno como externo siendo el apoyo técnico del Consejo de Planificación y progr= amando talleres con Planifica Ecuador de ser necesario muy a parte de los registros SIGAD obligatoriamente establecidos. El equipo responsable a nivel estraté= gico lo conforman las diferentes comisiones y a nivel ejecutivo se sugiere la conformación de un equipo interno conformado por los directores departamen= tales que serán los responsables de realizar el seguimiento y evaluación con el técnico responsable del PDOT.

 

Seguimiento Mensual: El técnico responsable regis= trará la matriz de seguimiento y evaluación según la guía de PLANFIICA ECUADOR= , que será recopilada y sistematizada para informar al presidente de los avances= de proyectos, problemas que presenten en la implementación y las acciones a realizar para avanzar en el cumplimiento de las metas propuestas.

 

Seguimiento Trimestral: El equipo responsable a tr= avés de reuniones trimestrales de la ejecución del PDOT de programas y proyecto= s, objetivos y metas (Registro SIGAD) entre los técnicos involucrados y los beneficiarios de que permitan tomar acciones correctivas a tiempo con el involucramiento de la población.

 

EvaluaciĂłn Semestral: Reuniones con el Consejo de PlanificaciĂłn Cantonal con integraciĂłn en el territorio para presentar el estado de cada uno de los programas y proyectos.

 

Evaluación Anual: Una vez reportados trimestralme= nte los avances de programas y proyectos del PDOT se cuenta con un reporte anual que deberá ser conocido por las instancias y responsables en la Asamblea p= ara la Rendición de Cuentas.

 

Con Productos a entregar:

Matriz de seguimiento y evaluación de Programas y Proyectos. Fichas e informes de proyectos para presupuesto participativo. F= ichas de beneficiarios de proyectos con la memoria técnica descriptiva. Reportes= al SIGAD. Actas de memorias de reuniones de trabajo.

Hoja de asistencia. Actas de sesiones.  Informes técnicos de Programas y Proye= ctos. Informes anuales de Seguimiento al PDOT a ser entregada a la Secretaría Técnica de Planificación. Con Socialización Interna y Externa

 

ĂĽ&n= bsp; Fortalecimiento de estrategias de promociĂłn y difusiĂłn.

 

PresentaciĂłn del PDOT 2019-2023 difundiendo la VI= SION Cantonal y los programas y Proyectos planificados y las estrategias del mod= elo de gestiĂłn.

 

Seguimiento y evaluaciĂłn del PDOT en donde se dif= unde los avances y el cumplimiento de las objetivos y metas propuestas.

 

El Plan deberá ser difundido y promocionado apoya= do en insumos comunicacionales como un folleto ejecutivo resumen a ser difundido = en la WEB y entregado a los diferentes actores, letreros para la difusión de = la VISION en lugares estratégicos y espacios públicos en cada una de las parroquias. La Evaluación del Plan deberá ser difundido en boletines on l= ine del avance en la página WEB y redes sociales

 

ĂĽ&n= bsp; Estrategia ambiental.=

 

Si bien es cierto el cumplimiento de la polĂ­tica ambiental nacional está regulado por el Ministerio del Medio Ambiente las acciones que propician su cumplimiento dependen de los PDOT de tal forma que permitan un desarrollo sostenible en el territorio para que sean viables y controlables de conformidad con las condiciones tecnolĂłgicas, financieras, organizativas y humanas de la localidad, por lo que en las nuevas guĂ­as 20= 19 contempla una nueva estrategia de reducciĂłn progresiva de los factores de riesgo y su mitigaciĂłn para fortalecer las unidades tĂ©cnicas de gestiĂłn = de riesgo para identificar, proponer y gestionar riesgos identificados, siendo necesario establecer un Plan a corto mediano y largo plazo tanto en el área urbana y rural contando con los mapas de amenazas y riesgos actualizados que permitan actualizar el ordenamiento del territorio con programas de reforzamiento y rehabilitaciĂłn pero es necesario que contemple aspectos mĂ= ˇs generales es decir  sea el plantea= miento de la Estrategia Ambiental a fin de contar con un ordenamiento territorial = sostenible del cantĂłn con una articulaciĂłn de los componentes BiofĂ­sico y de Asenta= mientos Humanos.

 

Conforme la estructura organizacional del GAD Municipal de Gualaceo cuenta con la Unidad de Gestión Ambiental con la Ofi= cina de Riesgos, a través de la cual se deberá canalizar la articulación con = las demás entidades competentes y de manera especial con la Unidad responsable= del PDOT.

 

Conclusiones.

·      =    El PDOT Cantonal adoptado desde el año 2015, contempla b= ajos Ă­ndices del cumplimiento en cada una de las estrategias planteadas sin retroalimentaciĂłn para el mejoramiento continuo, en el ámbito del Modelo = de GestiĂłn surge la necesidad urgente de elaborar y fortalecer los elementos = de las estrategias que ayuden a verificar su cumplimiento y garantizar una planificaciĂłn y ordenamiento territorial sostenible. 

·      =    Para aplicar las estrategias de debe contar de manera urg= ente con la Estructura Organizativa de la Municipalidad con el fortalecimiento d= e la Unidad de CoordinaciĂłn del PDOT Cantonal con el involucramiento de las autoridades, agentes locales y los tĂ©cnicos de cada uno de los departament= os municipales a fin de contar con un seguimiento y evaluaciĂłn a nivel intern= o que les permita tomar los correctivos oportunamente y sea conocido por toda la ciudadanĂ­a, asĂ­ tambiĂ©n cuente a corto plazo con un sistema de informaci= Ăłn geográfica para garantizar un verdadero ordenamiento territorial, y expedi= entes de su organizaciĂłn territorial no solo la recopilaciĂłn estadĂ­stica, cart= ografĂ­a básica y temática del territorio, sino que sea una herramienta digital pa= ra la ciudadanĂ­a y de seguimiento de gestiĂłn para efectos de poder ajustar, complementar o mantener las actuaciones de planes, programas y proyectos previstos.

·      =    Es necesario un liderazgo gubernamental conscientes del conocimiento de los potenciales y debilidades de su territorio dispuestos a conocer, concebir y ejecutar estrategias relacionadas con la gestiĂłn ambie= ntal para garantizar un ordenamiento territorial sostenible comprendiendo en pri= mera instancia la visiĂłn planteada.

 

Referencias bibliográficas.=

Aguilar, M. (2011). Ordenamiento territorial y participaciĂłn social problemas y posibilidades.<= /span>

AntĂłn, S. (2005). PlanificaciĂłn Territorial del turismo<= /p>

Albuquerque, F.  (2014).= Evolución del desarrollo territorial.

Boisier, S.  (1999). Des= arrollo local de qué estamos hablando.

Contreras, E. (2013). El concepto de estrategia como fundamento d= e la Planeación Estratégica.

Folch, R. (2005). El territorio como sistema: conceptos y herrami= entas OrdenaciĂłn.

Galilea, S., La planificaciĂłn local: nuevas orientaciones, metodolĂłgicas.

GĂłmez, D. (2014). X simposio nacional de desarrollo urbano y planificaciĂłn territorial.

Jordá, A. (2016). M= anual de la Estrategia de desarrollo para ciudades intermedias

Juárez G. (2013). Revisión del conc= epto de desarrollo local desde una perspectiva territorial.

Malo, C. (2012). Revista de la Universidad del Azuay N. 57 Ordena= miento Territorial y descentralizaciĂłn.

MĂ©ndez, H. (2008). Desarrollo de herramien= tas y estrategias para el Ordenamiento Territorial.

Méndez, H. (2008). Desarrollo de herramientas y estrategias para= el Ordenamiento Territorial. Molina Rudolf et ál. (2014). Estrategias y polí= ticas nacionales para la cohesión territorial Estudios de caso latinoamericanos.=

RodrĂ­guez, M. (2011). Estrategias de intervenciĂłn: notas metodolĂłgicas

Saavedra, R. (2001). PlanificaciĂłn del Desarrollo.

Sánchez, D. (2004). P= rincipios de Planificación Territorial.=

Salinas, E. (2013). Reflexiones acerca del papel del ordenamiento territorial en la planificaci= Ăłn y gestiĂłn ambiental.

SecretarĂ­a TĂ©cnica PLANIFICA ECUADOR, (2019). GuĂ­a para la for= mulaciĂłn/actualizaciĂłn del PDOT Cantonal.

Silva et ál. (2014). Estrategias y políticas nacionales para la cohesión territorial Estudios de caso en América Latina.

 

 

 

 

 

 

 

 

 

 

 

 

PARA CITAR EL ARTĂŤCULO INDEXADO.

 

&= nbsp;

Sarango Simbaña, S. M., Ăvila Calle, M. B., & Castillo Ortega, Y. (2021). Estrategias de ordenamiento territorial sostenible para el cantĂłn Gualaceo. ConcienciaDigital, 4(2), 55-73. https://doi.o= rg/10.33262/concienciadigital.v4i2.1627

&= nbsp;

 

 

 

El artĂ­culo que se publica es de exclusiva responsabilidad de los autores y no necesariamente reflejan el pensamiento de la Revi= sta Conciencia Digital.

 

El artĂ­culo queda en propiedad de la revista y, por tanto, su publicaciĂłn pa= rcial y/o total en otro medio tiene que ser autorizado por el director de la Revista Conciencia Digital.<= /o:p>

 

         =                                      Â=  Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â =                                      Â=  Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â Â  =

 

 



[1] Universidad de Cuenca, Facultad de Arquitectura,= Universidad CatĂłlica de Cuenca, Posgrado MaestrĂ­a en Desarrollo Local MenciĂł= n PlanificaciĂłn, Desarrollo y Ordenamiento Territorial, Cuenca Ecuador, sandrysarango76@hotmail.com, = https://orcid.org/0000-0001-8836-9176

[2] Universidad CatĂłl= ica de Cuenca, Facultad de IngenierĂ­a y Arquitectura, Cuenca Ecuador, mavila@ucacue.edu.ec, https://orcid.org/0000-0002-2134-1432

[3] Universidad CatĂłl= ica de Cuenca, Facultad de EconomĂ­a, Cuenca Ecuador, ycastilloo@ucacue.edu.ec, https://orcid.org/0000-0002-7710-5199

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