How Movement Strength Matters: Social Movement Strength and the Implementation of Ethnodevelopment Policy in Ecuador and Peru

Why has Ecuador been much more successful at implementing participatory policy than Peru despite the similarity between the two countries’ policies and despite their similarly low state capacity? To answer this question, this article draws on insights from implementation literature that point to factors such as incentives written into policy, the commitment of administrations and bureaucratic agencies, and few veto points in the chain of implementation. While this article does not challenge such findings, it suggests that we must look further back in the causal chain to understand what brings such facilitating conditions about. Through an examination of ethnodevelopment policy in Ecuador and Peru, I find that the strength of social movements is most responsible for creating the conditions that foster implementation. Neither civil society nor the state alone can bring about successful participatory policy implementation. Rather, strong social movements can make the state comply with its own laws.