Opening the "black box" of failure: bureaucratic capacity and participatory budgeting implementation in Bogotá

Abstract

Despite the global expansion of Participatory Budgeting (PB), many of these initiatives fail. Existing explanations of these outcomes emphasize factors such as political will and social capital. However, the impact of administrative capacity and intersectoral coordination on PB implementation remains underexplored. This article addresses that gap in the literature.  Through a qualitative case study of PB in Bogotá during the administration of Mayor Gustavo Petro period between 2012-2015, this study compares territorial and sector-specific PB. The findings show that sector-specific PB achieved relative success because it was implemented through existing administrative structures. In contrast, territorial PB failed due to bureaucratic rigidity, weak intersectoral coordination, and the absence of cross-sectoral financial mechanisms necessary for implementation. The case demonstrates that political will and social capital, though necessary, are insufficient: successful PB execution requires prior administrative transformations. The Bogotá case illustrates how bureaucratic inertia can undermine participatory objectives. Furthermore, in the absence of such administrative reforms, sector-specific PB may represent a viable alternative.