Implementación del Fondo Adulto Mayor CVC 8% en Ñuble y su alineación con la Política Integral de Envejecimiento Positivo.
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Date
2026
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Universidad de Concepción
Abstract
El presente estudio examina la implementación del Fondo Adulto Mayor del Concurso de Vinculación con la Comunidad 8% en la Región de Ñuble, Chile, y analiza el grado de alineación programática de los proyectos financiados en su convocatoria 2024 con los objetivos de la Política Integral de Envejecimiento Positivo (PIEP) 2012–2025. La investigación se sitúa en un contexto en que Ñuble constituye la región más envejecida del país, con un 23,3% de su población mayor de 60 años según el Censo 2024, fenómeno que coexiste con condiciones de alta ruralidad y desigualdades en el acceso a servicios.
Se adoptó un diseño mixto concurrente anidado, con predominio cualitativo. El componente cualitativo se sustentó en ocho entrevistas semiestructuradas a actores clave del proceso de implementación, analizadas desde el Modelo de Análisis y Desarrollo Institucional (ADI) de Elinor Ostrom. El componente cuantitativo consistió en el análisis de la cartera completa de 218 proyectos adjudicados, incluyendo la construcción de una variable ordinal de alineación programática con los trece objetivos específicos de la PIEP. La integración de ambos componentes se realizó mediante la construcción de metainferencias en la fase de discusión.
Los hallazgos revelan que el Fondo constituye un instrumento socialmente valorado, con capacidad efectiva para movilizar recursos y activar organizaciones de personas mayores. Sin embargo, su implementación está atravesada por asimetrías en las capacidades técnicas de las organizaciones y por una marcada concentración territorial (la tasa de proyectos per cápita varía 12,8 veces entre comunas, con una correlación negativa significativa respecto a la población mayor: rₛ = -0,540; p = 0,012). En cuanto a la relación entre el Fondo y la PIEP, el 98,6% de los proyectos aborda al menos un objetivo de la política, lo que indica que el instrumento no opera al margen de ella. Sin embargo, el 81,2% aborda exactamente un objetivo de trece posibles, ningún proyecto articula tres o más, y la presencia se concentra en participación social (59,2%), factores protectores de la salud (32,1%) y servicios de salud (16,5%), mientras cuatro objetivos no registran presencia alguna. Un hallazgo central es que dicha alineación no depende del apoyo externo recibido durante la formulación (χ² = 0,76; p = 0,684) sino de la línea de postulación del Fondo, único factor con asociación significativa (χ² = 16,04; p < 0,001). Las organizaciones no conocen ni aplican la PIEP al formular sus proyectos; la alineación observada es una propiedad de la arquitectura del instrumento, no de la apropiación organizacional de la política.
Se concluye que la coherencia entre el Fondo y la PIEP, entendida como constructo que articula la alineación programática con las dinámicas institucionales de implementación, es real, parcial y estructuralmente condicionada. El Fondo materializa ciertas dimensiones de la política de manera efectiva, pero no puede exigírsele lo que su diseño no contempla. El envejecimiento positivo requiere intervenciones longitudinales, acumulativas e integrales; el Fondo, por su naturaleza concursable y ciclo anual, constituye una intervención transversal y acotada. Esta diferencia no es una falla del instrumento, sino una condición estructural que obliga a pensarlo como componente dentro de un ecosistema más amplio de instrumentos coordinados y territorialmente sensibles. Los hallazgos adquieren especial pertinencia en el contexto de la reciente promulgación de la Ley N° 21.822, que establece la futura Política Nacional de Envejecimiento.
This study examines the implementation of the Fondo Adulto Mayor (Older Adults Fund) of the Community Engagement Fund 8% in the Ñuble Region, Chile, and assesses the degree of programmatic alignment between the projects funded in 2024 and the objectives of the Comprehensive Positive Ageing Policy (PIEP) 2012–2025. The research is situated in a context where Ñuble is the most aged region in the country, with 23.3% of its population over 60 years of age according to the 2024 Census, a phenomenon that coexists with high rurality and inequalities in access to services. A concurrent nested mixed-methods design was adopted, with qualitative predominance. The qualitative component was based on eight semi-structured interviews with key implementation actors, analysed through Elinor Ostrom's Institutional Analysis and Development (IAD) framework. The quantitative component comprised the analysis of the complete portfolio of 218 funded projects, including the construction of an ordinal variable measuring programmatic alignment with the thirteen specific objectives of the PIEP. Integration of both components was carried out through the construction of meta-inferences during the discussion phase. Findings reveal that the Fund is a socially valued instrument with effective capacity to mobilise resources and engage older adults' organisations. However, its implementation is marked by asymmetries in organisational technical capacities and significant territorial concentration (the per capita project rate varies 12.8 times across municipalities, with a significant negative correlation with the older population: rₛ = -0.540; p = 0.012). Regarding the relationship between the Fund and the PIEP, 98.6% of projects address at least one policy objective, indicating the instrument does not operate apart from the policy. However, 81.2% address exactly one objective out of thirteen, no project articulates three or more, and coverage is concentrated in social participation (59.2%), health protective factors (32.1%), and health services (16.5%), while four objectives are entirely absent. A central finding is that this alignment does not depend on external support received during formulation (χ² = 0.76; p = 0.684), but on the Fund's submission line, the only factor with significant association (χ² = 16.04; p < 0.001). Organisations neither know nor apply the PIEP when formulating their projects; the observed alignment is a property of the instrument's architecture, not of organisational appropriation of the policy. It is concluded that the coherence between the Fund and the PIEP, understood as a construct that articulates programmatic alignment with institutional implementation dynamics, is real, partial, and structurally conditioned. The Fund effectively materialises certain dimensions of the policy, but cannot be expected to achieve what its design does not contemplate. Positive ageing requires longitudinal, cumulative, and comprehensive interventions; the Fund, given its competitive and annual nature, constitutes a cross-sectional and limited intervention. This difference is not a flaw in the instrument but a structural condition that calls for understanding it as one component within a broader ecosystem of coordinated and territorially sensitive instruments. These findings are especially pertinent in the context of the recent enactment of Law No. 21,822, which establishes Chile's future National Ageing Policy.
This study examines the implementation of the Fondo Adulto Mayor (Older Adults Fund) of the Community Engagement Fund 8% in the Ñuble Region, Chile, and assesses the degree of programmatic alignment between the projects funded in 2024 and the objectives of the Comprehensive Positive Ageing Policy (PIEP) 2012–2025. The research is situated in a context where Ñuble is the most aged region in the country, with 23.3% of its population over 60 years of age according to the 2024 Census, a phenomenon that coexists with high rurality and inequalities in access to services. A concurrent nested mixed-methods design was adopted, with qualitative predominance. The qualitative component was based on eight semi-structured interviews with key implementation actors, analysed through Elinor Ostrom's Institutional Analysis and Development (IAD) framework. The quantitative component comprised the analysis of the complete portfolio of 218 funded projects, including the construction of an ordinal variable measuring programmatic alignment with the thirteen specific objectives of the PIEP. Integration of both components was carried out through the construction of meta-inferences during the discussion phase. Findings reveal that the Fund is a socially valued instrument with effective capacity to mobilise resources and engage older adults' organisations. However, its implementation is marked by asymmetries in organisational technical capacities and significant territorial concentration (the per capita project rate varies 12.8 times across municipalities, with a significant negative correlation with the older population: rₛ = -0.540; p = 0.012). Regarding the relationship between the Fund and the PIEP, 98.6% of projects address at least one policy objective, indicating the instrument does not operate apart from the policy. However, 81.2% address exactly one objective out of thirteen, no project articulates three or more, and coverage is concentrated in social participation (59.2%), health protective factors (32.1%), and health services (16.5%), while four objectives are entirely absent. A central finding is that this alignment does not depend on external support received during formulation (χ² = 0.76; p = 0.684), but on the Fund's submission line, the only factor with significant association (χ² = 16.04; p < 0.001). Organisations neither know nor apply the PIEP when formulating their projects; the observed alignment is a property of the instrument's architecture, not of organisational appropriation of the policy. It is concluded that the coherence between the Fund and the PIEP, understood as a construct that articulates programmatic alignment with institutional implementation dynamics, is real, partial, and structurally conditioned. The Fund effectively materialises certain dimensions of the policy, but cannot be expected to achieve what its design does not contemplate. Positive ageing requires longitudinal, cumulative, and comprehensive interventions; the Fund, given its competitive and annual nature, constitutes a cross-sectional and limited intervention. This difference is not a flaw in the instrument but a structural condition that calls for understanding it as one component within a broader ecosystem of coordinated and territorially sensitive instruments. These findings are especially pertinent in the context of the recent enactment of Law No. 21,822, which establishes Chile's future National Ageing Policy.
Description
Tesis presentada para optar al grado de Magíster en Trabajo Social y Políticas Sociales.
Keywords
Envejecimiento, Ancianos, Políticas públicas, Calidad de vida