through censure, impeachment, and votes of no confidence. In practice, however, the legislature has not

played an autonomous role. Seldom has the Congress had the opportunity to function as a forum for

debate over major policy issues, or as a vehicle for the representation of citizen interests. As a result,

public confidence in Congress remains low.

The 1993 Constitution also reduced the legislature from two chambers to one unicameral Congress with

120 members who represent a single electoral district. Peru's Congress was never a showcase of

representative government. But the change from multiple districts to the 

distrito unico

 has further diluted

voter representation in the legislative branch. In 1990, there was one member of Congress for every

30,000 voters. In 1995, the ratio rose to one per 111,345 voters, or 206,675 residents per Congressman,

the highest ratio in the Andes. Since the unitary district was adopted, provincial representation in

Congress has decreased, while Lima's influence rose disproportionately.

In 1990, 165 of Peru's 240 provinces were represented in Congress, holding 69 percent of the seats. As

of the 1995 elections, only 68 provinces are represented (56 percent of the seats). The lack of

proportionality widens the gap between citizens and the political process and reinforces public

perceptions that Congress does not represent its interests. It also keeps campaigns focused in Lima.

19

 An

unintended consequence of the unitary district is that it has revitalized the push to strengthen

municipalities to compensate for the absence of regional interest representation at the national level.

a.

Legislative Decision Making, Debate over Public Policy

Peru's Congress falls short of the ideal deliberative body. Fujimori's Cambio 90/Nueva Mayoria alliance

holds a majority in the Congress, 67 members out of 120

20

. Congress is authorized to pass legislation in

one of three ways: by initiating and passing laws, by granting legislative authority to the Executive, and

by passing emergency decrees that originate with the Executive.  Since 1995, Congress has favored the

latter two alternatives, either accepting legislation put forward by the Executive or granting the President

authority to legislate, with little deliberation. From 1995 to 1999, half of all legislation was issued by the

Executive, given extraordinary powers by the Congress.

21

Congress has a mixed record with respect to basic rules and procedures. Innovations in procedural

operations in recent years have permitted greater transparency and public information regarding the

legislature's inner workings. Following recommendations developed by the 

Comision de Modernizacion

del Congreso

 (1995), in 1998 the Congress obtained an electronic board for its chamber floor, to

indicate how members voted on legislation. Congress has also used the Internet to disseminate

information about legislative proceedings, maintains a web site that monitors the progress of bills and

other legislative actions when Congress is in session, posts transcripts of daily debates, lists initiatives

19

 A team member visited Piura, where complaints were heard about the region having been all but ignored during

the campaign by all candidates except Fujimori, who had visited the department repeatedly, inaugurating public

works marked by huge signs bearing the President's likeness.

20

 The pro government alliance Per  2000 currently claims 57 of the 120 new congressional members elected in

April 2000, just four votes short of a new majority.

21

 These laws are also the most significant. In its first report to Congress, the Peruvian Defensoria del Pueblo

criticized  the tendency of the Congress to delegate legislative functions to the executive.  Santistevan de Noriega,

Jorge, 

Primer Informe del Defensor del Pueblo ante el Congreso de la Rep blica

, 1996 1998. Lima, Peru:

Defensor del Pueblo:, 1998, p. 668.

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