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N° 66, 2011

pp. 89-106

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CONTENIDO: PRELIMINAR.– I. EL ESTADO Y SUS COMPLEJIDADES.–


II. EL CONTRATO ADMINISTRATIVO COMO INSTRUMENTO NECESARIO.–
III. SUJETO, FORMAS Y CONTROL EN UN CONTEXTO COMPLEJO.

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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
TT

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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
TT

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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420


SNT ("#/#20#+#2+/5+#/(#&,%$+/#2/,!,$,-%-+(%"%+"#/( 2-#"+%+$%+#3 $5&,B2+-#+$%/+
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420

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