Research objective: To analyze the determinants of governmental performance, assuming that policy sectors have different state capacities and produce heterogeneous effects on their performance.
Theoretical Framework: Grounded in the neo-Weberian bureaucracy and public governance debates, the inquiry tests if policy sectors (government core; infrastructure; productive development; security/citizenship, and social/environmental) present different state capacities and produce heterogeneous effects on outputs and outcomes.
Methodology: The research uses a survey applied to over three thousand civil servants of the Brazilian federal public administration to create composite variables of performance and state capacities dimensions, then descriptively compare these variables and run a multivariate regression to test the hypotheses.
Results: The paper confirms that the degree of state capacity development impacts the bureaucrats' perception of performance and, secondly, these effects are quite diverse on the organizational outputs and outcomes. However, their variation among policy areas is not as expressive as expected. The findings reinforce recent studies that claim that governmental investment in state capacity became broader and more inclusive as it incorporated several agencies that do not belong to the classical "pocket of efficiency."
Originality: Based on an original dataset, the research shows insights at advancing the study of state capacity, governance, and public sector performance. The comparative analyzes are unprecedented as it encompasses simultaneously crucial dimensions of the public service in Brazil, such as meritocracy, autonomy, relationship, skills, resources and, accountability.
Theoretical and Practical Contributions: In theoretical terms, the paper tests essential hypotheses concerning the federal government bureaucracy and performance, mostly restricted to the international literature. It also explores the policy sectors' heterogeneity and how it affects their performance, shedding light on the need for a more inclusive and comprehensive civil service and management policy.
ABSTRACT Objectives: this paper aims to analyze boundary-crossing strategies, henceforth BCS, a complex and relatively new coordination trend in public administration. To do so, we investigated how three prioritized coordination policies from different sectors were designed and implemented in Brazil. Methods: following a literature review on BCS, the paper employs content analysis of the programs' legislation and government white papers. To understand how the programs actually functioned, we interviewed key government stakeholders. Results: they suggest that two macro policies incorporated most of the boundary-crossing features in their formal design and, more importantly, implementation processes. However, the degree to which these characteristics are present varies according to the research focus or the interviewee's position. Conclusions: main findings of BCS strategy are that policy effectiveness and continuity depend on the consensus of different stakeholders about policy goals; the empowerment of leaders; adoption of new coordination instruments; and continuing policy prioritization. Finally, by exploring the adaptation of an international trend to the Brazilian public administration context, the paper shows crucial insights for innovation in terms of policy coordination and implementation.
Nas últimas décadas, América Latina vem atravessando profundas transformações políticas e econômicas. Apesar das análises restritas à influencia de períodos eleitorais, prevalece um vazio acerca do impacto da dinâmica política democrática sobre o desempenho das nações, fundamentalmente sobre os efeitos da ideologia partidária e da competição política. Com base em dados de 18 países latino-americanos entre 1990 e 2010, os modelos estatísticos reforçam a importância da política para a explicação dos resultados econômicos, caracterizados pelas taxas de crescimento do PIB, inflação e desemprego, ainda que em menor medida do que preconiza a teoria.
KEYWORDS: center of government; governance arrangement; policy coordination; democracy; Brazil.ABSTRACT Introduction: This paper aims to analyze how the Center of Government (CoG) operates as units responsible for conducting the presidential agenda in contemporary Brazil. Materials and Methods: The study applied the theoretical approach of CoG as a governance arrangement and used qualitative and quantitative data to reach its objective. Besides the bibliographic review on the literature and official documents, the study synthesizes and deepens empirical data and information from a joint research project covering the period of political stability in Brazil, from 1995 to 2014, when elected presidents ended their terms. Results: The empirical findings confirm that CoG is a flexible and dynamic phenomenon. It puts a critical perspective on the normative "good governance" approach that overvalues its technical dimension and neglects its political aspect. Discussion: The inquiry results shed light on the importance of the relation between politics and policy, by demonstrating that CoG's configuration and functions vary due to multiple causes, each president's priority policy agenda is implemented with different strategies and; the prioritized policies follow a unique coordination logic inside the Brazilian federal government.
PEER REVIEW REPORT FOR: Cavalcante, P., & Lotta, G. S. (2021). Boundary-crossing strategies: Managing macro policies in a federal government. Revista de Administração Contemporânea, 25(5), e200012. https://doi.org/10.1590/1982-7849rac2021200012.en HOW TO CITE THIS PEER REVIEW REPORT: Cavalcante, P., Lotta, G. S., & Vasconcellos, S. L. (2021). Peer review report for: Boundary-crossing strategies: Managing macro policies in a federal government. RAC. Revista de Administração Contemporânea. Zenodo. https://doi.org/10.5281/zenodo.4560406 REVIEWERS: Silvio Luís de Vasconcellos (Escola Superior de Propaganda e Marketing, PPGA, Brazil)
Presidents face a dilemma of whom to appoint for cabinet positions. They need to secure legislative support for their government and at the same time achieve their goals in terms of public policy. This work analyzes the portfolio allocation of Brazilian presidents in Brazil's multiparty system. This study tests some hypotheses using multinomial logistic regression to identify appointment strategies adopted by the presidents in four different governmental sectors from 1990 to 2016. To do so, first, we create an index of ministerial politicization (IMP) and aggregate the ministries in these four sections, employing cluster analysis. The results show that appointments to the core positions in government tend to be less politicized. Moreover, the president's personal nominations were greater in the presidential units that carry out the political coordination and typical functions of the State.
Presidents face a dilemma of whom to appoint for cabinet positions. They need to secure legislative support for their government and at the same time achieve their goals in terms of public policy. This work analyzes the portfolio allocation of Brazilian presidents in Brazil's multiparty system. This study tests some hypotheses using multinomial logistic regression to identify appointment strategies adopted by the presidents in four different governmental sectors from 1990 to 2016. To do so, first, we create an index of ministerial politicization (IMP) and aggregate the ministries in these four sections, employing cluster analysis. The results show that appointments to the core positions in government tend to be less politicized. Moreover, the president's personal nominations were greater in the presidential units that carry out the political coordination and typical functions of the State.
Abstract Although scholars have been investigating bureaucrats for a long time, mid-level bureaucrats (MLB) have been far less studied in the literature. To fill this gap, this article explores MLBs heterogeneity regarding their profile, professional background and, above all, performance. The main goal is to investigate the determinants of bureaucrats' performance, depicted by two crucial dimensions: the degree of MLBs relationship within public bureaucracy and complexity level of their activities. These skills are valued today with increasing importance in contexts of network governance and bureaucratic responsiveness. First, a descriptive analysis was undertaken of survey data collected in 2014 from federal mid-level bureaucrats in positions filled by appointment. This was followed by formulating synthetic indexes of two dimensions: bureaucrats' activities and their work relationships. Subsequently, multivariate models were employed to explain the determinants of these dimensions. Empirical results show that the mid-level bureaucrats' performance is both affected by the government's structure factors as well as by their own individual characteristics. However, the variables effects vary considerably. The empirical evidence suggests that MLBs tend to be more connected and perform more activities as they hold higher positions filled by appointment, have a higher level of education and capacity to influence decision processes and work directly with policymaking, especially in social policy.
Although scholars have been investigating bureaucrats for a long time, mid-level bureaucrats (MLB) have been far less studied in the literature. To fill this gap, this article explores MLBs heterogeneity regarding their profile, professional background and, above all, performance. The main goal is to investigate the determinants of bureaucrats' performance, depicted by two crucial dimensions: the degree of MLBs relationship within public bureaucracy and complexity level of their activities. These skills are valued today with increasing importance in contexts of network governance and bureaucratic responsiveness. First, a descriptive analysis was undertaken of survey data collected in 2014 from federal mid-level bureaucrats in positions filled by appointment. This was followed by formulating synthetic indexes of two dimensions: bureaucrats' activities and their work relationships. Subsequently, multivariate models were employed to explain the determinants of these dimensions. Empirical results show that the mid-level bureaucrats' performance is both affected by the government's structure factors as well as by their own individual characteristics. However, the variables effects vary considerably. The empirical evidence suggests that MLBs tend to be more connected and perform more activities as they hold higher positions filled by appointment, have a higher level of education and capacity to influence decision processes and work directly with policymaking, especially in social policy. ; A pesar de que los académicos han investigado la burocracia por mucho tiempo, los burócratas de nivel medio (BNM) son poco estudiados. Para llenar ese vacío, este artículo explora la cuestión de la heterogeneidad de los BNM en relación con su perfil, experiencia profesional y, principalmente, su performance. El principal objetivo es investigar los determinantes del desempeño de los BNM desde dos dimensiones fundamentales: el grado de relación de los BNM y el nivel de complejidad de sus actividades. Estas habilidades son actualmente más valoradas, teniendo en cuenta el crecimiento de su importancia en contextos de gobernanza y accountability burocrática. En primer lugar, se realizó un análisis descriptivo de los datos de una encuesta realizada en 2014 con funcionarios con cargos comisionados por el gobierno federal. Para ello, se elaboraron índices sintéticos de las dos dimensiones: relación y actividades de la burocracia. Posteriormente, se utilizaron modelos multivariados para explicar sus determinantes. Los resultados empíricos muestran que la performance de los burócratas de nivel medio es afectada tanto por factores estructurales del gobierno como por sus propias características individuales. Sin embargo, los efectos de las variables varían considerablemente. Las evidencias empíricas sugieren que los BNM más conectados y que realizan más actividades son los que ocupan los puestos comisionados más altos. Ellos tienen más estudio y capacidad de influir directamente en las decisiones de los procesos de trabajo, actúan en áreas de terminación de políticas públicas, especialmente en el área social. ; Embora os pesquisadores venham estudando a burocracia há bastante tempo, os burocratas de médio escalão (BME) recebem menos atenção da literatura. Para preencher essa lacuna, o artigo explora a questão da heterogeneidade dos BME em relação ao seu perfil, sua experiência profissional e, principalmente, seu desempenho. O principal objetivo é investigar os determinantes do desempenho dos BME a partir de duas dimensões: o nível de relacionamento dos BME e o nível de complexidade de suas atividades. Essas dimensões são muito valorizadas atualmente, considerando o crescimento da sua importância em contextos de governança em rede e accountability burocrática. Primeiro, realizamos uma análise descritiva dos dados coletados em 2014 junto a servidores federais que ocupavam cargos comissionados. Para tanto, elaboramos índices sintéticos das duas dimensões: relacionamento e atividades da burocracia. Posteriormente, empregamos modelos de análise multivariados para explicar seus determinantes. Os resultados empíricos mostram que o desempenho dos burocratas de médio escalão é afetado tanto por fatores estruturais do governo, como também por suas próprias características individuais. No entanto, os efeitos das variáveis mudam consideravelmente. As evidências empíricas sugerem que os BME mais conectados e que realizam mais atividades são aqueles que ocupam cargos comissionados mais elevados. Eles têm maior nível educacional e mais capacidade de influenciar diretamente as decisões dos processos de trabalho e atuam em áreas finalísticas de políticas públicas, especialmente na área social.
Abstract: The paper's main goal is to present an original typology of bureaucrats, situated in intermediate layer of the civil service structure. This specific set of players, the mid-level bureaucrat (MLB), is seen as a strategic group, primarily, because of its connection role and position between the top officials and the policy executors. Despite their relevance and well-known heterogeneity, few studies have explored this diversity and the effects in the policymaking. In order to fulfill this gap and deepen the understanding of the MLBs, this article proposes a typology that includes crucial dimensions, such as profile, background and performance, and, thus, empirically confirms the heterogeneity assumption in the Brazilian federal civil service.
O artigo analisa o funcionamento da rede de atores que desenvolvem ações no âmbito do II Plano Nacional para a Erradicação do Trabalho Escravo (II PNETE), mais especificamente aquelas direcionadas a fomentar a reforma agrária como forma de enfrentamento do problema. O objetivo foi explorar se a rede formalmente estabelecida pelo plano (de jure) atua efetivamente (de facto) na política de combate e prevenção ao trabalho escravo no país. Foi realizada pesquisa qualitativa, com utilização da técnica de grupo focal com atores relevantes para a execução da política. Os resultados indicam a carência de vínculos entre os atores indicados no Plano, revelando uma dissociação entre a formalização da política e sua dinâmica. Conclui-se que o foco das análises de redes deve atentar também para as práticas cotidianas das organizações, para assim avaliar os reais resultados e dificuldades do policymaking.
The article aims at understanding the determinants of ministerial turnover in presidential systems. There are essentially three key factors that govern the propensity for ministerial turnover in a presidential system: 01. political ambition - reflected in the individual or collective strategies and tactics employed by the party-affiliated actors represented in the cabinet; 02. the presence or absence of a governing coalition - which has bearing on the degree of ideological distance between the president and such political parties as form part of any governing coalition, with consequences for ministerial scrutiny; and 03. accountability - a determinant in responding to such external pressures as may be brought to bear by public opinion. In order to investigate the impacts of these factors, this inquiry seeks to analyze the new and dynamic democracy of Brazil. Brazil's presidential system presents interesting features that make it an excellent laboratory in which to test hypotheses concerning every aspect of ministerial turnover. To this end, this paper employs a multivariate methodology, as well as descriptive and survival analyses, based on a comprehensive and original database of cabinet ministers that draws on three presidencies over five democratically elected governments from 1995 to 2014. Among other results, our most original finding was that there is an inverse correlation between the degree of ministerial politicization (political ambition) and ideological distance from the president during political scandals (interaction between the governing coalition and accountability) on the one hand, and the length of ministerial tenure on the other.
