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The article analyzes the capacity production of a Brazilian urban policy (Program of Acceleration of Growth - Slum Upgrading, PAC-UAP), whose implementation flaws are commonly associated with municipal governments shortcomings, even though its interventions involve a multiplicity of actors. Three analytical and empirical aspects are considered: (i) the need to expand knowledge on state capacity in policies implemented by a network of actors; (ii) the relevance of the debate of policy capacity, which refers to the ability of reaching the expected results in a specific public policy; (iii) and the demand to explore federally induced public policies in federations marked by heterogeneous subnational entities. Methodologically, the work develops a case study, complemented by documental analysis and interviews with key stakeholders. The research corroborates studies that emphasize that municipal problems affected the production capacity of PAC-UAP, particularly the lack of adequate human and financial resources. On the other hand, this study innovates when considering that the municipality is, in fact, the node of a network of actors, whose (in)capacity also affects the implementation. Therefore, it might not be possible to attribute only to the municipality the (in)success of this program. The article also reinforces the importance of incorporating organizational and systemic dimensions as explanatory elements, whose challenges can be potentiated when a program design is not adequate to the intrinsic characteristics of a certain public policy.

The article analyzes the capacity production of a Brazilian urban policy (Program of Acceleration of Growth - Slum Upgrading, PAC-UAP), whose implementation flaws are commonly associated with municipal governments shortcomings, even though its interventions involve a multiplicity of actors. Three analytical and empirical aspects are considered: (i) the need to expand knowledge on state capacity in policies implemented by a network of actors; (ii) the relevance of the debate of policy capacity, which refers to the ability of reaching the expected results in a specific public policy; (iii) and the demand to explore federally induced public policies in federations marked by heterogeneous subnational entities. Methodologically, the work develops a case study, complemented by documental analysis and interviews with key stakeholders. The research corroborates studies that emphasize that municipal problems affected the production capacity of PAC-UAP, particularly the lack of adequate human and financial resources. On the other hand, this study innovates when considering that the municipality is, in fact, the node of a network of actors, whose (in)capacity also affects the implementation. Therefore, it might not be possible to attribute only to the municipality the (in)success of this program. The article also reinforces the importance of incorporating organizational and systemic dimensions as explanatory elements, whose challenges can be potentiated when a program design is not adequate to the intrinsic characteristics of a certain public policy.

Este texto examina as estratégias disponíveis ao Presidente da República para realizar o controle da delegação e a coordenação da ação de ministros e burocracia na implementação de políticas em áreas do Executivo cedidas à base aliada. O trabalho empírico - constituído por um estudo de caso do Ministério das Cidades nos dois governos Lula – mostrou que as demandas por controle e coordenação em governos de coalizão se tornam mais cruciais em áreas prioritárias. Sem pretender generalizações, a análise desse caso pode contribuir para o aprofundamento da temática mais geral relativa à dinâmica de funcionamento do Poder Executivo no Brasil, ainda relativamente pouco estudada.

Research on street-level bureaucrats has examined the various ways in which these professionals have implemented public policies in areas such as healthcare, education, and security, often emphasizing the role played by discretion in the implementation process. Despite its importance, the concept of street-level bureaucracy has scarcely been approached by housing studies. This study focuses on the role of street-level workers in the delivery of public housing to the lower-income population. We affirm the value of complementing street-level discretion with the concept of proximity, a premise borrowed from the microfinance literature, to increase the understanding of the interactions and relationships established between street-level workers and policy recipients during the implementation process. Such complementarity may contribute to a more accurate understanding of the housing policy implementation dynamics on the street-level and the possible adjustments to meet local needs. To explore this issue, we used a theoretical lens inspired by Goffman's frame analysis that points to the importance of relational mechanisms that characterize the interactions between street-level workers and beneficiaries. These lenses were applied to a collective case study of Minha Casa Minha Vida-Entidades, a Brazilian subprogram in which street-level workers linked to social housing movements assume a leading role in the planning and execution of interventions. The results indicate that the combination of proximity and discretion has a positive influence on the implementation of housing policies. Our analysis shows the existence of nonprofit-oriented arrangements that may present different features and nuances at the implementation (micro) level and contribute to the (macro) debate on housing policies.

This paper aims to understand the multiple strategies developed by frontline workers to deal with situations of violence in vulnerable territories. We analyze the micro-dynamics within which workers operate to understand how the State deals with violence. Empirically, we analyzed data from interviews with 140 frontline workers implementing different policies not directly related to violence in neighborhoods located in the city of Sao Paulo, Brazil, known for their populations' precariousness and vulnerability. The results expand the understanding of the different ways in which violence expresses itself in these places and show that the reactions developed by frontline workers are more complex than those suggested by the existing literature. The multiple violence to which these workers are exposed is used and manipulated by them in various ways during policy implementation. Frontline workers can ignore, negotiate with, or combat violence. They use their agency to develop different reactions based on how they and the policies are embedded or disconnected to the territories.

This article analyzed the São Paulo Municipal Advisory Board, an innovative channel of communication between civil society and the local government's executive branch. This exploratory research is based on an intrinsic case study, aiming to understand the operation of this advisory board and how it relates to other participatory instances in Brazil. Th e study adopted semi-structured interviews with members of the advisory board and representatives of the local government, participant observation of meetings of the management's board, and analysis of official documents. Data were analyzed based on the theory of deliberative democracy and studies on participatory bodies. Th e results indicate that the São Paulo Municipal Advisory Board is partially aligned with the deliberative democracy, and strongly connected to the federal and state-level Councils of Social and Economic Development. Due to the specificities of these instances, we suggest the creation of a new category in the literature on institutional participation - "Governmental Advisory Board. ; Este artículo tiene como objeto analítico el Consejo de la Ciudad de São Paulo, un innovador canal de comunicación entre la sociedad civil y el Ejecutivo municipal. Esta investigación exploratoria se basa en un estudio de caso intrínseco cuyos objetivos son comprender el funcionamiento de ese consejo y relacionarlo a otras instituciones participativas en Brasil. Para ello, se realizaron entrevistas semiestructuradas con consejeros y representantes de la gestión municipal, observación participante y análisis de documentos oficiales. Los datos se analizaron a partir de la teoría sobre democracia deliberativa y de estudios sobre consejos participativos. Los resultados apuntan que el Consejo de la Ciudad de São Paulo está parcialmente alineado con el modelo deliberativo de democracia, y fuertemente con los ejemplos federal y de los estados de consejos de desarrollo social y económico. Por las especificidades de estas instancias, sugerimos la creación de una nueva categoría en la literatura sobre participación institucional: "Consejo Asesor". ; Este artigo tem como objeto analítico o Conselho da Cidade de São Paulo, um canal inovador de comunicação entre a sociedade civil e o executivo municipal. Esta pesquisa exploratória é baseada em um estudo de caso intrínseco, tendo como objetivos compreender o funcionamento desse conselho e relacioná-lo a outras instituições participativas no Brasil. Para isso, foram realizadas entrevistas semiestruturadas com conselheiros(as) e representantes da gestão municipal, observação participante em reuniões do comitê gestor e análise de documentos ofi ciais. Os dados foram analisados a partir da teoria sobre democracia deliberativa e de estudos sobre conselhos participativos. Os resultados apontam que o Conselho da Cidade de São Paulo está parcialmente alinhado ao modelo deliberativo de democracia, e fortemente aos exemplos federal e estadual de Conselhos de Desenvolvimento Social e Econômico. Pelas especificidades dessas instâncias, sugerimos a criação de uma nova categoria na literatura sobre participação institucional - "Conselho Consultivo".

Abstract This article analyzed the São Paulo Municipal Advisory Board, an innovative channel of communication between civil society and the local government's executive branch. This exploratory research is based on an intrinsic case study, aiming to understand the operation of this advisory board and how it relates to other participatory instances in Brazil. The study adopted semi-structured interviews with members of the advisory board and representatives of the local government, participant observation of meetings of the management's board, and analysis of official documents. Data were analyzed based on the theory of deliberative democracy and studies on participatory bodies. The results indicate that the São Paulo Municipal Advisory Board is partially aligned with the deliberative democracy, and strongly connected to the federal and state-level Economic and Social Development Advisory Boards. Due to the specificities of these instances, we suggest the creation of a new category in the literature on institutional participation - "Governmental Advisory Board."

This article is a contribution to the study of the decision-making behind social policies. The literature usually stresses the role of elected politicians and the parliament in framing policies and underestimates governmental stakeholders, who do not hold elected offices, and bureaucrats. This article aims to highlight the active role of high-level federal bureaucrats in the design of policies. The analysis reclaims the classical categories and concepts developed by Lindblom (1980) and Crozier (1964), which points to the hybrid behaviour of bureaucrats and politically-appointed actors. Our aim is to show that decision-making is the result of the interactions between elected politicians and hybrid high-level federal bureaucracy, who organize themselves in groups around different technical-political projects. The analysis is developed through a case study of a policy that resulted in the merger of the existing federal conditional cash transfer programs, and generated one of the most globally-recognized social policies of Brazil, the Bolsa Família Program, in 2003.

O fortalecimento da coordenação nacional, que ocorreu nas últimas décadas no Brasil, resultou na indução à implementação de diversas políticas públicas por governos subnacionais, incluindo aquelas cuja execução envolvia a coordenação entre estados e municípios. No entanto, isso variou entre as políticas. Naquelas com maior coordenação nacional, os governos estaduais assumiram um papel de coordenação regional junto a seus municípios, mas, naquelas com menor indução nacional, prevaleceu uma maior heterogeneidade. Este estudo aprofundará a compreensão sobre a coordenação dos governos estaduais em três políticas - Educação, Saúde e Proteção e Defesa Civil - a partir da análise da influência da coordenação nacional e de fatores dos contextos e dinâmicas subnacionais no desenvolvimento de padrões distintos de coordenação estadual. Os casos escolhidos - Educação (alfabetização) no Ceará, Saúde (AIDS) em São Paulo e Proteção e Defesa Civil (gestão de risco de desastres) no Acre - representam políticas com diferentes graus de coordenação federativa e padrões de coordenação estadual. A análise exploratória e qualitativa de estudos já realizados, de documentos e de entrevistas semi-estruturadas mostra que os padrões de coordenação estadual resultaram das capacidades e legados prévios e da atuação de determinados atores. No entanto, a coordenação nacional foi relevante no caso de São Paulo para a continuidade dessa política ao longo do tempo.

The current debate on state capacity, despite practical relevance for policy-making and analytical advances in the last decades, is still permeated by several theoretical and methodological problems. Considering that a revised concept of policy capacity has analytical utility, this work has contributed to the literature in three interrelated ways. First of all, we work on the concept of state capacity, highlighting its specificities in regard to the generic notion of power. Secondly, this article shows the relevance of bringing contextual and political elements into the debate of capacity. Thirdly, it helps to establish clearer boundaries on this notion, marking its differences to concepts such as resources and results. Empirically, it analyzes policy capacity developments in areas that have expressed priorities in the governmental agenda in former Brazilian presidencies. In the government of Fernando Henrique Cardoso, the focus is on the fiscal function of the state as a guarantor of credibility for investors, having as a case study the National Treasury Secretariat (STN), within the Ministry of Finance. In Lula's and Dilma's terms, the attention is the social area: the National Secretariat of Citizenship Income, within the Ministry of Social Development, and the National Secretariat of Housing, within the Ministry of Cities, both created at the beginning of the government Lula.

The current debate on state capacity, despite practical relevance for policy-making and analytical advances in the last decades, is still permeated by several theoretical and methodological problems. Considering that a revised concept of policy capacity has analytical utility, this work has contributed to the literature in three interrelated ways. First of all, we work on the concept of state capacity, highlighting its specificities in regard to the generic notion of power. Secondly, this article shows the relevance of bringing contextual and political elements into the debate of capacity. Thirdly, it helps to establish clearer boundaries on this notion, marking its differences to concepts such as resources and results. Empirically, it analyzes policy capacity developments in areas that have expressed priorities in the governmental agenda in former Brazilian presidencies. In the government of Fernando Henrique Cardoso, the focus is on the fiscal function of the state as a guarantor of credibility for investors, having as a case study the National Treasury Secretariat (STN), within the Ministry of Finance. In Lula's and Dilma's terms, the attention is the social area: the National Secretariat of Citizenship Income, within the Ministry of Social Development, and the National Secretariat of Housing, within the Ministry of Cities, both created at the beginning of the government Lula.

The COVID-19 pandemic highlighted the strategic role of social care policy to minimize the effects of this health crisis and its consequences on the poorest and most vulnerable population. This article analyzes the perception of street-level bureaucrats in the Brazilian social care network on how the pandemic has affected their performance and professional routine. The research was based on a survey, consultations with representatives of municipal social care services, and analysis of government regulations. The results show that social workers feel unprotected and unable to provide adequate responses to the pandemic's increasing and urgent demands, revealing a lack of institutional support to act appropriately. The professionals also reported substantial changes in their working dynamics, particularly in their relationship with the attended population, one of the main pillars of the Brazilian social care network. These elements directly affect the provision of social care services and their potential to combat the adverse effects of the crisis. ; La pandemia de COVID-19 destacó el papel estratégico de la política de atención social para minimizar los efectos de esta crisis de salud y de sus consecuencias en la población más pobre y vulnerable. A partir de este entendimiento, este artículo analiza la percepción de los burócratas a nivel de calle en la red de atención social brasileña en relación a cómo la pandemia ha afectado su desempeño y su rutina profesional. Con base en una encuesta, en consultas con representantes de los servicios municipales de atención social y regulaciones gubernamentales, la investigación ha identificado que, en la pandemia, estos trabajadores se sienten desprotegidos e incapaces de dar respuestas adecuadas a las crecientes y urgentes demandas, además de reportar cambios sustanciales en su dinámica de trabajo, incluyendo uno de sus principales pilares de actuación, el vínculo establecido con los usuarios del servicio. Al mismo tiempo, carecen de apoyo institucional para actuar con seguridad. Estos elementos afectan directamente la prestación de servicios de atención social y su potencial para combatir los efectos adversos de la crisis. ; A pandemia da COVID-19 ressaltou o papel estratégico da política de assistência social para minimizar os efeitos desta crise de saúde e de suas consequências sobre a população mais pobre e vulnerável. A partir desse entendimento, este artigo analisa a percepção de burocratas de nível de rua da rede socioassistencial brasileira sobre como a pandemia tem afetado sua atuação e seu cotidiano profissional. Com base em um survey, em consultas com representantes de serviços socioassistenciais municipais e em regulações governamentais, a pesquisa identificou que, na pandemia, esses trabalhadores se sentem desprotegidos e pouco capazes de dar respostas adequadas às demandas cada vez maiores e urgentes, além de relatarem mudanças substanciais nas suas dinâmicas de trabalho, incluindo um dos seus principais pilares de atuação, o vínculo estabelecido com os usuários dos serviços. Simultaneamente, sentem falta de apoio institucional para atuar com segurança. Esses elementos afetam diretamente a prestação dos serviços socioassistenciais e seu potencial de combater os efeitos adversos da crise.

PurposeThe study aims to identify the gaps and the potentialities of citizen-generated data in four axes of warning system: (1) risk knowledge, (2) flood forecasting and monitoring, (3) risk communication and (4) flood risk governance.Design/methodology/approachResearch inputs for this work were gathered during an international virtual dialogue that engaged 40 public servants, practitioners, academics and policymakers from Brazilian and British hazard and risk monitoring agencies during the Covid-19 pandemic.FindingsThe common challenges identified were lack of local data, data integration systems, data visualisation tools and lack of communication between flood agencies.Originality/valueThis work instigates an interdisciplinary cross-country collaboration and knowledge exchange, focused on tools, methods and policies used in the Brazil and the UK in an attempt to develop trans-disciplinary innovative ideas and initiatives for informing and enhancing flood risk governance.

A worldwide increase in the number of people and areas affected by disasters has led to more and more approaches that focus on the integration of local knowledge into disaster risk reduction processes. The research at hand shows a method for formalizing this local knowledge via sketch maps in the context of flooding. The Sketch Map Tool enables not only the visualization of this local knowledge and analyses of OpenStreetMap data quality but also the communication of the results of these analyses in an understandable way. Since the tool will be open-source and several analyses are made automatically, the tool also offers a method for local governments in areas where historic data or financial means for flood mitigation are limited. Example analyses for two cities in Brazil show the functionalities of the tool and allow the evaluation of its applicability. Results depict that the fitness-for-purpose analysis of the OpenStreetMap data reveals promising results to identify whether the sketch map approach can be used in a certain area or if citizens might have problems with marking their flood experiences. In this way, an intrinsic quality analysis is incorporated into a participatory mapping approach. Additionally, different paper formats offered for printing enable not only individual mapping but also group mapping. Future work will focus on advancing the automation of all steps of the tool to allow members of local governments without specific technical knowledge to apply the Sketch Map Tool for their own study areas.