Hostname: page-component-7b9c58cd5d-dlb68 Total loading time: 0 Render date: 2025-03-15T13:21:14.614Z Has data issue: false hasContentIssue false
  • English
  • Français

Grassroots Bureaucracy: Intergovernmental Relations and Popular Mobilization in Brazil's AIDS Policy Sector

Published online by Cambridge University Press:  02 January 2018

Jessica A. J. Rich
Jessica A. J. Rich*
Affiliation:
Center for Inter-American Policy and Research, Tulane University. jajrich@tulane.edu
Get access Rights & Permissions [Opens in a new window]

Abstract

How does the state ensure the implementation of national policies in a context of decentralized political authority? This article identifies a new strategy utilized by national bureaucrats to regulate the behavior of subnational politicians: mobilizing civil society as government watchdog and political advocate. In the context of decentralized governance, in which local politicians administer most social sector programs, reform-minded bureaucrats often find that they have little control over the implementation of their progressive policies. In Brazil’s AIDS policy sector, however, bureaucrats have ensured the successful implementation of their policies by developing allies outside government. These state actors—here called activist bureaucrats—have been largely overlooked in the English-language literature, yet they form a new layer of politics in Latin America.

Type
Research Article
Information
Latin American Politics and Society , Volume 55 , Issue 2 , Summer 2013 , pp. 1 - 25
Copyright
Copyright © University of Miami 2013

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

Abers, Rebecca, and Margaret, Keck. 2009. Mobilizing the State: the Erratic Partner in Brazil's Participatory Water Policy. Politics and Society 39, 2: 289–314.Google Scholar
Abers, Rebecca, and von Bülow, Marisa. 2011. Movimientos sociais na teoria e na prática: como estudar o ativismo através da fronteira entre estado e sociedade? Sociologias 13, 28: 52–84.Google Scholar
Abrucio, Fernando. 1998. Os barões da federação: os governadores e a redemocrati-zação brasileira. São Paulo : Hucitec.Google Scholar
Arretche, Marta. 2002. Federalismo e relações intergovernamentais no Brasil: a reforma de programas sociais. Dados 45, 3: 431–58.CrossRefGoogle Scholar
Arretche, Marta. 2004. Toward a Unified and More Equitable System: Health Reform in Brazil. In Crucial Needs, Weak Incentives, ed. Kaufman, Robert and Nelson, Joan. Baltimore/Washington, DC : John Hopkins University Press/Woodrow Wilson Center.Google Scholar
Avritzer, Leonardo. 2009. Participatory Institutions in Democratic Brazil. Baltimore : Johns Hopkins University Press.CrossRefGoogle Scholar
Barbosa, Barbara. 2010. Bureaucrat [Técnica], Department of Civil Society and Human Rights, Department of STD/AIDS, Ministry of Health. Author interview. Brasília, March 17.Google Scholar
Barbosa, Eduardo. 2008. Adjunct Director, Brazil's National Aids Program; former director, Civil Society Unit. Author interview. São Paulo, November 18.Google Scholar
Câmara, Cristina, and Ronaldo, Lima. 2000. Histórica das Ongs/Aids e sua contribuição no campo das lutas sociais. Cadernos Abong 28: 29–74.Google Scholar
Carpenter, Daniel. 2001. The Forging of Bureaucratic Autonomy: Reputations, Networks, and Policy Innovation in Executive Agencies, 1862–1928. Princeton : Princeton University Press.Google Scholar
Casimiro, Gilvane. 2010. Bureaucrat, Department of Civil Society and Human Rights, Department of STD/AIDS, Ministry of Health. Author interview. Brasília, March 16.Google Scholar
Cattoni, Bruno. 2008. Founder of Grupo Pela Vidda, Rio de Janeiro. Author interview. Rio de Janeiro, September 5.Google Scholar
Chequer, Pedro. 2007. Quoted from a public address at the seminar Social Control and Aids in the State of São Paulo. São Paulo, March.Google Scholar
Chequer, Pedro. 2008. Director of Brazil's National Aids Program 1996–2000, 2004–8. Author interview. Via Skype, December 16.Google Scholar
Conselho Nacional de Articulação com Movimentos Sociais. 2004. Regimento interno. http://www.aids.gov.br/pagina/atas-reunioes-cams.Google Scholar
Daniel, Herbert, and Richard, Parker. 1993. Sexuality, Politics, and AIDS in Brazil: In Another World. New York : Routledge.Google Scholar
Duda, Rubens. 2010. Bureaucrat, Department of Civil Society and Human Rights, Department of Std/Aids, Ministry of Health. Author interview. Brasília, March 18.Google Scholar
Eaton, Kent. 2006. Decentralization's Nondemocratic Roots: Authoritarianism and Subnational Reform in Latin America. Latin American Politics and Society 48, 1 (Spring): 1–26.CrossRefGoogle Scholar
Eaton, Kent, and Tyler, Dickovick. 2004. The Politics of Re-Centralization in Argentina and Brazil. Latin American Research Review 39, 1: 90–122.Google Scholar
Estado de São Paulo. 2010. Falta de remédios contra Aids causa protestos. April 28.Google Scholar
Evans, Peter. 1996. Government Action, Social Capital and Development: Creating Synergy across the Public-Private Divide. World Development 24, 6: 1119–32.Google Scholar
Falleti, Tulia. 2010. Decentralization and Subnational Politics in Latin America. Cambridge : Cambridge University Press.Google Scholar
Fenwick, Tracy Beck. 2009. Avoiding Governors: the Success of Bolsa Família. Latin American Research Review 44, 1: 102–31.Google Scholar
Fox, Jonathan. 1994. The Difficult Transition from Clientelism to Citizenship: Lessons from Mexico. World Politics 46, 2: 151–84.Google Scholar
Galvão, Jane. 2000. AIDS no Brasil: a agenda de construção de uma epidemia. Rio de Janeiro : Associação Brasileira Interdisciplinar de AIDS.Google Scholar
Gauri, Varun, and Lieberman, Evan S. 2006. Boundary Institutions and Hiv/Aids Policy in Brazil and South Africa. Studies in Comparative International Development 41, 3: 47–73.CrossRefGoogle Scholar
Geddes, Barbara. 1990. Building “State” Autonomy in Brazil, 1930–1964. Comparative Politics 22, 2: 217–35.Google Scholar
O Globo (Rio de Janeiro). 2008. Ex-secretário de saúde e mais nove são presos em operação. July 15.Google Scholar
Grangeiro, Alexandre. 2008. Coordinator, Brazil's National Aids Program, 2003–4; Adjunct Coordinator, 2000–2003. Author interview. São Paulo, December 12.Google Scholar
Green, James. 1994. The Emergence of the Brazilian Gay Liberation Movement, 1977–1981. Latin American Perspectives 21, 80: 38–55.Google Scholar
Greenstone, J. David, and Peterson, Paul E. 1976 [1973]. Race and Authority in Urban Politics: Community Participation and the War on Poverty. Chicago : University of Chicago Press.Google Scholar
Grindle, Merilee S. 2007. Going Local: Decentralization, Democratization, and the Promise of Good Governance. Princeton : Princeton University Press.Google Scholar
Hochstetler, Kathryn, and Keck, Margaret E. 2007. Greening Brazil: Environmental Activism in State and Society. Durham : Duke University Press.Google Scholar
Hooghe, Liesbet. 1999. Supranational Activists or Intergovernmental Agents? Explaining the Orientations of Senior Commission Officials toward European Integration. Comparative Political Studies 32, 4: 435–63.Google Scholar
Kalichman, Artur. 2007. Adjunct Director, State Std/Aids Program, São Paulo. Quoted from a public address at the seminar Social Control and AIDS in the State of São Paulo. São Paulo, March.Google Scholar
Keck, Margaret E. and Kathryn, Sikkink. 1998. Activists Beyond Borders: Advocacy Networks in International Politics. Ithaca : Cornell University Press.Google Scholar
Lima, Noemia. 2010. Bureaucrat, Department of Civil Society and Human Rights, Department of Std/Aids, Ministry of Health. Author interview. Brasília, March 19.Google Scholar
Macrae, Edward. 1990. A construção da igualdade. Campinas : Unicamp.Google Scholar
Ministério da Saúde. 2003. Catálogo de organizações da sociedade civil HIV/AIDS 2001/2002. Ministério da Saúde.Google Scholar
Ministério da Saúde. 2009. Chamada para seleção de propostas 2009. Trabalho em rede de organizações não governamentais para populações vulneráveis às DST/HIV/Aids. http://www.aids.gov.br.Google Scholar
Ministério da Saúde. Department of STD, AIDS, and Viral Hepatitis. Portal about AIDS, sexually transmitted diseases, and viral hepatitis. Brazilian government information website. http://www.aids.gov.br.Google Scholar
Ministério da Saúde. National AIDS Program. n.d. List of states’ Aids activism. Unpublished internal document.Google Scholar
Ministério da Saúde. n.d. Série histórica dos projectos financiados para Osc 19992008. Unpublished government document.Google Scholar
Ministério da Saúde. National Aids Program. Civil Society and Human Rights sector (Cshr). 2006. Exercício 2006. Unpublished government document. Accessed August 28, 1996.Google Scholar
Ministério da Saúde. n.d. Situação de implementação do Pam—Região Centro-Oeste. Internal document.Google Scholar
Montero, Alfred P. 2001a. After Decentralization: Patterns of Intergovernmental Conflict in Argentina, Brazil, Spain, and Mexico. Publius 31, 4: 43–64.Google Scholar
Montero, Alfred P. 2001b. Decentralizing Democracy: Spain and Brazil in Comparative Perspective. Comparative Politics 33, 2: 149–69.Google Scholar
National Council of Articulation with Social Movements (CASM). 20049. Minutes of meetings.Google Scholar
National Council of Articulation with Social Movements (CASM). 2004. Minutes of meeting. March 25.Google Scholar
Needleman, Martin L. and Needleman, Carolyn Emerson. 1974. Guerrillas in the Bureaucracy: The Community Planning Experiment in the United States. New York : Wiley.Google Scholar
Nunn, Amy. 2009. The Politics and History of AIDS Treatment in Brazil. Providence : Springer.Google Scholar
Parker, Richard. 2003. Building the Foundations for the Response to Hiv/Aids in Brazil: the Development of Hiv/Aids Policy, 1982–1996. Divulgação em Saúde para Debate 27: 143–83.Google Scholar
Parker, Richard. 2009. Civil Society, Political Mobilization, and the Impact of Hiv Scale-up on Health Systems in Brazil. JAIDS: Journal of Acquired Immune Deficiency Syndrome 52, 1: 49–51.Google Scholar
Parker, Richard, and Terto, Veriano Jr., 2001. Solidariedade: ABIA na virado do milenio. Rio de Janiero : Associação Brasileira Interdisciplinar de AIDS.Google Scholar
Ramos, Silvia. 2008. Founding Member and Former President, Associação Brasileira Interdisciplinar de Aids. Author interview. Rio de Janeiro, September 1.Google Scholar
Rich, Jessica A. J. and Gómez, Eduardo J. 2012. Centralizing Decentralized Governance in Brazil. Publius: The Journal of Federalism 42, 4 (Fall): 636–61. doi:10.1093publiuspjs002.Google Scholar
Samuels, David. 2003. Ambition, Federalism, and Legislative Politics in Brazil. Cambridge : Cambridge University Press.Google Scholar
Saúde Business Web (Rio de Janeiro). 2008. Ex-autoridades da saúde são presas por desvio de verba: dez pessoas estão presas na operação Pecado Capital, do Ministério Público estadual com o apoio da Delegacia Fazendária da Polícia Civil. July 21. http://saudeweb.com.br/index.asp. Accessed March 9, 2013.Google Scholar
Schipani, Andrés. 2008. Organizando el descontento: movilizaciones de desocupados en la Argentina y Chile durante las reformas de mercado. Desarrollo Económico 48, 189: 85–118.Google Scholar
Schmidt, Susanne K. 1998. Commission Activism: Subsuming Telecommunications and Electricity under European Competition Law. Journal of European Public Policy 5, 1: 169–84.Google Scholar
Schmitter, Philippe C. 1971. Interest Conflict and Political Change in Brazil. Stanford : Stanford University Press.Google Scholar
Solano, Nelson. 2000. As organizações não-governamentais e a coordenação nacional de Dst/Aids. Cadernos Abong 28: 75–130.Google Scholar
Souza, Celina. 1997. Constitutional Engineering in Brazil: The Politics of Federalism and Decentralization. London : Palgrave Macmillan.Google Scholar
Souza, Celina. 1998. Intermediação de interesses regionais no Brasil: o impacto do federalismo e da descentralização. Dados 41, 3: 23–48.Google Scholar
Stern, Elliot. 2003. Evaluation of Unesco Brazil's Contribution to Aids Ii. UNESCO BR/2005/PI/H/19, 2003. http://unesdoc.unesco.org/images/00l4/00l408/l40845e.pdf.Google Scholar
Teixeira, Paulo. 2008. Coordinator, Brazil's National Aids Program, 1992–93, 2000–2003. Author interview. São Paulo, November 26.Google Scholar
Tendler, Judith. 1998. Good Government in the Tropics. Baltimore : Johns Hopkins University Press.Google Scholar
Trevisan, João Silverio. 2000. Devassos no paraíso. Rio de Janeiro : Editora Record.Google Scholar
Tulchin, Joseph S. and Selee, Andrew, eds. 2004. Decentralization and Democratic Governance in Latin America. Washington, DC : Woodrow Wilson Center.Google Scholar
U.S. Agency for International Development (USAID). 2007. Audit Report No. 1–512-07-007-P. http://oig.usaid.gov/sites/default/files/audit-reports/1-512-07-007-p.pdf.Google Scholar
Valor Econômico (São Paulo). 2006. Descentralização dá mais eficiência ao sistema, mas ainda causa problemas. April 12.Google Scholar
Wampler, Brian. 2007. Participatory Budgeting in Brazil: Contestation, Cooperation, and Accountability. University Park : Pennsylvania State University Press.Google Scholar
World, Bank. 1998. World Bank Implementation Completion Report, Brazil: AIDS and STD Control Project (Loan 3659-BR), Report no. 18730. Washington, DC : World Bank.Google Scholar
World, Bank. 2004. Project Performance Assessment Report, Brazil—First and Second Aids and Std Control Projects. Report no. 28819.Google Scholar
World, Bank. 2007. Governance in Brazil's Unified Health System (Sus): Raising the Quality of Public Spending and Resource Management. Report no. 36601-BR.Google Scholar
World, Bank. 2010. Project Appraisal Document on a Proposed Loan in the Amount of Us$67 Million to the Federative Republic of Brazil for the Aids-Sus Project (National Aids Program—National Health Service). Report no. 54060-BR.Google Scholar