How Incrementalism Theory Explains the Successful Policy Making Process of the Bolsa Família
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Key words: incrementalism theory; bolsa família; policy making processResumo
O objetivo deste artigo é mostrar como a teoria do incrementalismo de Linblom explica o processo de formulação de políticas do Bolsa Família, a Transferência Condicional de Renda (CCT) brasileira que foi criada em 2003. O argumento é apresentado através de uma análise da literatura existente sobre a teoria do incrementalismo e em seguida, aplicando a teoria ao processo de formulação de políticas do Bolsa Família, desde sua origem até hoje. As variações entre as políticas existentes do governo Cardoso e do CCT do presidente Lula foram baseadas no conhecimento adquirido com as políticas em andamento e permitiram mudanças incrementais relevantes, levando à longa história de sucesso do Bolsa Família no combate à pobreza extrema. O processo de política do Bolsa Família empoderou os beneficiários e a transferência de políticas permitiu que outros países replicassem a experiência brasileira. A teoria do incrementalismo também explica por que o atual presidente Jair Bolsonaro, inicialmente um crítico feroz do programa, agora o abraçou. Quaisquer mudanças que ele sofrerá serão incrementais. Usando o Bolsa Família como estudo de caso, a conclusão é que a teoria do incrementalismo explica como a política evolui em sociedades polarizadas eliminando a possibilidade de mudanças abruptas. O artigo contribui para o corpo de trabalho que argumenta que a teoria do incrementalismo não está desatualizada e pode explicar com sucesso a formulação de políticas contemporâneas.
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References
Baruah, B., 2010. NGOs in Microfinance: Learning from the Past, Accepting Limitations, and Moving Forward: NGOs in microfinance. Geogr. Compass 4, 979”“992. https://doi.org/10.1111/j.1749-8198.2010.00362.x
Bither-Terry, R., 2014. Reducing Poverty Intensity: What Alternative Poverty Measures Reveal About the Impact of Brazil’s Bolsa Família. Lat. Am. Polit. Soc. 56, 143”“158.
Braybrooke, D., 1998. Scale, Combination, Opposition: A Rethinking of Incrementalism, in: Moral Objectives, Rules, and the Forms of Social Change. University of Toronto Press, pp. 311”“330.
Caixa, 2019. Caixa Econômica Federal. Last viewed 17 October 2019. Available at http://www.caixa.gov.br/programas-sociais/bolsa-familia/Paginas/default.aspx
Campbell, J.L., 2002. Ideas, Politics, and Public Policy. Annu. Rev. Sociol. 21.
Coutinho, D.R., 2014. Targeting Within Universalism? The “Bolsa Família” Program and the Social Assistance Field in Brazil. Verfass. Recht Übersee Law Polit. Afr. Asia Lat. Am. 47, 43”“61.
de Brauw, A., Gilligan, D.O., Hoddinott, J., Roy, S., 2015. Bolsa Família and Household Labor Supply. Econ. Dev. Cult. Change 63, 423”“457. https://doi.org/10.1086/680092
Diário da Câmara dos Deputados, 2003. 18 December 2003, Year LVIII, No. 217, Brasília ”“ DF.
Dodds, A., 2013, ‘Chapter 1’, in Comparative public policy, Palgrave Macmillan, pp. 1”“14.ISBN: 9780230319424
Exame, 2016. Os 15 bancos que têm mais agências no Brasil, last viewed 17 October 2019, available at https://exame.abril.com.br/revista-exame/os-15-bancos-que-tem-mais-agencias-no-brasil/
Farmer, P., 2008. Challenging Orthodoxies: The Road Ahead for Health and Human Rights. Health Hum. Rights 10, 5. https://doi.org/10.2307/20460084
Fawcett Paul, Marsh David, 2012. Policy Transfer and Policy Success: The Case of the Gateway Review Process (2001”“10). Gov. Oppos. 47, 162.
Ferguson, J., 2010. The Uses of Neoliberalism. Antipode 41, 166”“184. https://doi.org/10.1111/j.1467-8330.2009.00721.x
Fenwick, T.B, 2016. Avoiding Governors and the Success of CCTs in Brazil, in: Avoiding Governors, Federalism, Democracy, and Poverty Alleviation in Brazil and Argentina. University of Notre Dame Press, pp. 55”“84.
Goss, K.A., 2006. Changing the Calculation: Policy Incrementalism and Political Participation, in: Disarmed, The Missing Movement for Gun Control in America. Princeton University Press, pp. 145”“175.
Hall, A., 2006. From Fome Zero to Bolsa Família: Social Policies and Poverty Alleviation under Lula. J. Lat. Am. Stud. 38, 689”“709.
Hashemi, S.M., Schuler, S.R., Riley, A.P., 1996. Rural credit programs and women’s empowerment in Bangladesh. World Dev. 24, 635”“653. https://doi.org/10.1016/0305-750X(95)00159-A
Hayes, M.T., 2001. Needed: A Realistic Theory of Policy Change, in: The Limits of Policy Change, Incrementalism, Worldview, and the Rule of Law. Georgetown University Press, pp. 1”“6.
Head, B., 2008. Wicked Problems in Public Policy [online]. Public Policy, Vol. 3, No. 2, 2008: 101-118. Availability: <https://search-informit-com-au.ezp.lib.unimelb.edu.au/documentSummary;dn=662880306504754;res=IELFSC> ISSN: 1833-2110.
Hoppe, R., 2010. Analysing policy problems: a problem-structuring approach, in: The Governance of Problems, Puzzling, Powering and Participation. Bristol University Press, pp. 59”“90. https://doi.org/10.2307/j.ctt9qgx59.8
Howlett, M., Ramesh, M., Saguin, K., Howlett, M., Ramesh, M., Saguin, K., 2018. Diffusion of CCTs from Latin America to Asia: the Philippine 4Ps case. Rev. Adm. Pública 52, 264”“284. https://doi.org/10.1590/0034-761220170020
Hunter, W., Sugiyama, N.B., 2014. Transforming Subjects into Citizens: Insights from Brazil’s Bolsa Família. Perspect. Polit. 12, 829”“844.
IPEA, 2013. Brasil recebe prêmio internacional por Bolsa Família. Last viewed 28 February 2020. Available at http://www.ipea.gov.br/portal/index.php?option=com_acymailing&ctrl=archive&task=view&listid=10-avisos-de-pauta&mailid=655-brasil-recebe-premio-internacional-por-bolsa-familia
Karim, L., 2008. Demystifying Micro-Credit: The Grameen Bank, NGOs, and Neoliberalism in Bangladesh. Cult. Dyn. 20, 5”“29. https://doi.org/10.1177/0921374007088053
Kingdon, JM, 1995. ‘Chapter 9 - Wrapping Things Up’, in Agendas, Alternatives and Public Policies, Harper Collins, pp. 196”“208.
Leite, I.C., Pomeroy, M., Suyama, B., 2015. Brazilian South”“South Development Cooperation: The Case of the Ministry of Social Development in Africa. J. Int. Dev. 27, 1446”“1461. https://doi.org/10.1002/jid.3191
Lima, B., 2018. Correio Braziliense. Temer volta atrás e recompõe R$ 15 bilhões do Bolsa Família. Last viewed 15 October 2019. https://www.correiobraziliense.com.br/app/noticia/politica/2018/09/04/interna_politica,704043/temer-volta-atras-e-recompoes-r-15-bi-do-bolsa-familia.shtml
Lindblom, C.E., 1959. The Science of “Muddling Through.” Public Adm. Rev. 19, 79. https://doi.org/10.2307/973677
Melo, M.A., 2008. Unexpected Successes, Unanticipated Failures: Social Policy from Cardoso to Lula, in: Kingstone, P.R., Power, T.J. (Eds.), Democratic Brazil Revisited. University of Pittsburgh Press, pp. 161”“184. https://doi.org/10.2307/j.ctt6wr9x1.13
Morgan, M., 2018. Falling Inequality beneath Extreme and Persistent Concentration: New Evidence for Brazil Combining National Accounts, Surveys and Fiscal Data, 2001-2015. 78.
Morton, G.D., 2014. Protest Before the Protests: The Unheard Politics of a Welfare Panic in Brazil. Anthropol. Q. 87, 925”“933.
Neves, M. C., 2019, MNEs should back the end of Brazil’s income tax exemption on dividends, International Tax Review. https://www.internationaltaxreview.com/article/b1jfpqrmgdjgt2/mnes-should-back-the-end-of-brazils-income-tax-exemption-on-dividends.
Pal, L.A., 2011. Assessing incrementalism: Formative assumptions, contemporary realities. Policy Soc. 30, 29”“39. https://doi.org/10.1016/j.polsoc.2010.12.004
Pencheva, I., Esteve, M., Mikhaylov, S.J., 2018. Big Data and AI ”“ A transformational shift for government: So, what next for research? Public Policy Adm. 095207671878053. https://doi.org/10.1177/0952076718780537
Pfeiffer, J., 2013. The Struggle for a Public Sector: Pepfar in Mozambique. When People Come First: Critical Studies in Global Health. Princeton University Press. Retrieved 26 May 2019 from https://www.universitypressscholarship.com/view/10.23943/princeton/9780691157382.001.0001/upso-9780691157382-chapter-009.
Rossi, M., 2020. Ministério Público Federal cobra do Governo Bolsonaro redução da fila do Bolsa Família. El País. Last viewed 20 February 2020. https://brasil.elpais.com/brasil/2020-02-14/ministerio-publico-federal-cobra-do-governo-bolsonaro-providencias-para-reduzir-fila-do-bolsa-familia.html.
Roubicek, M., 2020. A fila do Bolsa Família e a redução de beneficiários
Nexo. Last viewed 25 February 2020.https://www.nexojornal.com.br/expresso/2020/02/23/A-fila-do-Bolsa-Fam%C3%ADlia.-E-a-redu%C3%A7%C3%A3o-de-benefici%C3%A1rios
Sager, T., 1995. Dialogical incrementalism: competing rationalities and the cultivation of the synoptic/incremental distinction. J. Archit. Plan. Res. 12, 121”“140.
Soares, F.V., 2011. Brazil’s Bolsa Família: A Review. Econ. Polit. Wkly. 46, 55”“60.
Solow A., 2016. Bolsa Família: a evolução do Programa desde 2003, last viewed 15 October 2019. https://terracoeconomico.com.br/bolsa-familia-evolucao-do-programa-desde-2003/.
Stewart M, 2018. International/OECD ”“ Redistribution between rich and poor countries. Bulletin for International Taxation, 2018 (Volume 72), No. 4/5, published online: 24 March 2018.
Sugiyama, N.B., Hunter, W., 2013. Whither Clientelism? Good Governance and Brazil’s “Bolsa Família” Program. Comp. Polit. 46, 43”“62.
The Economist, 2015. Helping the Poorest of the Poor. Last viewed 15 October 2019. https://www.economist.com/international/2015/01/13/helping-the-poorest-of-the-poor.
Weiss, A., Woodhouse, E., 1992. Reframing Incrementalism: A Constructive Response to the Critics. Policy Sci. 25, 255”“273.
Wilder, M., 2017. Comparative Public Policy: Origins, Themes, New Directions: Comparative Public Policy. Policy Stud. J. 45, S47”“S66. https://doi.org/10.1111/psj.12200
Wu, X, Ramesh, M, Howlett, M & Fritzen, 2018. The Public Policy Primer: Managing the Policy Process, pp. 1”“75, accessed from <https://ezp.lib.unimelb.edu.au/login?url=https://search.ebscohost.com/login.aspx?direct=true&db=cat00006a&AN=melb.b7211136&site=eds-live&scope=site>.
Baruah, B., 2010. NGOs in Microfinance: Learning from the Past, Accepting Limitations, and Moving Forward: NGOs in microfinance. Geogr. Compass 4, 979”“992. https://doi.org/10.1111/j.1749-8198.2010.00362.x
Bither-Terry, R., 2014. Reducing Poverty Intensity: What Alternative Poverty Measures Reveal About the Impact of Brazil’s Bolsa Família. Lat. Am. Polit. Soc. 56, 143”“158.
Braybrooke, D., 1998. Scale, Combination, Opposition: A Rethinking of Incrementalism, in: Moral Objectives, Rules, and the Forms of Social Change. University of Toronto Press, pp. 311”“330.
Caixa, 2019. Caixa Econômica Federal. Last viewed 17 October 2019. Available at http://www.caixa.gov.br/programas-sociais/bolsa-familia/Paginas/default.aspx
Campbell, J.L., 2002. Ideas, Politics, and Public Policy. Annu. Rev. Sociol. 21.
Coutinho, D.R., 2014. Targeting Within Universalism? The “Bolsa Família” Program and the Social Assistance Field in Brazil. Verfass. Recht Übersee Law Polit. Afr. Asia Lat. Am. 47, 43”“61.
de Brauw, A., Gilligan, D.O., Hoddinott, J., Roy, S., 2015. Bolsa Família and Household Labor Supply. Econ. Dev. Cult. Change 63, 423”“457. https://doi.org/10.1086/680092
Diário da Câmara dos Deputados, 2003. 18 December 2003, Year LVIII, No. 217, Brasília ”“ DF.
Dodds, A., 2013, ‘Chapter 1’, in Comparative public policy, Palgrave Macmillan, pp. 1”“14.ISBN: 9780230319424
Exame, 2016. Os 15 bancos que têm mais agências no Brasil, last viewed 17 October 2019, available at https://exame.abril.com.br/revista-exame/os-15-bancos-que-tem-mais-agencias-no-brasil/
Farmer, P., 2008. Challenging Orthodoxies: The Road Ahead for Health and Human Rights. Health Hum. Rights 10, 5. https://doi.org/10.2307/20460084
Fawcett Paul, Marsh David, 2012. Policy Transfer and Policy Success: The Case of the Gateway Review Process (2001”“10). Gov. Oppos. 47, 162.
Ferguson, J., 2010. The Uses of Neoliberalism. Antipode 41, 166”“184. https://doi.org/10.1111/j.1467-8330.2009.00721.x
Fenwick, T.B, 2016. Avoiding Governors and the Success of CCTs in Brazil, in: Avoiding Governors, Federalism, Democracy, and Poverty Alleviation in Brazil and Argentina. University of Notre Dame Press, pp. 55”“84.
Goss, K.A., 2006. Changing the Calculation: Policy Incrementalism and Political Participation, in: Disarmed, The Missing Movement for Gun Control in America. Princeton University Press, pp. 145”“175.
Hall, A., 2006. From Fome Zero to Bolsa Família: Social Policies and Poverty Alleviation under Lula. J. Lat. Am. Stud. 38, 689”“709.
Hashemi, S.M., Schuler, S.R., Riley, A.P., 1996. Rural credit programs and women’s empowerment in Bangladesh. World Dev. 24, 635”“653. https://doi.org/10.1016/0305-750X(95)00159-A
Hayes, M.T., 2001. Needed: A Realistic Theory of Policy Change, in: The Limits of Policy Change, Incrementalism, Worldview, and the Rule of Law. Georgetown University Press, pp. 1”“6.
Head, B., 2008. Wicked Problems in Public Policy [online]. Public Policy, Vol. 3, No. 2, 2008: 101-118. Availability: <https://search-informit-com-au.ezp.lib.unimelb.edu.au/documentSummary;dn=662880306504754;res=IELFSC> ISSN: 1833-2110.
Hoppe, R., 2010. Analysing policy problems: a problem-structuring approach, in: The Governance of Problems, Puzzling, Powering and Participation. Bristol University Press, pp. 59”“90. https://doi.org/10.2307/j.ctt9qgx59.8
Howlett, M., Ramesh, M., Saguin, K., Howlett, M., Ramesh, M., Saguin, K., 2018. Diffusion of CCTs from Latin America to Asia: the Philippine 4Ps case. Rev. Adm. Pública 52, 264”“284. https://doi.org/10.1590/0034-761220170020
Hunter, W., Sugiyama, N.B., 2014. Transforming Subjects into Citizens: Insights from Brazil’s Bolsa Família. Perspect. Polit. 12, 829”“844.
IPEA, 2013. Brasil recebe prêmio internacional por Bolsa Família. Last viewed 28 February 2020. Available at http://www.ipea.gov.br/portal/index.php?option=com_acymailing&ctrl=archive&task=view&listid=10-avisos-de-pauta&mailid=655-brasil-recebe-premio-internacional-por-bolsa-familia
Karim, L., 2008. Demystifying Micro-Credit: The Grameen Bank, NGOs, and Neoliberalism in Bangladesh. Cult. Dyn. 20, 5”“29. https://doi.org/10.1177/0921374007088053
Kingdon, JM, 1995. ‘Chapter 9 - Wrapping Things Up’, in Agendas, Alternatives and Public Policies, Harper Collins, pp. 196”“208.
Leite, I.C., Pomeroy, M., Suyama, B., 2015. Brazilian South”“South Development Cooperation: The Case of the Ministry of Social Development in Africa. J. Int. Dev. 27, 1446”“1461. https://doi.org/10.1002/jid.3191
Lima, B., 2018. Correio Braziliense. Temer volta atrás e recompõe R$ 15 bilhões do Bolsa Família. Last viewed 15 October 2019. https://www.correiobraziliense.com.br/app/noticia/politica/2018/09/04/interna_politica,704043/temer-volta-atras-e-recompoes-r-15-bi-do-bolsa-familia.shtml
Lindblom, C.E., 1959. The Science of “Muddling Through.” Public Adm. Rev. 19, 79. https://doi.org/10.2307/973677
Melo, M.A., 2008. Unexpected Successes, Unanticipated Failures: Social Policy from Cardoso to Lula, in: Kingstone, P.R., Power, T.J. (Eds.), Democratic Brazil Revisited. University of Pittsburgh Press, pp. 161”“184. https://doi.org/10.2307/j.ctt6wr9x1.13
Morgan, M., 2018. Falling Inequality beneath Extreme and Persistent Concentration: New Evidence for Brazil Combining National Accounts, Surveys and Fiscal Data, 2001-2015. 78.
Morton, G.D., 2014. Protest Before the Protests: The Unheard Politics of a Welfare Panic in Brazil. Anthropol. Q. 87, 925”“933.
Neves, M. C., 2019, MNEs should back the end of Brazil’s income tax exemption on dividends, International Tax Review. https://www.internationaltaxreview.com/article/b1jfpqrmgdjgt2/mnes-should-back-the-end-of-brazils-income-tax-exemption-on-dividends.
Pal, L.A., 2011. Assessing incrementalism: Formative assumptions, contemporary realities. Policy Soc. 30, 29”“39. https://doi.org/10.1016/j.polsoc.2010.12.004
Pencheva, I., Esteve, M., Mikhaylov, S.J., 2018. Big Data and AI ”“ A transformational shift for government: So, what next for research? Public Policy Adm. 095207671878053. https://doi.org/10.1177/0952076718780537
Pfeiffer, J., 2013. The Struggle for a Public Sector: Pepfar in Mozambique. When People Come First: Critical Studies in Global Health. Princeton University Press. Retrieved 26 May 2019 from https://www.universitypressscholarship.com/view/10.23943/princeton/9780691157382.001.0001/upso-9780691157382-chapter-009.
Rossi, M., 2020. Ministério Público Federal cobra do Governo Bolsonaro redução da fila do Bolsa Família. El País. Last viewed 20 February 2020. https://brasil.elpais.com/brasil/2020-02-14/ministerio-publico-federal-cobra-do-governo-bolsonaro-providencias-para-reduzir-fila-do-bolsa-familia.html.
Roubicek, M., 2020. A fila do Bolsa Família e a redução de beneficiários
Nexo. Last viewed 25 February 2020.https://www.nexojornal.com.br/expresso/2020/02/23/A-fila-do-Bolsa-Fam%C3%ADlia.-E-a-redu%C3%A7%C3%A3o-de-benefici%C3%A1rios
Sager, T., 1995. Dialogical incrementalism: competing rationalities and the cultivation of the synoptic/incremental distinction. J. Archit. Plan. Res. 12, 121”“140.
Soares, F.V., 2011. Brazil’s Bolsa Família: A Review. Econ. Polit. Wkly. 46, 55”“60.
Solow A., 2016. Bolsa Família: a evolução do Programa desde 2003, last viewed 15 October 2019. https://terracoeconomico.com.br/bolsa-familia-evolucao-do-programa-desde-2003/.
Stewart M, 2018. International/OECD ”“ Redistribution between rich and poor countries. Bulletin for International Taxation, 2018 (Volume 72), No. 4/5, published online: 24 March 2018.
Sugiyama, N.B., Hunter, W., 2013. Whither Clientelism? Good Governance and Brazil’s “Bolsa Família” Program. Comp. Polit. 46, 43”“62.
The Economist, 2015. Helping the Poorest of the Poor. Last viewed 15 October 2019. https://www.economist.com/international/2015/01/13/helping-the-poorest-of-the-poor.
Weiss, A., Woodhouse, E., 1992. Reframing Incrementalism: A Constructive Response to the Critics. Policy Sci. 25, 255”“273.
Wilder, M., 2017. Comparative Public Policy: Origins, Themes, New Directions: Comparative Public Policy. Policy Stud. J. 45, S47”“S66. https://doi.org/10.1111/psj.12200
Wu, X, Ramesh, M, Howlett, M & Fritzen, 2018. The Public Policy Primer: Managing the Policy Process, pp. 1”“75, accessed from <https://ezp.lib.unimelb.edu.au/login?url=https://search.ebscohost.com/login.aspx?direct=true&db=cat00006a&AN=melb.b7211136&site=eds-live&scope=site>.
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2022-08-23
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CALVET NEVES, Márcio. How Incrementalism Theory Explains the Successful Policy Making Process of the Bolsa Família. RP3 - Revista de Pesquisa em Políticas Públicas, [S. l.], v. 1, n. 1, 2022. Disponível em: https://periodicos.unb.br/index.php/rp3/article/view/29810. Acesso em: 21 nov. 2024.
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