Summary
The public policy councils in Brazil provide a comprehensive form of institutionalized civil society participation in designing, implementing, and monitoring public policies. The councils are permanent collegiate institutions, formally created by the Public Administration, to provide an avenue of dialogue between civil society and government to promote public participation in public policy management and decision-making.
They are composed of both governmental and non-governmental representatives, related to a specific area and they are designed to link citizens and policy experts to specific line ministries (although as one observer notes, it is considered somewhat controversial if they indeed perform this function).[ref] While Council responsibilities are not homogenous and vary between the different policy areas, Councils generally have the responsibility of suggesting new policies (budget formulation) as well as monitoring government implementation. Alongside participatory budgeting at the sub-national level, which was pioneered in Brazil, public policy councils have been instrumental in creating momentum in the country for public participation.[ref] The councils’ importance lies partly in their scale: they are established for a variety of public policy areas, such as the environment, health, or education, and they are organized at all levels of government, local to federal.[ref] The councils are instrumental in fostering social participation and monitoring, making government more accountable, and deepening democracy.[ref] They also aim to provide more universal access to social services.[ref]The public policy councils in Brazil engage a number of public participation principles in practice, most prominently the principles of respect for self-expression, and sustainability. These two principles are well illustrated by the practice, while others, such as timeliness, complementarity or reciprocity, are not fully realized as of yet.
Basic Facts
Why
Authorizing Environment
Who and How
The councils’ work is often – but not always – complemented by thematic conferences, also taking place at all three levels of government (municipal, state and federal). Conferences are regular forums for discussion, formulation and evaluation of specific issues in the public interest, with the participation of representatives of government and civil society so that they can contemplate state, district, municipal and regional stages and propose guidelines and actions on the specific themes discussed. Conferences take place over one or two days every one to four years and are attended by citizens and community leaders.[ref] General policy proposals are discussed and voted on within the conference with the objective of providing input to the government with respect to policy priorities.[ref] Councils and conferences are interconnected by the fact that council members are, at times, elected during the annual or biannual conference meetings, although this is not a general rule. The councils often prepare the agendas for the conference meetings.
While in 2009, there were 32, 413 councils, by 2011 this number was 50,557, including councils in the three federative levels and different policy areas. The majority of councils have been implemented in municipalities that have less than 15,000 residents, since most Brazilian cities have less than 20,000 inhabitants (68,72% according to the Brazilian Institute of Geographics and IBGE in 2015). [ref] That being said, councils are more likely to be found in urban centers than in small municipalities, depending on policy area. Evidence suggests that medium and large municipalities are also more and more willing to adopt councils voluntarily. [ref] In fact, as municipalities grow in size, they adopt more councils, particularly as they are in some cases required to establish councils by the federal government as a pre-condition for the transfer of federal funds for certain programs.[ref] Positions on the council are filled either by election, or appointment by a specific authority, and some are directly nominated in the created statute.[ref] The number of seats for each Council is determined either by the founding legislation or the internal rules of the council. Council membership is generally based on parity with 50% of the Council seats going to government officials and 50% going to CSOs, including social movements, community-based organizations and unions.[ref] Limited representation from private companies and policy experts is also possible. Some exceptions exist to the principle of parity, which – although not a rule – is generally diffused in the council system, with the exception of certain policy areas such as for councils in the areas of health and food security, where health boards are composed of 25% government representatives, 25% of CSO representatives and 50% of users of Unified Health System (SUS) health services.[ref] CSO members are generally selected through forums where CSOs compete for seats with each other, while the government nominates its members and service providers are nominated through their associations or by government authorities. Labor union representatives are generally elected through internal elections for guaranteed seats. Members do not receive compensation for their activities. Rather, they are expected to have an interest in and a specific knowledge of the particular subject matter covered by a council. Councils typically hold meetings biweekly or monthly. The meetings are an opportunity to present information, ask questions from government officials and discuss issues with government officials. Meetings are, for the most part, but with exceptions, open to the public and they are announced typically five days in advance, but variations do exist to these rules. Many councils have multiple subcommittees for various policy areas. The subcommittees of the councils provide a space for more detailed research activities and policy discussions and they also part-draft proposals and engage in oversight activities. They report back to the main council about their work. [ref]Results and Impact
The process has resulted in more consensus-based decision-making and more citizen control over the allocation of public resources. It also resulted in a greater continuity of public policy and has made the budget process more accessible to the public.[ref]
Lessons Learned
- CSO members of the councils are volunteers, while the government members are professionals, which can lead to a knowledge and expertise imbalance between the different members and can lead to capture of the council on occasion.[ref] Lack of knowledge and lack of training for council members hinder the process.[ref]
- Emphasis has been stronger on the budget formulation phase than on implementation and audit/review, where attention has often been completely lacking. [ref]
- Some councils exist only to guarantee government fund transfers but are otherwise not fully functional.[ref]
- Capture of councils by CSOs that are better organized or have a more established constituent base.[ref]
- There is no impact assessment for councils.[ref]
Generally, there is a lack of public information available on the operations of the councils, although some of them are known for broad publicity of every single act of their members.[ref]
Principles of Public Participation in Fiscal Policy
- Complementarity: This mechanism illustrates the principle of complementarity in action due to its multi-tiered nature, operating at all three levels of government, and due to the councils interlocking nature, both with each other but also with the larger policy-making environment. The various tiers feed information and views upwards, which also shows complementarity. This principle could be much better realized if the councils work.
- Transparency: Relevant information is provided to and from the council to participate in the decision-making process.
- Timeliness: This principle could be much better realized if sufficient time was allowed for the public at all times to provide input into the budget process.
- Respect for self-expression: Since the councils work at the level of local community as well, they enable communities to express their interests in their own way.
- Proportionality: The mechanism is proportional in nature since it tackles issues at the three levels of governments, is organized by sector or policy domain, and is tailored to the specific needs of communities differing in size.
- Sustainability: Engagement is ongoing, regular and institutionalized. Councils are highly institutionalized establishments, and thus represent a permanent instrument of public management.
- Reciprocity: The entities taking part are generally, but not always, open about their mission and the interests they represent. This principle could be better served if all entities were open about their interests.
Country Context
This is an improvement from Brazil’s previous overall score of 71 on the 2012 Open Budget Survey. Freedom House’s 2016 Freedom in the World Report categorized Brazil as “free.”