Characteristics and Limits of a National Initiative of Integrity and Anti-corruption for Local Governments of Brazil
Características y límites de una iniciativa nacional de integridad y anticorrupción para gobiernos locales de Brasil
Abstract (en)
This article analyzes the characteristics and limits of an integrity and anti-corruption policy of the Brazilian federal government offered to local governments. The Time Brazil Program is an initiative of the Office of Comptroller General of the Union (CGU) created in 2019, based on local policies implemented since its creation in 2003. After content analysis, it can be characterized, at the micro level, as a top-down strategy without enforcement of voluntary adhesion and dependent on the mayor, in which compliance-based internal actions predominate. Adherent, to a large extent, to international recommendations, it proposes incremental advances with emphasis on internal controls for the prevention and detection of administrative corruption, mainly petty corruption. It assumes that the irregularities are caused by lack of knowledge and regulation, and proposes the creation of filters and sanctions to increase control and reduce rent-seeking. On the other hand, there are limits that may affect its implementation and effectiveness, mainly in small cities, such as: lack of measures to act on grand corruption and politics; lack of value-based and ethic-based strategies to stimulate changes in organizational culture; emphasis on local regulation of good practices (soft law), but only internally, without interaction with the legislative power, which is fragile to changes of governments. Also, there is no forecast of indicators of long-term results and impact, beyond the regulatory adherence. The analysis characterizes Time as a complex policy and strongly subject to implementation gaps, as it contains limitations from its design. Its success depends on the construction of a local anti-corruption agenda and on the capacity of the comptroller’s office which in turn depends on the approval of laws by the legislature, in addition to pressure from local society and the horizontal accountability system. The development of local leadership capacity and effective partnerships within intergovernmental coalitions are factors that, if included, could facilitate proper policy implementation. Future research can assess their impacts and effectiveness.
Abstract (es)
Este artículo analiza las características y límites de una política de integridad y anticorrupción del gobierno federal de Brasil ofrecida para gobiernos locales. El Programa Time Brasil es una iniciativa de la Contraloría General de la Unión (CGU) creada en 2019 a partir de políticas locales aplicadas desde su creación en 2003. Tras análisis de contenido, se puede caracterizarla, en nivel micro, como una estrategia top-down sin enforcement, de adhesión voluntaria y dependiente del alcalde, en que predominan acciones internas tipo compliance-based. Adherente, en gran medida, a las recomendaciones internacionales, propone avances incrementales con énfasis en controles internos de prevención y detección sobre la corrupción del tipo administrativa, principalmente la pequeña (petty). Presupone que las irregularidades son causadas por carencia de conocimiento y reglamentación, y propone crear filtros y sanciones para aumentar el control y reducir el rent-seeking. De otro lado, hay límites que pueden afectar su implementación y eficacia, principalmente en ciudades pequeñas, como: falta de medidas que actúen sobre la gran corrupción y la política; carencia de estrategias value-based y ethic-based, que estimulen cambios de cultura organizacional; énfasis en la reglamentación local de las buenas prácticas (soft law), pero solo internamente, sin interacción con el poder legislativo, lo que es frágil a cambios de gobiernos. Además, no hay previsión de indicadores de resultados e impactos de largo plazo, más allá de la adherencia normativa. El análisis caracteriza el Time como una política compleja y fuertemente sujeta a brechas de implementación, pues contiene limitaciones desde su diseño. Su éxito depende de la construcción de una agenda local anticorrupción y de la capacidad de la contraloría; ello depende de la aprobación de leyes por el legislativo, además de presiones de la sociedad local y del sistema de rendición de cuentas horizontal. El desarrollo de capacidad de liderazgo local y de alianzas efectivas en el marco de coaliciones intergubernamentales son factores que, si se incluyeran, podrían facilitar la adecuada implementación de la política. Investigaciones futuras podrán evaluar sus impactos y efectividad.
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