Open Government? Democracy and Transparency Backsliding in Latin America’s Populist Governments
¿Gobierno Abierto? Retrocesos en la Democracia y en la Transparencia en Gobiernos Populistas de América Latina
Governo Aberto? Retrocessos na Democracia e na Transparência em Governos Populistas da América Latina
Abstract (en)
The Open Government Partnership (OGP), established in 2011, aims to promote transparency, open data, civil society participation, and accountability, but its effectiveness varies among governments. This article analyzes the setbacks in transparency and open government policies in Brazil, Mexico, and Argentina, focusing on how populist governments impact these principles. It examines the gap between government transparency and OGP guidelines, civil society reactions, enforcement mechanisms for non-compliance, the direct and indirect pathway of implementation, and the effects of AI and disinformation on transparency.
Under Bolsonaro in Brazil, there were significant restrictions on FOIA, secrecy on documents, and the establishment of a secret budget. Lula's administration still has challenges concerning governmental information and budget amendments. In Mexico, AMLO’s constant attacks on transparency and the dismantling of the INAI agency were observed. In Argentina, Javier Milei directly attacked FOIA and access to public information with Decree 780/2024. Drawing on case studies and the sociology of organizations’ theoretical framework, the study concludes that open government policies are not yet institutionalized due to weak normative and cultural cognitive pillars, along with risks involving regulatory frameworks. Establishing an Open State with clear standards is essential to strengthen democracy.
Abstract (es)
La Alianza para el Gobierno Abierto (AGA), establecida en 2011, busca promover la transparencia, los datos abiertos, la participación de la sociedad civil y la accountability, y su efectividad varía entre gobiernos. Este análisis aborda retrocesos en la transparencia y gobierno abierto en Brasil, México y Argentina bajo gobiernos populistas. Se examina la brecha entre transparencia gubernamental y directrices de OGP, las reacciones de la sociedad civil, los mecanismos de fiscalización, caminhos de implementación, así como los efectos de la IA y desinformación.
Durante el mandato de Bolsonaro en Brasil, se impusieron restricciones significativas a la Ley de Acceso a la Información (LAI) y se estableció un presupuesto secreto. La gestión de Lula enfrenta desafíos relacionados con la información y las enmiendas presupuestarias. En México, se han observados ataques a la transparencia y el desmantelamiento del INAI por parte de AMLO. En Argentina, comnel Decreto 780/2024, Javier Milei ataca el aceso a la información pública. El estudio concluye que las políticas de gobierno abierto no están institucionalizadas debido a pilares normativos y culturales débiles, además de riesgos relacionados con los marcos regulatórios. Establecer un Estado Abierto con estándares claros es esencial para fortalecer la democracia.
Abstract (pt_BR)
A Parceria de Governo Aberto (PGA), estabelecida em 2011, busca promover a transparência, dados abertos, participação da sociedade civil e accountability, mas sua eficácia varia entre os governos. São analisados os retrocessos na transparência e governo aberto em governos populistas no Brasil, México e Argentina. Examina-se a lacuna entre a transparência governamental e as diretrizes da OGP, as reações da sociedade civil, os mecanismos de fiscalização para a não conformidade, o caminho direto e indireto de implementação, e os efeitos da IA e da desinformação.
Durante o governo Bolsonaro, houve restrições significativas à Lei de Acesso à Informação (LAI), e o estabelecimento de um orçamento secreto. A administração de Lula enfrenta desafios em relação à informação e emendas orçamentárias. No México, evidenciam-se ataques de AMLO à transparência e o desmantelamento do INAI. Na Argentina, com o Decreto 780/2024, Javier Milei ataca diretamente o acesso à informação pública. Com base em estudos de caso e no arcabouço teórico da sociologia das organizações, conclui-se que as políticas de governo aberto ainda não estão institucionalizadas devido a pilares normativos e cognitivos culturais frágeis, além de riscos envolvendo estruturas regulatórias. Estabelecer um Estado Aberto com padrões claros é essencial para fortalecer a democracia.
References
Abramo, C. P. (2005). Percepções pantanosas: As dificuldades de medir a corrupção. Novos Estudos, 73, 33–37. DOI: https://doi.org/10.1590/S0101-33002005000300003
Abrucio, L. F. (2024, April 18). Podcast O Assunto: A guerra de Artur Lira contra o Planalto.
Alujas, A. V. R. (2019). El estado del Estado abierto en América Latina: Avances, alcances y perspectivas. Estado Abierto, 4(1), 13–38.
Alujas, A. V. R. (2022). Las políticas de gobierno abierto en Iberoamérica: Explorando una década de cambios en el contexto de la Alianza para el Gobierno Abierto (2011–2021). Revista del CLAD Reforma y Democracia, 82, 35–72. DOI: https://doi.org/10.69733/clad.ryd.n82.a282
Angélico, F. (2023). Open government data as an anti-corruption intervention in global cities: Do local-level accountability actors actually use data? (Doctoral dissertation). Università della Svizzera Italiana and EAESP – Fundação Getulio Vargas.
Bauer, M. W., & Knill, C. (2014). A conceptual framework for the comparative analysis of policy change: Measurement, explanation, and strategies of policy dismantling. Journal of Comparative Policy Analysis: Research and Practice, 16(1), 28–44. https://doi.org/10.1080/13876988.2014.885186 DOI: https://doi.org/10.1080/13876988.2014.885186
Brazilian Transparency Portal. (2024). Understand management—Parliamentary amendments. https://portaldatransparencia.gov.br/pagina-interna/605525-emendas-parlamentares
Brelaz, G. (2012). O processo de institucionalização da participação na Câmara Municipal de São Paulo: Uma análise das audiências públicas do orçamento (1990–2010) (Doctoral dissertation). EAESP-Fundação Getulio Vargas.
Brelaz, G., & Alves, M. A. (2013). O processo de institucionalização da participação na Câmara Municipal de São Paulo: Uma análise das audiências públicas do orçamento (1990–2010). Revista de Administração Pública, 47, 803–826. DOI: https://doi.org/10.1590/S0034-76122013000400001
Brelaz, G., Crantschaninov, T., & Bellix, L. (2021). Open Government Partnership na cidade de São Paulo e o programa São Paulo Aberta: Desafios na difusão e institucionalização de uma política global. Cadernos Ebape, 19(1), 1–20. DOI: https://doi.org/10.1590/1679-395120200023
Bueno, R. L. P., Brelàz, G., & Salinas, N. S. C. (2016). Administração pública brasileira no século 21: Seis grandes desafios. Revista Serviço Público, 67, 7–28. DOI: https://doi.org/10.21874/rsp.v67i0.1152
Caldeira, C. (2023, December 1). O que representa a indicação de Flávio Dino para o Supremo Tribunal Federal. Jornal da USP. https://jornal.usp.br/radio-usp/o-que-representa-a-indicacao-de-flavio-dino-para-o-supremo-tribunal-federal/
Controladoria Geral da União. (2023a). Parecer sobre acesso à informação para atender o despacho presidencial de 1º de janeiro de 2023. https://www.gov.br/cgu/pt-br/assuntos/noticias/2023/02/cgu-conclui-revisao-dos-sigilos-impostos-a-documentos-de-acesso-publico/copy_of_PARECERFINALSOBREACESSOINFORMAO_CGU_FEV2023.pdf
Controladoria Geral da União. (2023b). 6º plano de ação nacional em governo aberto. Open Government Partnership.
Controladoria Geral da União. (2023c). Plano de trabalho do Conselho de Transparência, Integridade e Combate à Corrupção. https://www.gov.br/cgu/pt-br/assuntos/transparencia-publica/conselho-da-transparencia/arquivos/folder-cticc-1-2.pdf
Cucciniello, M., Porumbescu, G. A., & Grimmelikhuijsen, S. (2017). 25 years of transparency research: Evidence and future directions. Public Administration Review, 77(1), 32–44. DOI: https://doi.org/10.1111/puar.12685
Dussauge-Laguna, M. I. (2021). Doublespeak populism and public administration: The case of Mexico. In M. Bauer, B. G. Peters, J. Pierre, K. Yesilkagit, & S. Becker (Eds.), Democratic backsliding and public administration: How populists in government transform state bureaucracies (pp. 178–199). Cambridge University Press. DOI: https://doi.org/10.1017/9781009023504.009
Evans, A. M., & Campos, A. (2013). Open government initiatives: Challenges of citizen participation. Journal of Policy Analysis and Management, 32(1), 172–185. DOI: https://doi.org/10.1002/pam.21651
Faria, R. O. (2023). Emendas parlamentares e processo orçamentário no presidencialismo de coalizão. Editora Blucher. DOI: https://doi.org/10.5151/9786555501797
Feldman, M. S., & Rafaeli, A. (2002). Organizational routines as sources of connections and understandings. Journal of Management Studies, 39(3), 309–331. https://doi.org/10.1111/1467-6486.00294 DOI: https://doi.org/10.1111/1467-6486.00294
Fernandes, G. A., Fernandes, I. F., & Teixeira, M. A. (2023). Transparency of subnational governments: The impact of inequality on transparency. Brazilian Journal of Public Administration, 57(6).
Fernandes, M. C. (2024, April 22). Despacho de Dino sobre “orçamento secreto” incomoda Congresso. Valor Econômico.https://valor.globo.com/politica/noticia/2024/04/22/despacho-de-dino-sobre-oramento-secreto-incomoda-congresso.ghtml
Figueiredo, A. C., & Limongi, F. (2001). Executivo e Legislativo na nova ordem constitucional (2nd ed.). Editora FGV.
Figueiredo, A. C., & Limongi, F. (Eds.). (2008). Política orçamentária no presidencialismo de coalizão. Editora FGV.
Galisi, J. (2023, December 25). TCE identifica aumento de “emendas Pix” em 2023. O Estado de São Paulo. https://www.estadao.com.br/politica/tcu-obriga-prestacao-de-contas-da-emenda-pix-apos-quatro-anos-sem-transparencia-mas-mantem-modelo/
Government of Canada. (2024). Countering disinformation: A guidebook for public servants. https://www.canada.ca/en/democratic-institutions/services/protecting-democratic-institutions/countering-disinformation-guidebook-public-servants.html
Jimenez, E. C. (2024, November 29). El Senado extermina siete órganos y entes autónomos, incluido el INAI. El País. https://elpais.com/mexico/2024-11-29/el-senado-extermina-siete-organos-y-entes-autonomos-incluido-el-inai.html
Jordan, A., Bauer, M. W., & Green-Pedersen, C. (2013). Policy dismantling. Journal of European Public Policy, 20(5), 795–805. https://doi.org/10.1080/13501763.2013.771092 DOI: https://doi.org/10.1080/13501763.2013.771092
Kwoka, M. B. (2024, September 27). Transparency guardians. Ohio State Legal Studies Research Paper No. 884. George Washington International Law Review (forthcoming). http://dx.doi.org/10.2139/ssrn.4969852 DOI: https://doi.org/10.2139/ssrn.4969852
Lacroix, J. (2023). AI will make extremists more effective too. Online Security. https://inkstickmedia.com/ai-will-make-extremists-more-effective-too/
Levitsky, S., & Ziblatt, D. (2018). Como as democracias morrem. Todavia.
Lima, A. G. (2024, December 22). Decisão de Toffoli expõe conflito após STF liberar julgamento de clientes de escritórios de parentes. Folha de São Paulo. https://www1.folha.uol.com.br/poder/2023/12/decisao-de-toffoli-expoe-conflito-apos-stf-liberar-julgamento-de-clientes-de-escritorios-de-parentes.shtml
Lisi, G. (2023). Online disinformation: An economic analysis. Economic and Business Letters, 12(4), 266–276. DOI: https://doi.org/10.17811/ebl.12.4.2023.266-276
Meijer, A. (2013). Understanding the complex dynamics of transparency. Public Administration Review, 73(3), 429–439. DOI: https://doi.org/10.1111/puar.12032
Meyer, J. W., & Rowan, B. (1977). Institutionalized organization: Formal structure as myth and ceremony. American Journal of Sociology, 83(2), 440–463. DOI: https://doi.org/10.1086/226550
Michener, G. (2023). Transparency versus populism. Administration & Society, 1. DOI: https://doi.org/10.2139/ssrn.4320856
Michener, R. G., Coelho, J., & Moreira, D. (2021). Are governments complying with transparency? Findings from 15 years of evaluation. Government Information Quarterly, 1, 1–38. DOI: https://doi.org/10.1016/j.giq.2021.101565
Milhorance, C. (2022). Policy dismantling and democratic regression in Brazil under Bolsonaro: Coalition politics, ideas, and underlying discourses. Review of Policy Research, 39(6), 752–770. https://doi.org/10.1111/ropr.12502 DOI: https://doi.org/10.1111/ropr.12502
Müller, J.-W. (2016). What is populism? University of Pennsylvania Press. DOI: https://doi.org/10.9783/9780812293784
Nieto, F., & Cejudo, G. (2024). The role of organizational routines in sustaining open government under policy dismantling. Work in progress.
Nieto-Morales, F. (2024, November 21). The elimination of INAI: A blow to transparency and accountability in Mexico. Wilson Center. https://www.wilsoncenter.org/article/elimination-inai-blow-transparency-and-accountability-mexico
Odilla, F. (2025). The digitalisation of anti-corruption in Brazil: Scandals, reforms, and innovation. Routledge. DOI: https://doi.org/10.4324/9781003326618
Organisation for Economic Co-operation and Development (OECD). (2019). Open government in Argentina. https://www.oecd.org/en/publications/open-government-in-argentina_1988ccef-en.html
Organisation for Economic Co-operation and Development (OECD). (2022). Open government review of Brazil. https://www.oecd.org/digital/open-government-review-of-brazil-3f9009d4-en.htm#:~:text=The%20Open%20Government%20Review%20of,the%20Council%20on%20Open%20Government
Open Government Partnership. (2024). OGP response policy. https://www.opengovpartnership.org/ogp-response-policy/
Pentland, B. T., & Hærem, T. (2015). Organizational routines as patterns of action: Implications for organizational behavior. Annual Review of Organizational Psychology and Organizational Behavior, 2(1), 465–487. https://doi.org/10.1146/ANNUREV-ORGPSYCH-032414-111412 DOI: https://doi.org/10.1146/annurev-orgpsych-032414-111412
Piotrowski, S., Berliner, D., & Ingrams, A. (2022). The power of partnership in open government: Reconsidering multistakeholder governance reform. The MIT Press. DOI: https://doi.org/10.7551/mitpress/13984.001.0001
Porumbescu, G., Meijer, A., & Grimmelikhuijsen, S. (2022). Government transparency: State of the art and new perspectives. Public Policy. Cambridge University Press. DOI: https://doi.org/10.1017/9781108678568
Pozen, D. E., & Schudson, M. (2018). Introduction. In D. E. Pozen & M. Schudson (Eds.), Troubling transparency: The history and future of freedom of information (pp. 1–10). Columbia University Press. DOI: https://doi.org/10.7312/poze18498-002
Pozen, D. E. (2020). Seeing transparency more clearly. Public Administration Review, 80(2), 326–331. DOI: https://doi.org/10.1111/puar.13137
Controladoria-Geral da União. (2023, April 10). Portaria Normativa CGU nº 71. Diário Oficial da União, 17 April 2023, Edition 73, Section 1, p. 169.
Roberts-Ingleson, E. M., & McCann, W. S. (2023). The link between misinformation and radicalisation: Current knowledge and areas for future inquiry. Perspectives on Terrorism, 17(1), 36–49. DOI: https://doi.org/10.19165/LWPQ5491
Rose Ackerman, S., & Palifka, B. J. (2016). Corruption and government: Causes, consequences, and reform. Cambridge University Press. DOI: https://doi.org/10.1017/CBO9781139962933
Rovira Kaltwasser, C., Taggart, P., Espejo, P. O., & Ostiguy, P. (Eds.). (2017). The Oxford handbook of populism. Oxford University Press. DOI: https://doi.org/10.1093/oxfordhb/9780198803560.013.34
Salaverría, R., & Cardoso, G. (2023). Future of disinformation studies: Emerging research fields. Profesional de la Información, 32(5). https://doi.org/10.3145/epi.2023.sep.25 DOI: https://doi.org/10.3145/epi.2023.sep.25
Scott, R. (2013). Institutions and organizations: Ideas and interests. Sage.
Shalders, A. (2024, January 10). Criticadas por Lula, emendas sem transparência pagarão quase R$25 bilhões em 2024. O Estado de São Paulo. https://www.estadao.com.br/politica/criticadas-por-lula-emendas-sem-transparencia-pagarao-quase-r-25-bilhoes-em-2024/
Sobrinho, W. P. (2023, January 16). Governo Bolsonaro impôs 1.108 sigilos de cem anos, diz Transparência Brasil. UOL News. https://noticias.uol.com.br/politica/ultimas-noticias/2023/01/16/sigilo-de-100-anos-jair-bolsonaro-recorde.htm#:~:text=Pela%20lei%2C%20estão%20protegidos%20sob
Tai, K. T., Porumbescu, G., & Shon, J. (2020). Can e-participation stimulate offline citizen participation: An empirical test with practical implications. Public Management Review, 22(2), 278–296. DOI: https://doi.org/10.1080/14719037.2019.1584233
Tai, K. (2021). Open government research over a decade: A systematic review. Government Information Quarterly, 38(2), 1–15. DOI: https://doi.org/10.1016/j.giq.2021.101566
Teixeira, M. (2023, June 1). Lula indica ao STF seu advogado e amigo Cristiano Zanin. Folha de São Paulo. https://www1.folha.uol.com.br/poder/2023/06/lula-confirma-indicacao-ao-stf-de-seu-advogado-e-amigo-cristiano-zanin.shtml
Transparency Brazil. (2022). “Sigilo de 100 anos”: O uso do Art. 31 da LAI em negativas. https://www.transparencia.org.br/downloads/publicacoes/sigilo_100anos_uso_art_31_lai_negativas.pdf
Transparency Brazil. (2023). Com fiscalização e transparência falhas, emendas PIX somam R$ 13 bi em quatro anos. https://www.transparencia.org.br/downloads/publicacoes/emendas_pix_2023.pdf
Transparency International. (2024). Corruption perceptions index. https://transparenciainternacional.org.br/ipc/
Waldner, D., & Lust, E. (2018). Unwelcome change: Coming to terms with democratic backsliding. Annual Review of Political Science, 21, 93–113. https://doi.org/10.1146/annurev-polisci-050517-114628 DOI: https://doi.org/10.1146/annurev-polisci-050517-114628
Watanabe, M. (2024, April 24). Emenda parlamentar cresce e afeta controle sobre o orçamento. Valor Econômico. https://valor.globo.com/brasil/noticia/2024/04/24/emenda-parlamentar-cresce-e-afeta-controle-sobre-o-orcamento.ghtml
Weterman, D. (2024, January 23). Congresso quer pagamento de emenda antes do início de obras e sem análise de projetos. O Estado de São Paulo. https://www.estadao.com.br/politica/congresso-quer-pagamento-de-emendas-antes-do-inicio-de-obras-e-sem-analise-de-projetos
Williams, T. J. V., Ioannu, M., & Tzani, C. (2024). Artificially disinformed and radicalised: How AI-produced disinformation could encourage radicalisation. Assessment & Development Matters, 16(1), 29–34. DOI: https://doi.org/10.53841/bpsadm.2024.16.1.29
Wilson, C., Heide, M., & Villeneuve, J. P. (2023). Mapping multi-stakeholder initiatives for public governance and transparency: A comparative assessment of trends and motivations. Policy Studies.https://doi.org/10.1080/01442872.2023.2282569 DOI: https://doi.org/10.1080/01442872.2023.2282569
Wirtz, B. W., Weyerer, J. C., & Rösch, M. (2018). Citizen and open government: An empirical analysis of antecedents of open government data. International Journal of Public Administration, 41(4), 308–320. DOI: https://doi.org/10.1080/01900692.2016.1263659
Zhang, Y., & Lavena, C. (2015). Government anti-corruption strategies: A cross-cultural perspective. Routledge. DOI: https://doi.org/10.1201/b18560
How to Cite
License
Copyright (c) 2025 Brelaz, Gabriela de
This work is licensed under a Creative Commons Attribution-NonCommercial 4.0 International License.
Los contenidos de la revista se distribuyen bajo la licencia Creative Commons Reconocimiento-NoComercial 4.0 Internacional (CC BY-NC-4.0), que permite a los usuarios copiar, usar, difundir, transmitir y exponer públicamente los contenidos, siempre y cuando se cite la autoría (https://creativecommons.org/licenses/by-nc/4.0).