Policy change in socially embedded local policy processes in São Paulo, 1988–2020

Policy transformation is a classic theme in policy analysis. Policy models have emphasized the role of actors, coalitions, leadership, and ideas in agenda-setting, the circulation of policy frameworks and solutions, and different mechanisms of gradual institutional change that accumulate in policy trajectories. We sustain that oscillating and incremental policy trajectories also produce policy change during policy implementation, triggered by political competition and partisan politics, the embeddedness of policy communities, and multilevel effects. This theorizing is built from the recent trajectories of social assistance and housing policies in São Paulo. Both trajectories followed incremental processes of expansion and diversification, although with sectoral specificities. These cases show that cumulative positive public policy change may happen even in the face of institutional conditions that the literature considers far from ideal – an extremely fragmented party system, decentralized federalism, and weak bureaucracies and state capacities. Competitive partisan politics reinforced the creation and reanimation of policy innovations under multilevel regulation. Networks of bureaucrats and civil society activists within the relevant policy communities enabled policy replication and reanimation by entering and exiting local administrations depending on their ideological colors.