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Institutional Bypasses in Brazil: Overcoming Ex-Ante Resistance to Reforms Mariana Mota Prado University of Toronto Manchester, May 16, 2014
Institutional Bypasses in Brazil:Overcoming Ex-Ante Resistance
to Reforms
Mariana Mota Prado University of Toronto
Manchester, May 16, 2014
What is an Institutional Bypass?
What is a Bypass?
What is a Bypass?
What is an Institutional Bypass?
People
DysfunctionalInstitution
Service/Function
New Institution
Institutional Bypass
(i) it keeps the pre-existing institutions in place; (ii) it creates an alternative pathway through
which to deliver government services or discharge governmental functions;
(iii) it aims at being more efficient or functional than the pre-existing institution.
(Prado 2011)
Presentation Structure
1. Relevance2. Examples from Brazil
3. Implications
Institutions Matter
1. Why is this relevant?
1. Why is this relevant?
Failed Reforms
1. Why is this Relevant?
Institutions Matterbut we do not know
how to transform dysfunctional
institutions
1. Why is this Relevant?
Political
Cognitive
Ex-Ante Obstacles to Reforms:• Resistance
• Institutional Interconnections(formal and informal)
Why is this Relevant?
People
DysfunctionalInstitution
Service/Function
New Institution Political Cognitive
Part 2
Examples of Institutional Bypasses from Brazil
2. Examples from Brazil
• Poupatempo (SP)• UPPs (RJ)
•Private Security
2. Examples from Brazil
Time Saver
2. Examples from Brazil
One-stop shopFor gov’t services
Identity CardDriver’s LicenseWorker’s Card
Criminal Records
2. Examples from Brazil
Buildings:- Functional
Design - Close to the
Subway
2. Examples from Brazil
Expansion of UPPs:1 unit (2008) > 3 units (2009)
> 32 units (2013)10,000 (2008) > 350,000 people
2. Examples from Brazil
Poupatempo is an Institutional Bypass
(Prado and Chasin, 2011)
What is an Institutional Bypass?
People
DysfunctionalInstitution
Service/Function
New Institution
2. Examples from Brazil
Citizens of SP
Police Station
Identity Card
Poupatempo
Prodesp?60
days5-15 days
2. Examples from Brazil
UPPs are an Institutional Bypass
(Willis and Prado, forthcoming)
2. Examples from Brazil
New Police ForcePacifying Police Unit
2. Examples from Brazil
UPPs- Low-income Communities
- New Recruits-Different Training- Proximity
2. Examples from Brazil
People
Old Police Force
Service/Function
New Institution UPPs
2. Examples from Brazil
UPPs as a New Institution?
2009 Decree – Informal2011 Decree – Formal
2013 Decree – Further Separation
2. Examples from Brazil
UPPs in 2009Governor
Secretary of Public Security
Commander in Chief
Operational Commander
Area Commander
Battalion Battalion Battalion
UPP PMERJ
But there were informal
mechanisms
2. Examples from Brazil
UPPs in 2011
Governor
Secretary of Public Security
Commander in Chief
UPPsOperational Commander
Area Commander
Battalion Battalion BattalionUPP PMERJ
2. Examples from Brazil
UPPs in 2013Governor
Secretary of Public Security
Commander in Chief
UPPsOperational Commander
Area Commander
Battalion Battalion BattalionPMERJ PMERJ
Delegacia de Polícia
Judiciária Militar
2. Examples from Brazil
UPPs are not pacifying the communities
They aim at pacifying the police itself
2. Examples from Brazil
Private Security Forces
2. Examples from Brazil
People
Old Police Force
Service/Function
New Institution Private Security
2. Examples from BrazilAgent/ Purpose Different function Same function
Private Parties (1) Security Guards for Companies (e.g. Banks)
(3) Private body guards and Street Vigilantes (Latin American security services)
State (2) Special protection to government officials; witness protection programs
(4) Private military services, outsourcing of prisons and police forces Original
Institution?
Not the same
function
Part 3
Implications
Failed Reforms
3. Implications
Not a PanaceaFor three reasons:
1.Undesirable Bypasses2.Badly Designed Bypasses
3.Failed Bypasses
3. Implications
#1: Undesirable BypassesWhat about Public Bypasses?
“Saving time” by reducing bureaucratic scrutiny
e.g. driving skills
3. Implications
#2 Badly Designed Bypasses
Central Unions (CUT) = Too attached to
the pre-existing institution(Prado and Gomes, in progress)
3. Implications
#3 Failed Bypasses
Previous Community Policing Efforts in RJ > GPAE
3. Implications
Institutional Bypasses:We need to understand
WHEN and WHYthey succeed
Thank [email protected]
