How to become innovative: The trajectory of social assistance programs in Brazil

Abstract

This article proposes a theoretical framework to analyze conditional cash transfer programs, as the result of a process of social policy innovation in Brazil. The analysis reveals a traceable process of innovation behind the creation of two of these programs, Bolsa Família and Bolsa Verde. By focusing on the main drivers in the emergence of Brazilian cash transfer programs, the article analyzes the innovations in their evolution and shows that these programs are part of sequential policy learning. By exploring the drivers, actors, and phases of social policy innovation in Brazil, the article contributes to the literature on cash transfer programs by theorizing on how these social assistance programs innovate, endure, and expand over time. Furthermore, Brazil's trajectory of social assistance development dissected in this article reveals Bolsa Família and Bolsa Verde as outcomes of institutional dynamics that attempted to foster social investment and to reduce risks of poverty. In terms of specific contributions, the article identifies and delves into the configuration of multilevel network supporting cash transfer programs and the sequential phases of the development of these programs in Brazil that reveal a policy learning mechanism.