Elements That Impact Building a Public Governance Model in Brazil: The Case of the Brazilian Navy

Raschendorfer, Érica Von; Figueira, Ariane Roder; Furtado, Liliane

doi:10.15728/bbr.2023.20.1.5.en

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Article • BBR, Braz. Bus. Rev. 20 (1) • Jan-Feb 2023 • https://doi.org/10.15728/bbr.2023.20.1.5.en copy

Elements That Impact Building a Public Governance Model in Brazil: The Case of the Brazilian Navy

Authorship SCIMAGO INSTITUTIONS RANKINGS

Abstract

This paper investigated the essential elements for building a public governance model in Brazil, with the objective of proposing an analytical framework with contributions from different theoretical lenses. The concepts and debates emerging from the literature were analyzed along with the normative instruments that guide the principles of public governance in Brazil, and, finally, empirical research was carried out in a Brazilian public organization (Brazilian Navy). The study found that, in the Brazilian context, external control bodies have been playing the role of giving rise to an increase in governance levels within the scope of public administration, restricting at first its application to the perspective of control, and involving, to a lesser extent, the concepts of governance as instruments for achieving political-administrative effectiveness. This result corroborates the need to develop more comprehensive proposals related to public value creation involving the structuring of both political and administrative bodies in Brazil.

Key words:
Public Governance; Brazilian Navy; Public Value; Political Efficiency; Accountability

Paradigm	Public Administration	Public Management	Public Governance
Model	Provider/intervener.	Regulator/managerial.	Based on Public Governance: Coordinating/guarantor state.
Government Action	Provider state.	Business vision and search for greater efficiency and fluidity to State services.	Participatory management: the State recognizes and brings together multiple actors.
Characteristic	Procedural equality; economic policies as “packages” for solving social problems; norms and routines to reduce clientelism.	Scientific management; management guidelines and practices supported by the market logic; search for equity and procedural equality; relevance, adaptation and customer focus. Deregulation and decentralization in the provision of services without decentralizing responsibilities.	Adaptation and direct democracy; highlights political values, shifting the focus from strictly financial efficiency to creating public value through political efficiency; co-production, cooperation between stakeholders; incorporates citizens in the formulation of public policies.
Public Value	Efficiency in government operations.	Management efficiency supported by private standards; customer focus.	Expansion of communication between stakeholders; encouraging social participation.
Society	Consumption patterns of services offered by the State.	Citizen-customer: passive view.	Participatory vision: Co-production of policies and results; practices based on network management, co-production.
Responsibility	Not hierarchical.	External control for employee accountability; transfers the provision of services to other agents without decentralizing responsibility for services with the contractors.	Multifaceted and non-hierarchical accountability.
Democratic Process	Policy-administration dichotomy; Formulation of public policies dissociated from management as distinct government functions.	Search for representative bureaucracy; managers little involved in the democratic process.	Strengthening democracy; consolidates the concept of citizenship in an approach of interested and active parties.
Ethic	State Supremacy: State definitions of needs.	Public interest supremacy; control protagonism.	Practice of ethics, focus on public value, focus on the citizen, on communication with Institutions.

Normative	Subject	Description
Decree No. 5,378/2005	Established the National Program for Public Management and Debureaucratization - GESPÚBLICA and the Management Committee of the National Program for Public Management and Debureaucratization.	It marked the resumption of the National Debureaucratization Program instituted in 1979.
Decree No. 9,094/2017	Provides for the simplification of services provided to users of public services, ratifies the waiver of notarization and authentication of documents produced in the country and institutes the Letter of Services to the User.	Repeals Decree No. 5,378 and institutes the simplification of services provided to users of public services.
Decree No. 9,203/2017	Provides for the governance policy of the direct federal, autarchic, and foundational public administration.	It institutes governance as a policy in Brazil.
Bill No. 9,163/2017	Provides for the governance policy of the direct federal, autarchic, and foundational public administration.	It was attached to PL 4083/2015. Coming from the Parliamentary Inquiry Commission aimed at investigating the practice of illicit and irregular acts within the scope of the company Petróleo Brasileiro S/A (PETROBRAS), between 2005 and 2015. The PL was added to others of similar content, revealing the narrow involvement of Public Governance in Brazil as a continuous act to the public transparency and anti-corruption movements.
EMI No. 00240/2017 MP CGU	Dispatch that accompanies PL 9,163/2017 and explains the bases for establishing the Governance Policy.	The draft of the Bill was prepared from a letter from the Minister of the Federal Audit Court -TCU.
Decree No. 13,460/2017	Provides for the participation, protection, and defense of the rights of the user of public services of the public administration.
TCU Introduction to Integrated Reporting (2018)	Booklet - Management Report in Integrated Report format.	TCU's first move to modernize the presentation of accounts, instituting the Integrated Report as a communication structure.
Normative Decision TCU 178/2019	Management Report in IR format	It institutes a new form of accountability, expanding the content and depth of the information provided in the Management Report. Developed based on Integrated Reporting.
Decree No. 9,901/2019 Regulates the CIG	Amends Decree 9,203 of November 22, 2017 that provides for the governance policy of the direct, autonomous, and foundational federal public administration.	Describes and assigns attributions to the Interministerial Governance Committee. It delimits the matter to the ministerial level.
Ordinance No. 2,298 of September 27, 2019	Establishes the Governance Committee of the Civil House of the Presidency of the Republic.

Categories	Summary of identified elements
People	Centered on the individual and related to the organization: knowledge and skills belonging to the individual and built throughout life. Behavioral and training aspects.
Organizational Aspects (intraorganizational)	Organizational procedural attributes: related to organizational practices, environment, routines, and facilities.
Relational Aspects	Physical, cultural, and behavioral attributes related to networks; fostering networking involving senior management, open communication, and integration (intra-organizational and inter-organizational).
Knowledge, culture, and innovation	Tacit knowledge and processes of transformation into useful knowledge. It articulates the attributes linked to the individual, the organization, and relational for innovation; favorable environment; more horizontal relationships.
Ethics	It articulates non-negotiable values, necessary for establishing lasting relationships such as fidelity to institutional values, transparency, trust, open communication, and codes of ethics and conduct.
Environmental Governance	Shared responsibilities of ecosystem management; strategic interactions between a set of actors to solve common problems; sharing risks and responsibilities; formal governance (compliance with laws and regulations in force, environmental policies, and socio-environmental responsibility codes).

Dimensions (IR Capitals)	Human	Social	Intellectual	Natural		Financial	Manufactured
Search term	“Human Capital”	“Social Capital”	“Intellectual Capital”	“Natural Capital”	“Environmental Capital”	“Financial Capital”	“Manufactured Capital”	“Manufacturing Capital”
Search Criteria	Number of articles found
Level 1	11,667	4,996	1,527	18	45	650	18	44
Level 2	11,658	4,005	1,515	16	45	635	15	44
Level 3	6.970	3,596	323	9	26*	419	6*	10
Level 4	660	577	18	7	11	85	--	2
Level 5	116	147	18	--	--	19	--	--
Level 6	58	87	16	6	11	13	5	--
Total	58	87	16	17	13	5
Theoretical Saturation
%	95%	91.2%	91.4%	92.8%	76.9%	--
Articles used	15	11	7	11	10	5
Codification
Articles used	20	20	16	16	13	5
Segments Identified	61	91	93	48	13	5
Segments Identified	46	42	71	42	10	--
Categorization
Categories created	Human	Social	Intellectual	Natural		Financial	Manufactured
	People	People	People	Intraorganizational Aspects		People & Networks	--
	Organizational Aspects	Organizational Aspects	Organizational Aspects	Intraorganizational Aspects		Financing source	--
	Relational Aspects	Structural Aspects	Relational Aspects	Environmental Governance		Culture & Innovation	--
	Knowledge & Innovation	Culture	Procedural Aspects	Natural Resource Management			--
	Knowledge & Innovation	Culture	Knowledge	Natural Resource Management			--

Objectives	Which alternatives are priorities for building a public governance model?
Criteria	Participative Management	Value Creation		Political Efficiency	Organizational Sustainability
Alternatives (Categories created)	Human	Social	Intellectual	Natural	Financial
	People	People	People	Intraorganizational Aspects	People & Networks
	Organizational Aspects	Organizational Aspects	Organizational Aspects		Financing source
	Relational Aspects	Relational Aspects	Relational Aspects	Environmental Governance	Culture & Innovation
	Knowledge & Innovation	Culture	Procedural Aspects	Natural Resource Management
	Knowledge

Criteria	Description	Main References
Public Value Creation	Coming from the Public Value Theory, a concept that shifts the focus from efficiency to management effectiveness.	Osborne (2006Osborne, S. P. (2006). The new public governance. Public Management Review, 8(3), 377-387. https://doi.org/10.1080/14719030600853022 https://doi.org/10.1080/1471903060085302... ); O’Flynn (2007O’Flynn, J. (2007). From new public management to public value: Paradigmatic change and managerial implications. The Australian Journal of Public Administration, 66(3), 353-366. https://doi.org/10.1111/j.1467-8500.2007.00545.x https://doi.org/10.1111/j.1467-8500.2007... ); Cordella & Bonina (2012Cordella, A., & Bonina, C. M. (2012). A public value perspective for ICT enabled public sector reforms: A theoretical reflection. Government Information Quarterly, 29(4), 512-520. https://doi.org/10.1016/j.giq.2012.03.004 https://doi.org/10.1016/j.giq.2012.03.00... ); Bryson et al., 2014Bryson, J. M., Crosby, B. C., & Bloomberg, L. (2014). Public value governance: Moving beyond traditional public administration and the new public management. Public Administration Review, 74(4), 445-456. https://doi.org/10.1111/puar.12238 https://doi.org/10.1111/puar.12238... ; Osborne et al., 2016Osborne, S. P., Radnor, Z., & Strokosch, K. (2016). Co-production and the co-creation of value in public services: A suitable case for treatment? Public Management Review, 18(5), 639-653. https://doi.org/10.1080/14719037.2015.1111927 https://doi.org/10.1080/14719037.2015.11... ; Kim, 2020Kim, Y. (2020). Searching for newness in management paradigms: An analysis of intellectual history in US Public Administration. The American Review of Public Administration, 51(2). https://doi.org/10.1177/0275074020956678 https://doi.org/10.1177/0275074020956678...
Participative Management	Based on network management, co-production, flexibility in the use of management tools, relational contracts.	Osborne (2006Osborne, S. P. (2006). The new public governance. Public Management Review, 8(3), 377-387. https://doi.org/10.1080/14719030600853022 https://doi.org/10.1080/1471903060085302... ); Santos (2016Santos, P. R. (2016). Inovações participativas, diálogo social e construção de consensos. Revista de Administração Pública, 50(3), 501-511. https://doi.org/10.1590/0034-7612147073 https://doi.org/10.1590/0034-7612147073... )
Political Efficiency	Emphasizing the coordinating role of the interests of the actors participating in the organization's activities.	Osborne (2006Osborne, S. P. (2006). The new public governance. Public Management Review, 8(3), 377-387. https://doi.org/10.1080/14719030600853022 https://doi.org/10.1080/1471903060085302... ); O’Flynn (2007O’Flynn, J. (2007). From new public management to public value: Paradigmatic change and managerial implications. The Australian Journal of Public Administration, 66(3), 353-366. https://doi.org/10.1111/j.1467-8500.2007.00545.x https://doi.org/10.1111/j.1467-8500.2007... ); Cordella & Bonina (2012Cordella, A., & Bonina, C. M. (2012). A public value perspective for ICT enabled public sector reforms: A theoretical reflection. Government Information Quarterly, 29(4), 512-520. https://doi.org/10.1016/j.giq.2012.03.004 https://doi.org/10.1016/j.giq.2012.03.00... ); Bryson et al., 2014Bryson, J. M., Crosby, B. C., & Bloomberg, L. (2014). Public value governance: Moving beyond traditional public administration and the new public management. Public Administration Review, 74(4), 445-456. https://doi.org/10.1111/puar.12238 https://doi.org/10.1111/puar.12238... ; Osborne et al., 2016Osborne, S. P., Radnor, Z., & Strokosch, K. (2016). Co-production and the co-creation of value in public services: A suitable case for treatment? Public Management Review, 18(5), 639-653. https://doi.org/10.1080/14719037.2015.1111927 https://doi.org/10.1080/14719037.2015.11... ; Kim, 2020Kim, Y. (2020). Searching for newness in management paradigms: An analysis of intellectual history in US Public Administration. The American Review of Public Administration, 51(2). https://doi.org/10.1177/0275074020956678 https://doi.org/10.1177/0275074020956678...
Organizational Sustainability	More procedural elements related to the perpetuity of organizations - long-term vision and sustainability.	Brito & Brito (2012Brito, R. P. D., & Brito, L. A. L. (2012). Ventaja competitiva, creación de valor y sus efectos sobre el desempeño. Revista de Administração de Empresas, 52(1), 70-84. https://doi.org/10.1590/S0034-75902012000100006 https://doi.org/10.1590/S0034-7590201200... ); Osborne (2006Osborne, S. P. (2006). The new public governance. Public Management Review, 8(3), 377-387. https://doi.org/10.1080/14719030600853022 https://doi.org/10.1080/1471903060085302... , 2008Osborne, S. P. (2008). Ten years of public management review. Public Management Review, 10(4), 451-452. https://doi.org/10.1080/14719030802263814 https://doi.org/10.1080/1471903080226381... , 2017Osborne, S. P. (2017). Public management research over the decades: What are we writing about. Public Management Review, 19(2), 109-113. https://doi.org/10.1080/14719037.2016.1252142 https://doi.org/10.1080/14719037.2016.12... )

Dimensions (IR Capitals)	Post (Brazil)	Function	Military Organization
Humana	CF	Head of the Officer Distribution Division	Navy Corps Personnel Command (CPESFN)
Humana	CMG	Planning	Directorate of Military Personnel of the Navy (DPMM)
Social	CF	Director	Distribution Center and Customs Operations of the Navy (CDAM)
Intellectual	CC	Advisor to the Council for Knowledge Management in the Brazilian Navy	Directorate of Navy Administration (DAdM)
Natural	CMG	Director	Navy Fuel Depot (DepCMRJ)
Financial	CF	Head of the Master Plan and Credit Operations Department	Navy Budget Management Board (DGOM)
Financial	CF	Master Plan Advisor	Navy Corps Material Command (CMatFN)

Criteria	Human Dimension				Social Dimension		Intellectual Dimension		Natural Dimension		Financial Dimension
Criteria	Preference		Preference		Preference		Preference		Preference		Preference		Preference
Value Creation	69%			31%		6%		11%		48%		45%		56%
Participative Management	18%			32%		28%		44%		28%		5%		28%
Political Efficiency	9%			32%		52%		35%		15%		9%		11%
Organizational Sustainability	4%			4%		14%		9%		9%		41%		5%
Alternatives	SCORE	%	SCORE	%	SCORE	%	SCORE	%	SCORE	%	SCORE	%	SCORE	%
People	100	57%	100	57%	62.16	29%	95.4	33%	-	-	-	-	-	-
Organizational Aspects	26.63	15%	28.37	16%	32,18	15%	24.77	8%	-	-	-	-	-	-
Relational and ethical aspects	39.88	23%	44.32	25%	-	-	76.42	26%	-	-	-	-	-	-
Knowledge & Innovation	8.4	5%	3.17	2%	-	-	74.25	25%	-	-	-	-	-	-
Structural Aspects	-	-	-	-	21.31	0.1	-	-	-	-	-	-	-	-
Culture	-	-	-	-	100	0.46	-	-	-	-	-	-	-	-
Procedural Aspects	-	-	-	-	-	-	23.52	8%	-	-	-	-	-	-
Environmental Governance	-	-	-	-	-	-	-	-	100	65%	-	-	-	-
Intraorganizational Aspects	-	-	-	-	-	-	-	-	40.57	26%	-	-	-	-
Natural resource management	-	-	-	-	-	-	-	-	13.78	9%	-	-	-	-
People and networks	-	-	-	-	-	-	-	-	-	-	99.99	56%	68.19	45%
Culture and Innovation	-	-	-	-	-	-	-	-	-	-	54.15	31%	61.53	41%
Financing Source	-	-	-	-	-	-	-	-	-	-	23.21	13%	20.96	14%
TOTAL	174.91	100%	175.86	100%	215.65	100%	294.36	100%	154.35	100%	177.35	100%	150.68	100%

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