The aim is to examine the implementation of the Family Health Program (FHP), as regards access to basic health services under the Unified Health System The study was conducted in 12 pioneer municipalities that implemented the program (1994 ), and analysis was guided by dialectic hermeneutic using the technique of the Collective Subject Discourse. Interviews were conducted with managers (federal, state and municipal), as well as focus groups with users and team members. The political (motivation of managers), technical and financial (expansion of coverage of the PSF and governance) and symbolic (the users' perception on access) dimensions were addressed. Regarding motivation, the possibility of reducing inequalities in access to health services was emphasized. The expansion of the PSF was conceived as a plan for universalization rather than focalization; processes of organization and institutionalization were implemented. However, there were oscillations and hesitation on the political, scientific and technical support to PSF, and also on the permanent education strategies. The financial incentives for its expansion, the speeches of the federal managers contradict those of city managers on the volume of resources and priorities for investment in this strategy. The perception of users is still permeated by functionalist views centered on the disease. As conclusion, we analyze the difficulties in maintaining the strategy and state policy which helps reduce health inequities; we emphasize the need to correct disparities in funding and expanding partnerships in the implementation of the poles of training, training and continuing education.
health inequality; access; primary health services; family health