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Social Participation in Federal Government’S Planning Cycle (BR0097)



Action Plan: Brazil National Action Plan 2016-2018

Action Plan Cycle: 2016

Status: Inactive


Lead Institution: Ministry of Planning, Development and Management

Support Institution(s): Ministry of Education Government Secretariat Institute of Applied Economic Research (IPEA), Institute for Socioeconomic Studies (Inesc) Urban Network of Sociocultural Actions Open Knowledge Brazil Wheels of Peace

Policy Areas

E-Government, Open Regulations, Public Participation, Sustainable Development Goals

IRM Review

IRM Report: Brazil Mid-Term Report 2016-2018

Starred: No

Early Results: Outstanding Outstanding

Design i

Verifiable: Yes

Relevant to OGP Values: Civic Participation , Technology

Potential Impact:

Implementation i



Lead government institution Ministry of Planning, Development and Management Civil servant in charge for implementing at lead government institution Roseli Faria Position - Department General Coordinator/Monitoring and Evaluation Coordination E-mail Telephone 55 61 20204546 Other involved actors Government Ministry of Education Government Secretariat Institute of Applied Economic Research (IPEA) Civil society, private sector, group of workers and multilateral actors Institute for Socioeconomic Studies (Inesc) Urban Network of Sociocultural Actions Open Knowledge Brazil Wheels of Peace Status quo or problem/issue to be addressed The need of increasing social participation and also its effective approach, at the pluriannual plan (PPA) Main objective To improve and consolidate methods of social participation for the PPA formulation and management phases Commitment short description PPA participative monitoring, especially along with the transversal agenda, and also within the sustainable development goals (ODS), through digital tools OGP Challenge addressed by the Commitment Improvement of Public Services Increasing public integrity More effective public resources management Corporative accountability increment Commitment relevance Relevant for increasing PPA monitoring social participation Goal Greater social participation throughout PPA formulating and managing phases

IRM Midterm Status Summary

14. Social Participation in Federal Government’s Planning Cycle

Commitment Text:

Maximize social participation on the Pluriannual Plan through the Intercouncil Forum

The commitment seeks alternatives to broaden social participation and to improve and consolidate methods of social participation for the PPA formulation and management phases, as it is considered the main tool of the Federal Government planning. Therefore, it is intended to make feasible the conduction of a PPA participatory monitoring, focusing on traversal agendas and on targets and Sustainable Development Goals (SDGs), using digital tools.

14.1 –PPA participative monitoring methodology draft formulation, taking into account transversal agendas, and the sustainable development goals (ODS)

14.2 – Enhancement of digital tools for monitoring the implementation of PPA and ODS goals and objectives

14.3 –Establishing a communication strategy to expand the access/use of digital tools for PPA monitoring

14.4 – Presenting a PPA implementation accountability by means of Intercouncil Forum (1 per year)

14.5 – Presenting a PPA implementation accountability by means of digital thematic public audiences (2 per year)

14.6 –II Intercouncil Forum Meeting

14.7 – II Digital Public Audiences Round

Responsible institution: Ministry of Planning, Development and Management

Supporting institutions: Ministry of Education, Government Secretariat, Institute of Applied Economic Research (IPEA), Institute for Socioeconomic Studies (Inesc), Urban Network of Sociocultural Actions, Open Knowledge Brazil, Wheels of Peace

Start date: December 2016.. End date: June 2018

Context and Objectives

The Plurennial Plan (PPA) is the main planning tool of the federal government. The commitment aims to improve and consolidate methods of social participation in the PPA. It also aims to maximize social participation during the implementation and monitoring phases of the PPA. To do this, the government will use Intercouncil Forum meetings and online public forums.

A four-year tool, the PPA outlines goals, targets, and strategies for the allocation of public resources, such as budgetary expenses. The government attempted to include civic participation in the PPA at the federal level in 2011. However, both the government and civil society felt the attempt achieved limited success.[1] The government currently executes the 2016-19 PPA, implemented during the action plan, amid an economic crisis and a reduction of expenses.[2] Therefore, civil society participation in its implementation is perceived as critical.[3]

The commitment has a high level of specificity. Key activities include enhancing digital tools for monitoring the implementation of the PPA and the Sustainable Development Goals, and for monitoring the PPA through the Intercouncil Forum and public feedback. Few details exist about the expected characteristics of the monitoring tools. However, the government specifies that the monitoring methodology will be designed during the implementation of the plan.

The commitment is mainly related to the OGP value of civic participation. It has a minor potential impact, mostly due to the commitment’s focus on preliminary steps and the existence of previous policy programs related to the deliverables (e.g., the PPA apps and the Intercouncil Forum meetings). The commitment does not specify the characteristics of the new monitoring tools. Therefore, it is not possible to determine, at the outset of the action plan, if the new participation mechanisms will be more successful than previous efforts.


The commitment has seen limited completion.

The government has drafted the monitoring methodology (milestone 14.1). It developed the draft in partnership with civil society during two meetings: one in April 2017 and another in May 2017.[4] An interview with a civil society representative (Neide de Sordi) confirmed this information. The methodology includes monitoring the Sustainable Development Goals (SDGs) and the initiatives prioritized by councils involved in the Plurennial Plan (PPA). The draft was also open for public consultation at the portal.[5]

According to the August 2017 monitoring report, the digital monitoring tools (milestone 14.2) are under development. They include the update of two tools previously used to monitor the PPA: the PPA Mais Brasil[6] and the Integrated Planning and Budgeting System (SIOP). The PPA Mais Brasil[7] (previously PPA Cidadão) allows users to individualize their tracked programs and SDGs at the PPA. The SIOP allows users to monitor budgetary information.[8]

The government has begun establishing a communication strategy to expand access to and use of digital tools for PPA monitoring (milestone 14.3). An interviewed civil society representative (Neide de Sordi) confirmed this. The government plans to launch the tools at the Intercouncil Forum in early 2018.

The remaining milestones have not been initiated.

The action plan set a completion date of October 2017 for milestones 14.1, 14.2, and 14.4, which puts the commitment behind schedule.

Early Results (if any)

Due to the limited progress, and because the monitoring tools are not yet in use, it is too early to analyze commitment's results.

Next Steps

The IRM researcher recommends completing the commitment. The commitment constitutes a positive attempt to reach a broader range of contributors to comment on the PPA by creating monitoring tools that can be used by anyone. The commitment aims to include members from subnational partners and academia, who, in cities and states, also can engage in and monitor their local Plurennial Plans (PPAs). As next steps, the government should engage more civil society organizations to participate in the process. The PPA is a complex process that requires specialized partners from civil society to properly engage. Civil society organizations with expertise on the topic have engaged in previous PPA consultations. These organizations include the Social Observatory Network (Rede de Observatório Social), Institute for Socioeconomic Studies, and Mata Atlântica.

According to the International Budget Partnership (IBP), the Brazilian government should prioritize piloting mechanisms for the public to comment on budget matters during the budget’s implementation (such as through social audits). The organization also recommends holding legislative hearings on the audit report. IBP suggests the government provide the public with a written record of inputs received during the auditing process and how they influenced the outcome.[9]

[2] 'Dilma Sanctioned Pluriannual Plan from 2016 to 2019 with Vetoes,' Agencia Brasil, 14 January 2016,

[3] 'PPA 2016–2019: Resumption of Social Participation?' INESC, 3 March 2015,

[4] Ministerio da Transparencia, Fiscalizacao e Controladoria-Geral da Uniao, Relatorio de Status de Execucao de Compromisso,

[7] Ibid.

[8] Ministerio da Transparencia, Fiscalizacao e Controladoria-Geral da Uniao, Relatorio de Status de Execucao de Compromisso.

[9] 'Open Budget Survey 2017, Brazil,' International Budget Partnership,


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  5. Transport Data

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  6. Transparency and Oversight in Infrastructure Repair Processes

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  7. Increase Participation in Legislative Process

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  8. Urban and Rural Land Registers

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  10. Water Resource Management

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  15. Access to Information Policy in the Federal Government – Requesters’ Personal Information Safeguard

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  27. Mapping and Participatory Management for Culture

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