ORDEM E PROGRESSO: the PROGRAMA DE ACELERAÇÃO DO CRESCIMENTO, DEVELOPMENTALISM and DEMOCRACY in BRAZIL Grant Burrier
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University of New Mexico UNM Digital Repository Political Science ETDs Electronic Theses and Dissertations 9-12-2014 ORDEM E PROGRESSO: THE PROGRAMA DE ACELERAÇÃO DO CRESCIMENTO, DEVELOPMENTALISM AND DEMOCRACY IN BRAZIL Grant Burrier Follow this and additional works at: https://digitalrepository.unm.edu/pols_etds Part of the Political Science Commons Recommended Citation Burrier, Grant. "ORDEM E PROGRESSO: THE PROGRAMA DE ACELERAÇÃO DO CRESCIMENTO, DEVELOPMENTALISM AND DEMOCRACY IN BRAZIL." (2014). https://digitalrepository.unm.edu/pols_etds/14 This Dissertation is brought to you for free and open access by the Electronic Theses and Dissertations at UNM Digital Repository. It has been accepted for inclusion in Political Science ETDs by an authorized administrator of UNM Digital Repository. For more information, please contact [email protected]. Grant Burrier_________________________ Candidate Political Science_______________________ Department This dissertation is approved, and it is acceptable in quality and form for publication Approved by the Dissertation Committee Mark Peceny__________________________ Kathryn Hochstetler_____________________ Juan Pablo Micozzi_____________________ William Stanley________________________ ii ORDEM E PROGRESSO: THE PROGRAMA DE ACELERAÇÃO DO CRESCIMENTO, DEVELOPMENTALISM AND DEMOCRACY IN BRAZIL by GRANT BURRIER B.A. Political Science and Spanish, University of the South (Sewanee), 2005 DISSERTATION Submitted in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy Political Science The University of New Mexico Albuquerque, New Mexico July 2014 iii DEDICATION To Thomas Dean Spaccarelli iv ACKNOWLEDGEMENTS This dissertation was a long project in the making and I could not have finished it without love and support from several key people. In Brazil, David Fleischer, Rebecca Abers and their colleagues at the Instituto de Ciência Política in the Universidade de Brasília helped facilitate field research and provide wonderful lodging in the Colina. I would like to thank all my interview subjects who took time from their busy schedules to patiently answer my questions. I would also like to thank Ricardo Maia, Tati Caminhante, Berta Herrera, Monica Martinez, Juci Ferreira, Júlio Pereira, Moises, and Philipp Ehrle for making my time in Brasília a distinct pleasure. At UNM, I would like to express sincere gratitude to the Latin American Iberian Institute. By providing a PhD fellowship and two FRG grants, the Institute single-handedly turned my research proposal into a concrete reality. The Institute is an absolute asset to the University and staffed with some of the most considerate and helpful people I know. While many in the department of political science have proffered useful advice. I would like to explicitly thank Mark Peceny, Kathryn Hochstetler, and Juan Pablo Micozzi. Despite professional opportunities that took them from the department, each member spent countless hours reading over proposals and drafts. I am indebted to your advice and I have been fortunate to have you as mentors. I would like to thank Ron Nikora, Phil Hultquist, Yann Kerevel, Lisa Bryant, Alex Adams, and Jess Jones for being fantastic friends. Each of you was a great sounding board that inspired new projects and helped refine ideas. I cannot wait for our next beer and political discussion. Mike Wolff and Ben Waddell have been absolute brothers and their complete love for Latin America is a continuing source of inspiration for me. I eagerly await our next projects, collaborations, and retreats! v Dissertations are not facile endeavors. First, they are the culmination of decades of work and experience. I would not be here today without the wonderful teaching and friendship of Patrick Smith and Charles Brockett. Additionally, several people have kept me motivated and proffered continual encouragement and good cheer. I would like to thank Ben Acree, Sanford McGee, Tyler Bodine, Laurel Coffey (and L.T.), Kevin and Rachel Hobbs, and my wonderful family. Brooks Ingram singlehandedly helped me stay positive and I cannot wait for our next stage together in Boston. Finally, I would like to thank Thomas Spaccarelli. I have become the scholar and teacher I am today because of your fantastic example. You define the essential attributes of a teacher and you have been the best mentor a student could seek. Most importantly, you have become my best friend and I know our overseas adventures (and study abroad programs) will continue to push me to be the best scholar, teacher, and human I can be. Author in front of bulb turbine (Jirau Dam) vi ORDEM E PROGRESSO: THE PROGRAMA DE ACELERAÇÃO DO CRESCIMENTO, DEVELOPMENTALISM AND DEMOCRACY IN BRAZIL by GRANT BURRIER B.A. Political Science and Spanish, University of the South (Sewanee), 2005 Ph.D. Political Science, University of New Mexico, 2014 ABSTRACT The dissertation analyzes the developmental state and public policy in Brazil, exploring the extent to which the policymaking process is rationalized or politicized. Specifically, I look at these issues in the multi-year infrastructure project, the Programa de Aceleração do Crescimento (PAC). Brazil has a long history of clientelism and pork barrel spending. At the same time, the rise of developmentalist leaders has undermined these historical legacies and encouraged the implementation of more rationalized economic policies. In order to function properly, a developmental state requires rationalization and most scholars have assumed that authoritarian, one party states would provide the necessary insulation. The democratic nature of contemporary Brazil means leaders and policymakers face greater scrutiny and embed themselves in civil society in a way that undermines traditional understandings of the developmental state. I provide a history of developmentalism in Brazil, identifying crucial actors and critical junctures that have vii enabled or constrained developmental policy. I explore how infrastructure projects are allocated in a way that responds to economic imperatives. At the same time, politics matter. Democratic institutions make social and economic concerns more salient to policymakers and constrain their overall autonomy. viii TABLE OF CONTENTS LIST OF TABLES ………………………………………………………………………….…..vi CHAPTER 1: INTRODUCTION……………………………………………………………….1 The PAC and the Developmental State in Brazil 1 Key Points 4 Outline of the Manuscript 10 Conclusion 18 CHAPTER 2: DEMOCRACY & DEVELOPMENTALISM: THEORETICAL AND HISTORICAL CONSIDERATIONS…………………………………………………………19 Introduction 19 What is Developmentalism? 21 How is the Developmental State Structured? 24 Developmental Policy and Bureaucratic Reform in Brazil 32 Developmentalism and Democracy 56 CHAPTER 3: RATIONALIZED AND POLITICIZED: THE PROGRAMA DE ACELERAÇÃO DO CRESCIMENTO (PAC)……………………………………………….62 Introduction 62 What Constitutes Infrastructure? 64 The History of the PAC 65 Is the PAC Politicized or Rationalized? 79 Data Analysis 91 Conclusion 108 CHAPTER 4: ENGAGEMENT OR EVASION? THE DEVELOPMENTAL STATE, CIVIL SOCIETY, AND HYDROELECTRIC DAM CONSTRUCTION ………………..110 Introduction 110 Developmentalism and Civil Society 114 A General Overview of Hydropower in Brazil 117 Hydroelectric Dams in the Authoritarian Developmental State (1964-1984) 127 Hydroelectric Dams in the Democratic Developmental State (2003-) 141 Summary of Case Studies 158 Conclusion 162 CHAPTER 5: CONCLUSION………………………………………………………………..165 APPENDIX…………………………………………………………………………………….179 REFERENCES………...............................................................................................................181 LIST OF INTERVIEWS……………………………………………………………………...201 ix LIST OF TABLES AND PICTURES Table 3.1: Infrastructure Investments in Brazil (1971-2006) 65 Table 3.2: Projected PAC Spending By Category 72 Table 3.3: Municipal Characteristics 89 Table 3.4: Logistic Regression for PAC Non-Funding 97 Table 3.5 Multivariate Regression of PAC Funding 99 Table 3.6: Two-Way Scatterplot: PAC Funding and Population 101 Table 3.7: PAC Funding and Core Voting District 104 Table 3.8: PAC Funding and Municipal Age 106 Table 4.1: Large Dam Construction by Year 120 Table 4.2: Select Data on Brazilian Hydroelectric Power 123 Table 4.3: Summary Statistics of Hydroelectric Case Studies 157 Table 4.4: Environmental Efficiency of Large Dams (>100MW) 161 Table 5.1: PAC2 Estimated Social Infrastructure Expenditures 173 Picture 4.1 Construction Site (Santo Antônio) 152 Picture 4.2 Construction Site (Jirau) 153 Picture 4.3 Fish Ladder (Jirau) 153 Picture 5.1 Economist Covers 165 Picture 5.2 Future Minha Casa, Minha Vida Neighborhood (Santarém, PA) 174 Picture 5.3 Teleférico in Complexo de Alemão (Rio de Janeiro, RJ) 175 1 1. Introduction: In 2014, Brazil will host the largest international sporting event in the world for the second time, the FIFA World Cup and this time the tournament will be different. Back in 1950, Brazil hosted the Cup and matches were confined to six cities: Rio de Janeiro, São Paulo, Belo Horizonte, Curitiba, Porto Alegre, and Recife. Of the former host cities, only Recife is located outside the more industrialized south and southeast regions of Brazil. Recent World Cups in other countries have been hosted in eight or ten cities, yet for this World Cup, Brazil was allowed to spread the tournament across twelve cities. In addition to the six previous host cities, the 2014 Cup will be featured in Manuas, Fortaleza, Natal, Cuiabá, Salvador, and Brasília. In conversations with Guilherme Ramalho, the General Coordinator of World