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Democratic Transparency Pacts on Defense: Assessing Change in Civilian Access to Military Information in Brazil and Mexico

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Democratic Transparency Pacts on Defense: Assessing Change in Civilian Access to Military Information in Brazil and Mexico FUNDAÇÃO GETÚLIO VARGAS ESCOLA BRASILEIRA DE ADMINISTRAÇÃO PÚBLICA E DE EMPRESAS Democratic Transparency Pacts on Defense: Assessing change in civilian access to military information in Brazil and Mexico. Pactos Democráticos de Transparência em Defesa: Avaliando as mudanças no acesso de civis a informações militares no Brasil e no México. Pactos Democráticos de Transparencia en Defensa: Evaluando los cambios en el acceso de civiles a informaciones militares en Brasil y en México. Karina Furtado Rodrigues Tese de doutorado submetida à Escola Brasileira de Administração Pública e de Empresas (EBAPE), para o Curso de Doutorado em Administração. Orientação: Prof. Octavio Amorim Neto Rio de Janeiro – RJ Junho de 2017 1 Ficha catalográfica elaborada pela Biblioteca Mario Henrique Simonsen/FGV Rodrigues, Karina Furtado Democratic transparency pacts on defense: assessing change in civilian access to military information in Brazil and Mexico / Karina Furtado Rodrigues. – 2017. 216 f. Tese (doutorado) - Escola Brasileira de Administração Pública e de Empresas, Centro de Formação Acadêmica e Pesquisa. Orientador: Octavio Amorim Neto. Inclui bibliografia. 1. Relações entre civis e militares. 2. Desenvolvimento organizacional. 3. Transparência na administração pública. I. Amorim Neto, Octavio, 1964-. II. Escola Brasileira de Administração Pública e de Empresas. Centro de Formação Acadêmica e Pesquisa. III. Título. CDD – 322.5 2 Acknowledgements Undertaking this research was only possible with the Pró-Estratégia scholarship and the PDSE scholarship, both from Brazil’s CAPES – from the Ministry of Education. Seeking knowledge has always been a pleasure to me, and despite the overwhelming exhaustion, I am happy to say that I wrote this thesis until the end and I like the work I have done. In first place, I would like to thank my advisor Prof. Octavio Amorim Neto, whose immense trust and guidance enlightened my thoughts all the way. He certainly is an example and inspiration of a Professor truly devoted to knowledge. Secondly, I would like to thank Prof. Gregory Michener for all the support, opportunities and helpful comments on the final writing stages of this dissertation. He introduced me transparency as a research topic, which has always been to me an honorable mean through which I can serve my country. I am very thankful to my faculty sponsor at the Centre for Iberian and Latin American Studies (CILAS) at UCSD, Prof. David Mares, whose classes and exchanges of idea helped me a lot to settle my theoretical framework; and to my faculty sponsor at Centro de Investigación y Docencia Económicas (CIDE) in Mexico City, Prof. Jorge Alberto Schiavón, who warmly received me and guided me through my field research. My thanks also go to my dear friends who were the intermediate contacts to arrange interviews; my interviewees themselves; Prof. Bruneau and Prof. Florina Matei for the welcoming in a course at the Naval Postgraduate School; to Michael Evans from the National Security Archive, who kindly provided me with data from Mexico; to Celene and Isela for the structural support at EBAPE and CILAS respectively; and to my kind friends who shared with me the topic of civil-military relations under Prof. Octavio’s advisory, especially Igor Acácio, André Anselmo and Gabriel Pimenta, all of them doing their Ph.D.s in the United States, I am really proud to be friends with you all! Finally, and most importantly, I would like to thank my family, Anna (thank you so much Mom!), Francisco and Eliza, who provided me with love, understanding and important resources. Many thanks also to my beloved ones Larissa Mezêncio, Paulo Roberto and Ciro Alves Pinto for being always there for me, believing in me. From my period living in the United States, I am really thankful for the welcoming and friendship of Igor Acácio, Sarah Pollard, Gene Levin, Reema Rajbanshi, Yin Li, Maurício Izumi and Heather Hilt: you were angels in my life. I could not forget to also thank my great companions Fiona and Kiara. 3 Abstract What were the conditions that generated change in the civilian access to military records in Brazil and Mexico? Through these case studies, this dissertation explores in depth how these changes occurred and what were the strategies used by change-agents to promote or refute change. The study presents a discussion about the concept of transparency and how it can be properly applied to restricted documents of the armed forces, using the literature on concept formation. In addition, the theory of Gradual Institutional Changes and process tracing methods in order to undertake the historical analyzes of both cases. In both case studies, I concomitantly analyze the course of civil-military relations and transparency reforms in the XX Century and the beginning of the XXI Century. The study concludes that the changes in Brazil followed a layering pattern predominantly, with a long period of gradual reforms from 1988 to 2011. Mexico in turn presented the same mode of institutional change, nevertheless, political hegemony and the cooptation model of civil-military relations of the country leaded it to less, but more drastic changes. Both countries present many challenges to transparency in defense, which is addressed in the final conclusions. Key-words: institutional change, transparency in defense, civil-military relations 4 Resumo Quais foram as condições políticas que desencadearam mudanças no acesso de civis a documentos e arquivos militares no Brasil e no México? Através destes estudos de caso, este estudo se propõe explorar com profundidade como estas mudanças ocorreram e quais foram as estratégias utilizadas pelos atores para promover mudança ou preservar o status quo. A tese apresenta discussão sobre o conceito de transparência e como pode ser aplicado às forças armadas, utilizando-se de literatura focada na formação de conceitos. Além disto, utilizou-se da teoria de Mudanças Institucionais Graduais e o método do process tracing para análise histórica dos casos do Brasil e México. Em ambos os estudos de caso, analisou-se a trajetória das relações civis-militares conjuntamente às reformas em transparência durante todo o século XX e início do século XXI. O estudo concluiu que as mudanças no Brasil foram predominantemente no formato de camadas (layering), com um longo percurso de reformas graduais desde 1988 até a aprovação da Lei de Acesso à Informação em 2011. Já no México, o tipo de mudança predominante também foi no formato de camadas, contudo, a hegemonia política e o modelo de cooptação das forças armadas pelos governos levaram o país a ter menos mudanças, porém mais profundas. Ambos países enfrentam muitos desafios à transparência em defesa, o que é explorado nas conclusões finais. Palavras-chave: mudança institucional, transparência em defesa, relações civis-militares 5 Resumen ¿Cuáles fueron las condiciones políticas que desencadenaron cambios en el acceso de civiles a documentos y archivos militares en Brasil y México? A través de estos estudios de caso, este estudio se propone explorar con profundidad cómo estos cambios ocurrieron y cuáles fueron las estrategias utilizadas por los actores para promover cambios o preservar el status quo. La tesis presenta una discusión sobre el concepto de transparencia y cómo puede ser aplicado a las fuerzas armadas, utilizando la literatura enfocada en la formación de conceptos. Además, se utilizó la teoría de cambios institucionales graduales y el método del process tracing para el análisis histórico de los casos de Brasil y México. En ambos estudios de caso, se analizó la trayectoria de las relaciones cívico-militares conjuntamente con las reformas en transparencia durante todo el siglo XX e inicio del siglo XXI. El estudio concluyó que los cambios en Brasil fueron predominantemente en el formato de capas, con un largo recorrido de reformas graduales desde 1988 hasta la aprobación de la Ley de Acceso a la Información en 2011. Ya en México, el tipo de cambio predominante también fue en el formato de capas, sin embargo, la hegemonía política y el modelo de cooptación de las fuerzas armadas por los gobiernos llevaron al país a tener menos cambios, pero más profundos. Ambos países enfrentan muchos desafíos a la transparencia en defensa, lo que se explora en las conclusiones finales. Palabras-llave: cambios institucionales graduales, transparencia en defensa, relaciones cívico- militares 6 List of Figures Figure 1 – The Global Right to Information Scores on Exceptions and Refusals.................... 19 Figure 2 – Event and Process Transparency ............................................................................. 42 Figure 3 – The concept of transparency and its levels (without their interrelations) ............... 46 Figure 4 – The concept of transparency: the relationship between constituent elements ........ 47 Figure 5 – Degrees of trivialness within necessary elements. .................................................. 49 Figure 6 – Adjectivation and the four transparencies ............................................................... 50 Figure 7 – Framework of Explaining Modes of Institutional Change ...................................... 62 Figure 8 – Brazil: overview of changes and change-agents ................................................... 133 Figure 9 - Mexico: overview of changes and change-agents ................................................. 190 Figure 10 – Presence of the indicators of ‘transparency of secret records’ (TSR) in Brazil and Mexico (1985 – 2014) ...........................................................................................................
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