How can activist bureaucrats unexpectedly influence policy outcomes? What strategies do these actors adopt in order to defend and implement public policies in institutional settings unfavorable to their ideas? How do the individual trajectories of activist bureaucrats influence their strategies and repertoires of action? Drawing from the literature on institutional activism, this article shows how bureaucrats worked as activists to create and institutionalize participatory arenas in slum upgrading projects, within an institutional setting adverse to popular participation. Our research was carried out through interviews with bureaucrats and local community actors, as well as participant observation. The main results of our study were: the identification of four distinct profiles of bureaucrats and four main activist strategies used by them, as well as the identification of bureaucrats’ profiles more associated with the adoption of certain practices - so that specific profiles of bureaucrats have influenced the policy-making process in different ways, according to their relational skills, previous trajectories, and worldviews. These findings suggest that the individual characteristics of bureaucrats are important to understanding the variations in bureaucrats’ activist strategies within the state, as well as how bureaucrats can influence policymaking in heterogeneous ways.
Activism; bureaucracy; policy entrepreneurship; participation; urban policy