Acessibilidade / Reportar erro

Findings of evaluative research on the Brazilian Food and Nutritional Security System: A scoping review from 2006 to 2022

Resultados de pesquisas avaliativas sobre o Sistema Nacional de Segurança Alimentar e Nutricional: uma revisão de escopo de 2006 a 2022

ABSTRACT

Objective

This study analyzes the results of evaluative research on the Brazilian Food and Nutritional Security System.

Method

Was conducted a scoping review by collecting information from four bibliographic databases: Scientific Electronic Library Online (SciELO), Latin American and Caribbean Literature in Health Sciences (LILACS), National Library of Medicine (MEDLINE/PubMed), and Web of Science. Three researchers systematically selected the studies and extracted data. The researchers categorized the studies included according to an evaluative approach to the topics of financing, social participation, decentralization and government management, and monitoring and evaluation.

Results

Were found 1,987 references, 17 of which were selected for analysis. It is presented the evaluation of the System and of its public policy as a developing field permeated by different types of research and methods and which needs to be better qualified in relation to its theoretical and methodological approaches. The results and recommendations of the studies analyzed point out important elements to guide decision-making in relation to the System and its public policy.

Conclusion

In view of the recent weakening of the governance structure of this public policy at a national level, this study contributes to the debate on food and nutritional security and its reintegration into the Brazilian governmental agenda.

Keywords:
Brazil; Evaluation study; Food security; Public policy; Review

RESUMO

Objetivo

Este estudo analisou os resultados de pesquisas avaliativas sobre o Sistema Nacional de Segurança Alimentar e Nutricional no Brasil.

Método

Foi realizado uma revisão a partir da coleta de informações em quatro bancos de dados bibliográficos: Scientific Electronic Library Online (SciELO), Latin American and Caribbean Literature in Health Sciences (LILACS), National Library of Medicine (MEDLINE/PubMed), e Web of Science. Três pesquisadores selecionaram sistematicamente os estudos e extraíram os dados. Os pesquisadores categorizaram os estudos incluídos de acordo com uma abordagem avaliativa sobre os temas de financiamento, participação social e controle, descentralização e gestão governamental, e monitoramento e avaliação.

Resultado

Foram encontradas 1.987 referências, das quais 17 foram selecionadas para análise. Apresenta-se a avaliação do Sistema e de sua política pública como um campo em desenvolvimento permeado por diferentes tipos de pesquisa e métodos, e que precisa ser mais bem qualificado em relação às suas abordagens teóricas e metodológicas. Os resultados e recomendações dos estudos analisados apontam elementos importantes para orientar a tomada de decisão em relação ao Sistema e sua política pública.

Conclusão

Diante da recente fragilização da estrutura de governança dessa política pública em nível nacional, este estudo contribui para o debate sobre segurança alimentar e nutricional e sua reinserção na agenda governamental brasileira.

Keywords:
Brasil; Estudo de avaliação; Segurança alimentar; Política pública; Revisão

INTRODUCTION

Food is universally recognized as a fundamental human right, encompassing continuous physical and economic access to safe, nutritious, and sufficient food that meets dietary needs and preferences for an active and healthy life [11. De Carvalho CA, Viola PCAAF, Sperandio N. How is Brazil facing the crisis of Food and Nutrition Security during the COVID-19 pandemic? Public Health Nutrition. 2021;24(3):561-64. https://doi.org/10.1017/S1368980020003973
https://doi.org/10.1017/S136898002000397...
]. The concept of food security emerged during the 1996 World Food Summit, where global leaders pledged to promote food security for all and eradicate hunger through the formulation and implementation of effective food security policies [22. Aliaga MA, Chaves-dos-Santos SM. Food and nutrition security public initiatives from a human and socioeconomic development perspective: mapping experiences within the 1996 World Food Summit signatories. Soc Sci Med. 2014;104:74-9. https://doi.org/10.1016/j.socscimed.2013.12.025
https://doi.org/10.1016/j.socscimed.2013...
]. However, despite nearly three decades since the World Food Summit, the prevalence of undernourishment remains a pressing issue, affecting approximately 828 million people [33. Food and Agriculture Organization of the United Nations, International Fund for Agricultural Development, United Nations Children’s Fund, World Food Programme, World Health Organization. The State of Food Security and Nutrition in the World 2020: Transforming food systems for affordable healthy diets. Rome: FAO; IFAD; UNICEF; WFP; WHO; 2022. https://doi.org/10.4060/cc0639en
https://doi.org/10.4060/cc0639en ...
]. The COVID-19 pandemic, which emerged in 2020, has further exacerbated food insecurity, deepening the persistent effects of the global food crisis experienced in 2007-2008 [11. De Carvalho CA, Viola PCAAF, Sperandio N. How is Brazil facing the crisis of Food and Nutrition Security during the COVID-19 pandemic? Public Health Nutrition. 2021;24(3):561-64. https://doi.org/10.1017/S1368980020003973
https://doi.org/10.1017/S136898002000397...
,44. Niles MT, Bertmann F, Belarmino EH, Wentworth T, Biehl E, Neff R. The early food insecurity impacts of COVID-19. Nutrients. 2020;12(7):2096. https://doi.org/10.3390/nu12072096
https://doi.org/10.3390/nu12072096 ...
]. This complex scenario presents a global syndemic characterized not only by malnutrition and obesity but also by the intersecting challenges of climate change [55. Swinburn BA, Kraak VI, Allender S, Atkins VJ, Baker PI, Bogard JR, et al. The Global Syndemic of Obesity, Undernutrition, and Climate Change: The Lancet Commission report. Lancet. 2019;393(10173):791-846. https://doi.org/10.1016/s0140-6736(18)32822-8
https://doi.org/10.1016/s0140-6736(18)32...
]. As such, the importance of robust food security policies becomes evident, necessitating comprehensive evaluations to enhance decision-making processes and achieve more favorable outcomes.

In 2006, Brazil introduced its Sistema Nacional de Segurança Alimentar e Nutricional (SISAN, Brazilian Food and Nutritional Security System) with the primary objective of formulating and implementing public policies to safeguard the human right to adequate food, employing an intersectoral governance structure that incorporates organized civil society participation [66. Vasconcelos FAG, Machado ML, Medeiros MAT, Neves JA, Recine E, Pasquim EM. Public policies of food and nutrition in Brazil: From Lula to Temer. Rev Nutr. 2019;32:e180161. https://doi.org/10.1590/1678-9865201932e180161
https://doi.org/10.1590/1678-9865201932e...
]. However, the country has faced significant obstacles since 2016, including international economic crises, political instability, and a governmental agenda marked by fiscal austerity, which have disrupted the stability of the SISAN and food security policies [77. Neves JA, Machado ML, Oliveira LDA, Moreno YMF, Medeiros MAT, Vasconcelos FAG. Unemployment, poverty, and hunger in Brazil in Covid-19 pandemic times. Rev Nutr . 2021;34:e200170. https://doi.org/10.1590/1678-9865202134e200170
https://doi.org/10.1590/1678-9865202134e...
]. Consequently, this critical situation has contributed to alarming statistics observed in 2022, amid the COVID-19 pandemic, where 57.8% of Brazilians experienced food insecurity, with 33.1 million individuals enduring hunger [88. Rede Brasileira de Pesquisa em Soberania e Segurança Alimentar e Nutricional. II Inquérito Nacional sobre Insegurança Alimentar no Contexto da Pandemia da COVID-19 no Brasil [Internet]. São Paulo: Rede PENSSAN; 2022 [cited 2024 Jan 8]. Available from: https://olheparaafome.com.br/wp-content/uploads/2022/06/Relatorio-II-VIGISAN-2022.pdf
https://olheparaafome.com.br/wp-content/...
].

Considering this context, our study conducted a comprehensive analysis of research findings that evaluated the SISAN from its inception until 2022. The aim was to make a substantial contribution to the governance and decision-making processes related to this system during a pivotal phase of reinvigorating of the governmental agenda for food security in Brazil.

METHODS

This study follows a scoping review methodology, incorporating the concepts and procedures outlined by Arksey and O'Malley [99. Arksey H, O'Malley L. Scoping studies: towards a methodological framework. Int J Soc Res Methodol. 2005;8(1):19-32. https://doi.org/10.1080/1364557032000119616
https://doi.org/10.1080/1364557032000119...
], who conducted a seminal study on this type of analysis, as well as the guidelines presented by Munn et al. [1010. Munn Z, Peters MDJ, Stern C, Tufanaru C, McArthur A, Aromataris E. Systematic review or scoping review? Guidance for authors when choosing between a systematic or scoping review approach. BMC Med Res Methodol. 2018;18(143):1-7. https://doi.org/10.1186/s12874-018-0611-x
https://doi.org/10.1186/s12874-018-0611-...
], who provided systematic guidelines for conducting scoping reviews. A scoping review is particularly suitable for studies aiming to identify the available evidence within a specific field, evaluate the research methodologies employed, and identify knowledge gaps [99. Arksey H, O'Malley L. Scoping studies: towards a methodological framework. Int J Soc Res Methodol. 2005;8(1):19-32. https://doi.org/10.1080/1364557032000119616
https://doi.org/10.1080/1364557032000119...
,1010. Munn Z, Peters MDJ, Stern C, Tufanaru C, McArthur A, Aromataris E. Systematic review or scoping review? Guidance for authors when choosing between a systematic or scoping review approach. BMC Med Res Methodol. 2018;18(143):1-7. https://doi.org/10.1186/s12874-018-0611-x
https://doi.org/10.1186/s12874-018-0611-...
]. Consequently, this review method aligns well with the objectives of our study.

To ensure rigor and accuracy, three independent researchers, previously trained in the review process, conducted the search and selection of references based on a predetermined and mutually agreed protocol. This protocol adhered to the guidelines outlined in the PRISMA Extension (Preferred Reporting Items for Systematic Reviews and Meta-Analyses) specifically designed for scoping reviews (PRISMA-ScR) [1111. Tricco AC, Lillie E, Zarin W, O'Brien KK, Colquhoun H, Levac D, et al.PRISMA Extension for Scoping Reviews (PRISMA-ScR): Checklist and Explanation. Ann Intern Med. 2018;169(7):467-73. https://doi.org/10.7326/m18-0850
https://doi.org/10.7326/m18-0850 ...
]. The protocol encompassed various steps, including defining the research question, determining search terms, selecting appropriate bibliographic databases, establishing inclusion and exclusion criteria, and outlining the procedures for reference selection and data extraction.

Research question, search terms, and bibliographic databases

The research question that guided this review was "What are the results indicated by evaluative research on the Brazilian Food and Nutritional Security System?" Based on this question, we identified the key terms to be included in the search strategies in bibliographic databases. Our approach prioritized comprehensive coverage with greater sensitivity and lower specificity, allowing us to gather a large number of references for thorough analysis by the three researchers involved in the selection process.

The search in the bibliographic databases encompassed a combination of Portuguese and English search terms pertaining to evaluation, food security policy, and Brazil. Initially, the three researchers independently suggested terms and identified synonyms using online dictionaries. Subsequently, they conducted searches using terms indexed in the Medical Subject Headings (MeSH) and Health Sciences Descriptors (DeCS) databases. These iterative processes resulted in the identification of twenty-three terms related to evaluation, eighteen terms related to food security policy, and two terms specific to Brazil.

Using these terms, we constructed the search strings and performed searches in the following bibliographic databases: Scientific Electronic Library Online (SciELO), Latin American and Caribbean Literature in Health Sciences (LILACS), National Library of Medicine (MEDLINE/PubMed), and Web of Science (Chart 1). The searches were concluded on May 30, 2023.

Chart 1 -
Expressions used for searches in bibliographic databases.

Inclusion and exclusion criteria, selection of references, and data extraction

We included original empirical scientific studies with data published in English, Portuguese, or Spanish, without restrictions on the publication year or methodology, that focused on evaluating the SISAN or its components during the period from 2006 to 2022. The components of SISAN examined in this study included the Conselho de Segurança Alimentar e Nutricional (CONSEA, Food and Nutrition Security Councils), the Câmaras de Gestão Intersetorial de Segurança Alimentar e Nutricional (CAISAN, Chambers of Intersectoral Management of Food and Nutritional Security), the Food and Nutrition Security Conferences. Additionally, articles that evaluated the Brazilian Policy on Food and Nutritional Security and its management instruments, such as the Food and Nutrition Security Plans, were also included.

The evaluation studies included in this review were those that presented measurements, described strengths and weaknesses, or provided value judgments on various aspects of SISAN and its public policy based on data collection. Additionally, studies that offered recommendations for improving the System were also considered. We excluded duplicate references, that were not scientific articles (such as books, documents, theses, and dissertations), those that were not available in full text, methodological studies, literature reviews, or critical essays that were not directly related to Brazil, studies with an epidemiological focus that solely diagnosed the status of food security or insecurity and its associations, studies that evaluated policies, programs, or sectoral actions related to food security, and studies that did not align with the research objectives.

To access the full text of the articles, we utilized the databases and journals available through the Coordenação de Aperfeiçoamento de Pessoal de Nível Superior (Capes, Coordination for the Improvement of Higher Education Personnel) Journal Portal, using the researcher's university identification. Additionally, we utilized the ResearchGate social network to locate or request the full text of articles. The located references were organized and evaluated in three stages using the EndNote© software (Clarivate Analytics), as illustrated in Figure 1.

Figure 1 -
Flowchart of the process of analysis and selection of references located by the search in bibliographic databases.

In the first stage, all reference titles were converted to their English versions to facilitate the automated recognition and exclusion of duplicate references by the software. In the second stage, the three researchers involved in the study selection process reviewed the titles and abstracts of all references. References that met the inclusion criteria, as assessed by at least two researchers, proceeded to the next stage. In the third stage, the included references were thoroughly reviewed by the three researchers through a complete reading of the documents. They reassessed compliance with the inclusion criteria and checked for any exclusion criteria. References that were unanimously indicated for inclusion or exclusion by the researchers were automatically included or excluded. References that showed discrepancies among the researchers were discussed in a meeting until a consensus was reached regarding their inclusion or exclusion.

Information regarding authorship and year of publication, study location and year, objective, methodological aspects, unit of analysis, type of data collected, data collection method, description of evaluation criteria and parameters, discussion of strengths and weaknesses, issuance of value judgments, and recommendations pertaining to the SISAN and the National Policy on Food and Nutrition Security were extracted from the articles and organized using Microsoft Office Excel© software (Microsoft Corporation).

The articles were also categorized based on their evaluation focus. This categorization was conducted inductively at a semantic level following the conceptualization and thematic analysis procedures proposed by Braun and Clarke [1212. Braun V, Clarke V. Using thematic analysis in psychology. Qual Res Psychol. 2006;3(2):77-101. http://dx.doi.org/10.1191/1478088706qp063oa
http://dx.doi.org/10.1191/1478088706qp06...
]. The lead researcher performed a comprehensive reading of all included articles to identify the evaluation topics related to the SISAN. These topics encompassed explicit or surface-level interpretations of the data, without aiming to identify underlying ideas, assumptions, and conceptualizations. The software initially systematized a set of topics and subsequently aggregated them based on similarity, resulting in the following central topics: financing, social participation, decentralization and government management, and monitoring and evaluation.

The synthesis of each article is presented in Table 1, in which the studies are arranged in descending order of the publication year, according to the following information: Authorship and year of publication; Place and year of study; Purpose of the study; Methodological aspects; Unit of analysis; and Data type and form of collection.

Table 1 -
Objectives and methodological aspects of the studies included in the scoping review.

RESULTS

We found 1,987 references and excluded 1,970 articles, resulting in 17 articles in this review (Figure 2).

Figure 2 -
Flowchart of the results found after searching the bibliographic databases.

Among the excluded references, we highlight those with an epidemiological focus referring to the diagnosis of food (in)security and their associations without involving the evaluation of food security policies (n=380), as well as evaluations of programs and sector policies of food security (n=212), with emphasis on the Bolsa Família Program/Emergency Aid (n=103), the National School Meal Program (n=49), and the Food Acquisition Program (n=27). Among the references excluded for not being evaluations or for evaluating other topics or policies (n=662), we highlight the exclusion of 437 studies that referred to food safety and hygiene and of 163 studies that specifically addressed the relationships between agricultural production and food security (Figure 2).

As depicted in Table 1, among the seventeen included articles, eleven were conducted and analyzed using qualitative research methodology, while six employed quantitative research approaches. Seven studies adopted a case study design, five were cross-sectional studies, two were action research projects, and one constituted a longitudinal study that examined resource allocation for food security initiatives between 2004 and 2010. Additionally, one study presented a methodological proposal for evaluating food security plans. In terms of data collection methods, eleven studies relied on documentary analysis, seven conducted interviews, four accessed secondary databases, two employed observation techniques, and one utilized focus groups and concept map construction (Table 1).

Regarding the analyses, the studies employed content analysis, interpretative anthropological analysis, thematic analysis, collective subject discourse, strategic analysis, and descriptive analysis (Table 1). Four studies evaluated aspects of the SISAN and the Brazilian Policy on Food and Nutritional Security at the federal level, while the remaining studies focused on evaluation at subnational levels (Table 1).

Only one study described objective criteria and parameters for assessing value regarding the evaluated object. In the remaining studies, the evaluation took place in a descriptive manner, without explicitly defining criteria and parameters (Table 1). Regarding evaluative approaches, six articles addressed aspects of financing, seven addressed participation and social control, three addressed decentralization and government management, and six addressed monitoring and evaluation (Table 1).

DISCUSSION

In recent decades, considerable resources have been invested in developing approaches and techniques to enhance decision-making in the field of food security [1313. Candel JJL. Diagnosing integrated food security strategies. NJAS. 2018;84:103-13. https://doi.org/10.1016/j.njas.2017.07.001
https://doi.org/10.1016/j.njas.2017.07.0...
]. However, the complex nature of food security policies poses significant challenges for their governance. In this context, the analysis of the evaluative studies found in this scoping review enabled the identification of significant contributions to decision-making regarding aspects of financing, social participation, decentralization and government management, and monitoring and evaluation of the SISAN and the Brazilian Policy on Food and Nutritional Security. We address these contributions in specific sections below.

Financing

A significant shift in financial resources for social policies in Brazil, including the SISAN and the Brazilian Policy on Food and Nutritional Security, occurred from 2015 onwards due to the global economic crisis. This situation was further exacerbated from 2017 onwards with the institutional and democratic rupture resulting from the impeachment of President Dilma Rousseff and the implementation of a conservative and neoliberal agenda during the administrations of Presidents Michel Temer and Jair Bolsonaro [66. Vasconcelos FAG, Machado ML, Medeiros MAT, Neves JA, Recine E, Pasquim EM. Public policies of food and nutrition in Brazil: From Lula to Temer. Rev Nutr. 2019;32:e180161. https://doi.org/10.1590/1678-9865201932e180161
https://doi.org/10.1590/1678-9865201932e...
].

Between 2004 and 2010, federal resources for programs related to food security gradually increased, and by 2014, the majority of states had their own resources to finance this policy. However, in 2017, there was a 76% cut in federal government resources for food security actions compared to 2014. From 2018 onwards, there were cuts of at least 67% in nine programs and goals of the Brazilian Policy on Food and Nutritional Security [66. Vasconcelos FAG, Machado ML, Medeiros MAT, Neves JA, Recine E, Pasquim EM. Public policies of food and nutrition in Brazil: From Lula to Temer. Rev Nutr. 2019;32:e180161. https://doi.org/10.1590/1678-9865201932e180161
https://doi.org/10.1590/1678-9865201932e...
,1414. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50. -1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
].

Studies have indicated that the financing of SISAN and the Brazilian Policy on Food and Nutritional Security faced constraints prior to 2015. These limitations were primarily associated with a decentralization to the subnational level without effective regulation of financing mechanisms and co-responsibility among federal entities (municipalities, states, and the Union). Between 2000 and 2015, there was a downward trend in decentralized resources from the federal government, necessitating increased investments by states and municipalities in food security policies [1414. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50. ]. However, in 2014, only 13.5% of municipalities had their own budget for food security, and less than half of the states allocated resources to CAISAN [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
]. Given the significant socioeconomic disparities among Brazilian municipalities, financial support from the Union and states is crucial for strengthening food security actions, especially in vulnerable municipalities [1717. Palmeira PA, Mattos RA, Salles-Costa R. Food security governance promoted by national government at the local level: a case study in Brazil. Food Sec. 2020;12(1). http://dx.doi.org/10.1007/s12571-019-01000-2
http://dx.doi.org/10.1007/s12571-019-010...
].

Regarding governance at the state and municipal levels and its implications for financing, Medeiros et al. [1818. Medeiros LCD, Calazans DLMS, Pequeno NPF, Bagni UV, Câmara JPT, Silva APG. The food and nutritional safety system as a governance mechanism in the municipal area in Rio Grande do Norte, Brazil. Rev Cienc Plur. 2019;5(2):111-28. https://doi.org/10.21680/2446-7286.2019v5n2ID17729
https://doi.org/10.21680/2446-7286.2019v...
] highlighted that municipal managers are unaware of the available resources for food security actions. At the state level, only 38% of the Food and Nutritional Security Plans mentioned the sources of funding for all established goals, which limits the capacity to implement planned actions [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
]. The lack of budgetary linkage in these plans is a significant problem for the financing of SISAN and its public policy [1919. Machado ML, Gabriel CG, Soar C, Neves J, Oliveira JTC. State Plan for Food and Nutrition Security: potentialities and limitations. Rev. Nutr. 2018;31(4):413-42. https://doi.org/10.1590/1678-98652018000400006
https://doi.org/10.1590/1678-98652018000...
].

The lack of specific government resources for food security policy, the absence of robust institutional mechanisms to ensure budgetary allocation and establish stable financing, along with the lack of technical support to train and guide state and municipal managers, are limitations that affect the consolidation and strengthening of SISAN [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
,1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
,1919. Machado ML, Gabriel CG, Soar C, Neves J, Oliveira JTC. State Plan for Food and Nutrition Security: potentialities and limitations. Rev. Nutr. 2018;31(4):413-42. https://doi.org/10.1590/1678-98652018000400006
https://doi.org/10.1590/1678-98652018000...
]. Budgetary constraints and fiscal austerity that have characterized recent years in Brazil have posed significant challenges to combating food insecurity, hunger, and poverty in the country [66. Vasconcelos FAG, Machado ML, Medeiros MAT, Neves JA, Recine E, Pasquim EM. Public policies of food and nutrition in Brazil: From Lula to Temer. Rev Nutr. 2019;32:e180161. https://doi.org/10.1590/1678-9865201932e180161
https://doi.org/10.1590/1678-9865201932e...
]. Reversing this situation relies on reintegrating food security into the public budget and aligning economic policies with social policies.

Custódio et al. [1414. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50. ] emphasized the importance of concentrating resources on programs such as Bolsa Família, National School Feeding Program, family farming, and sustainable fishing due to their positive effects on food security. However, it is also necessary to increase resources for programs that promote productive autonomy, as well as provide technical and financial support to states and municipalities for the effective implementation of the Brazilian Food and Nutritional Security Policy [1414. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50. , 66. Vasconcelos FAG, Machado ML, Medeiros MAT, Neves JA, Recine E, Pasquim EM. Public policies of food and nutrition in Brazil: From Lula to Temer. Rev Nutr. 2019;32:e180161. https://doi.org/10.1590/1678-9865201932e180161
https://doi.org/10.1590/1678-9865201932e...
]. Another recommendation from the studies is to conduct further research to assess the effectiveness of expenditures related to the policy and the resources used in the implementation of Food and Nutritional Security Plans [1414. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50. ,1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
].

Social Participation

This scoping review identified articles that addressed various issues related to social participation in the SISAN. The first issue is that social participation is largely limited to areas with CONSEA [1818. Medeiros LCD, Calazans DLMS, Pequeno NPF, Bagni UV, Câmara JPT, Silva APG. The food and nutritional safety system as a governance mechanism in the municipal area in Rio Grande do Norte, Brazil. Rev Cienc Plur. 2019;5(2):111-28. https://doi.org/10.21680/2446-7286.2019v5n2ID17729
https://doi.org/10.21680/2446-7286.2019v...
], indicating the difficulty of incorporating food security as a societal demand regardless of the institutionalization of social participation. Rocha et al. [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
] highlighted that the complexity of the food security issue and its limited integration within society hinder participation and the addressing of social demands. Additionally, Aliaga et al. [2121. Aliaga MA, Chaves-dos-Santos SM, Trad LAB. Politic and policies for food and nutrition security: meanings given by urban community leaders and residents of Salvador, Bahia, Brazil. Saude Soc. 2019;28(4):124-36. https://doi.org/10.1590/S0104-12902019180849
https://doi.org/10.1590/S0104-1290201918...
] observed that the population is unaware of public policies on food security or harbors skepticism about their capacity for social transformation. They also found that community leaders feel individually responsible for ensuring food security within their families, necessitating a process of education to help these individuals recognize adequate nutrition as a human right that should be guaranteed by the state, governments, and society [2121. Aliaga MA, Chaves-dos-Santos SM, Trad LAB. Politic and policies for food and nutrition security: meanings given by urban community leaders and residents of Salvador, Bahia, Brazil. Saude Soc. 2019;28(4):124-36. https://doi.org/10.1590/S0104-12902019180849
https://doi.org/10.1590/S0104-1290201918...
].

The difficulty of social participation in food security in Brazil can be justified by an environment marked by weak mechanisms of representative democracy that make little progress in consolidating participatory democracy [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
,2222. Muniz AKOA, Azevedo HS, Araújo LA, Lima AEF, Ávila MMM. Perception of social participation by actors of the Food and Nutrition Security Policy. Rev Bras Promoc Saude. 2017;30(4):1-8. https://doi.org/10.5020/18061230.2017.5877
https://doi.org/10.5020/18061230.2017.58...
]. The dissolution of the National CONSEA in 2019 through a unilateral act of the President of the Republic exemplifies the fragility of social participation institutions in Brazil [2323. Recine E, Fagundes A, Silva BL, Garcia GS, Ribeiro RCL, Gabriel CG. Reflections on the extinction of the National Council for Food and Nutrition Security and the confrontation of Covid-19 in Brazil. Rev Nutr . 2020;33:e200176. https://doi.org/10.1590/1678-9865202033e200176
https://doi.org/10.1590/1678-9865202033e...
], resulting in a reduction of spaces for social participation in propositional and decision-making processes, as well as creating barriers for non-governmental organizations and entities in shaping public policies on food security in Brazil [2424. Oliveira ASB, Casemiro JP, Brandão AL, Pinto AMS. Monitoramento e avaliação da segurança alimentar e nutricional: um olhar sobre as publicações oficiais. Cienc Saude Coletiva. 2022;27(2):631-40. https://doi.org/10.1590/1413-81232022272.41332020
https://doi.org/10.1590/1413-81232022272...
].

The National CONSEA presents itself as an important forum for the formulation of public policies targeting various population segments and the affirmation of the right to food, particularly among the most vulnerable, despite the challenges in influencing the Legislative and Executive branches with greater decision-making power, especially in issues that involve strong economic interests, such as the regulation of pesticide use and the food industry [2525. Moraes VD, Machado CV, Magalhães R. O Conselho Nacional de Segurança Alimentar e Nutricional: dinâmica de atuação e agenda (2006-2016). Cienc Saude Coletiva . 2021;26(12):6175-87. https://doi.org/10.1590/1413-812320212612.33262020
https://doi.org/10.1590/1413-81232021261...
].

The strengthening of social participation in the governance of SISAN requires that the Councils overcome excessive discussion on organizational aspects and, consequently, the dilution of propositional agendas [2626. Siqueira RL, Fonseca DA, Viana MN, Junqueira TS, Ribeiro RCL, Cotta RMM. Food and nutritional security council: analysis of the social control over the food and nutritional security state policy in the State of Espírito Santo. Saude Soc . 2011;20(2):470-82. https://doi.org/10.1590/S0104-12902011000200018
https://doi.org/10.1590/S0104-1290201100...
]. Many Councils are characterized by an "intellectualized" profile, and in general, there is a rigid operational dynamic that makes CONSEAs less participatory and depoliticized [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
]. It is also necessary to address irregularities in meeting frequency, high turnover of councilors, flaws in electoral processes, and limitations related to power distribution [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
,2222. Muniz AKOA, Azevedo HS, Araújo LA, Lima AEF, Ávila MMM. Perception of social participation by actors of the Food and Nutrition Security Policy. Rev Bras Promoc Saude. 2017;30(4):1-8. https://doi.org/10.5020/18061230.2017.5877
https://doi.org/10.5020/18061230.2017.58...
,2626. Siqueira RL, Fonseca DA, Viana MN, Junqueira TS, Ribeiro RCL, Cotta RMM. Food and nutritional security council: analysis of the social control over the food and nutritional security state policy in the State of Espírito Santo. Saude Soc . 2011;20(2):470-82. https://doi.org/10.1590/S0104-12902011000200018
https://doi.org/10.1590/S0104-1290201100...
,2727. Wendhausen ÁLP, Barbosa TM, Borba MC. Empowerment and resources for participation in management councils. Saude Soc . 2006;15(3):131-44. https://doi.org/10.1590/S0104-12902006000300011
https://doi.org/10.1590/S0104-1290200600...
]. Additionally, councilors face difficulties in reconciling participation in multiple Councils and Delegated Forums [2222. Muniz AKOA, Azevedo HS, Araújo LA, Lima AEF, Ávila MMM. Perception of social participation by actors of the Food and Nutrition Security Policy. Rev Bras Promoc Saude. 2017;30(4):1-8. https://doi.org/10.5020/18061230.2017.5877
https://doi.org/10.5020/18061230.2017.58...
].

The lack of structure and other resources for Council functioning [2626. Siqueira RL, Fonseca DA, Viana MN, Junqueira TS, Ribeiro RCL, Cotta RMM. Food and nutritional security council: analysis of the social control over the food and nutritional security state policy in the State of Espírito Santo. Saude Soc . 2011;20(2):470-82. https://doi.org/10.1590/S0104-12902011000200018
https://doi.org/10.1590/S0104-1290201100...
,2727. Wendhausen ÁLP, Barbosa TM, Borba MC. Empowerment and resources for participation in management councils. Saude Soc . 2006;15(3):131-44. https://doi.org/10.1590/S0104-12902006000300011
https://doi.org/10.1590/S0104-1290200600...
] is also noteworthy, as well as the observation that irregular functioning of the National CONSEA can affect state and municipal Councils by forcing them to operate without institutional reference at the higher level of government [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
].

The absence or fragility of training and education processes for councilors appears to be a central issue identified in the analyzed studies [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
,2222. Muniz AKOA, Azevedo HS, Araújo LA, Lima AEF, Ávila MMM. Perception of social participation by actors of the Food and Nutrition Security Policy. Rev Bras Promoc Saude. 2017;30(4):1-8. https://doi.org/10.5020/18061230.2017.5877
https://doi.org/10.5020/18061230.2017.58...
,2626. Siqueira RL, Fonseca DA, Viana MN, Junqueira TS, Ribeiro RCL, Cotta RMM. Food and nutritional security council: analysis of the social control over the food and nutritional security state policy in the State of Espírito Santo. Saude Soc . 2011;20(2):470-82. https://doi.org/10.1590/S0104-12902011000200018
https://doi.org/10.1590/S0104-1290201100...
,2727. Wendhausen ÁLP, Barbosa TM, Borba MC. Empowerment and resources for participation in management councils. Saude Soc . 2006;15(3):131-44. https://doi.org/10.1590/S0104-12902006000300011
https://doi.org/10.1590/S0104-1290200600...
]. The studies recommend that councilor training be based on critical pedagogical theories and foster autonomy, empowerment, and emancipation within an educational process that considers all dimensions of food security [2020. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
https://doi.org/10.1590/S1415-5273201200...
,2626. Siqueira RL, Fonseca DA, Viana MN, Junqueira TS, Ribeiro RCL, Cotta RMM. Food and nutritional security council: analysis of the social control over the food and nutritional security state policy in the State of Espírito Santo. Saude Soc . 2011;20(2):470-82. https://doi.org/10.1590/S0104-12902011000200018
https://doi.org/10.1590/S0104-1290201100...
,2727. Wendhausen ÁLP, Barbosa TM, Borba MC. Empowerment and resources for participation in management councils. Saude Soc . 2006;15(3):131-44. https://doi.org/10.1590/S0104-12902006000300011
https://doi.org/10.1590/S0104-1290200600...
].

Decentralization and Government Management

The decentralization of public policies in Brazil since the 1990s is considered an appropriate measure as it has helped overcome barriers in implementing local policies. However, decentralization has its limits when the political, administrative, social, cultural, and ecological characteristics of different regions in Brazil are not taken into account [1717. Palmeira PA, Mattos RA, Salles-Costa R. Food security governance promoted by national government at the local level: a case study in Brazil. Food Sec. 2020;12(1). http://dx.doi.org/10.1007/s12571-019-01000-2
http://dx.doi.org/10.1007/s12571-019-010...
,2828. Martins MC, Gabriel CG, Machado ML, Machado PMO, Soar C, Longo GZ. Brazilian National Food and Nutritional Security System: what are the similarities in the decentralization process?. Cad Saude Publica . 2023;39(3):e00131022. https://doi.org/10.1590/0102-311XEN131022
https://doi.org/10.1590/0102-311XEN13102...
].

The decentralization process of SISAN to the state level occurred rapidly due to a robust public policy [1414. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50. ]. By 2014, all states had joined SISAN [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
] and had management structures such as CONSEA and CAISAN [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
,1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
]. In 26 states, food security policy was linked to sectoral secretariats or other public policies, primarily in the field of social assistance, and CAISAN consisted of an average of 11 government agencies, mainly representatives from agriculture, education, health, social assistance, planning, and housing [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
,1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
]. In the states, the main actions related to food security focused on food education, training for organic production, maintenance of public food security facilities, implementation of water access technologies, and food donations [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
].

However, in 2014, only 30% of states had published their organic laws on Food and Nutritional Security, and only 48% had a specific area for managing food security policy [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
]. By 2016, less than half of the states had developed their Food and Nutritional Security Plans, and among the states that had plans, all exhibited regulatory inadequacies, such as the lack of analysis of the local food security situation, absence of goals, lack of details regarding responsible and budgetary requirements for the goals, and no description of the methodology for monitoring and evaluating the plan and food security [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
].

Martins et al. [2828. Martins MC, Gabriel CG, Machado ML, Machado PMO, Soar C, Longo GZ. Brazilian National Food and Nutritional Security System: what are the similarities in the decentralization process?. Cad Saude Publica . 2023;39(3):e00131022. https://doi.org/10.1590/0102-311XEN131022
https://doi.org/10.1590/0102-311XEN13102...
], in grouping Brazilian states into clusters of similarity regarding different aspects of decentralized SISAN governance, identified that states with a higher intersectoral and participatory character in SISAN governance were the same ones with better relationships with their municipalities and better resource allocation. Conversely, states with a lower intersectoral and participatory character were associated with low resource allocation and implementation of food security actions, as well as weak support for SISAN decentralization at the municipal level. Clusters predominantly composed of states in the North and Northeast, with lower Gross Domestic Product, medium Human Development Index, and higher occurrence of food insecurity, expressed characteristics that may be related to greater obstacles in decentralization.

Vasconcellos and Moura [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
] conducted an analysis of the decentralization of SISAN to municipalities and identified low adherence to the system and an insignificant proportion of municipalities with CAISAN and Food and Nutritional Security Plans. The main food security actions carried out by municipalities were the maintenance of public food security equipment, implementation of technologies for water access, and urban agriculture activities [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
]. The size of the municipality is positively associated with the existence of management structures for food security policy. Therefore, small municipalities tend to face greater difficulties in implementing food security actions [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
]. A case study in a small rural municipality identified 33 government initiatives for food security in the municipality, but none were linked to SISAN structures or socially recognized as part of the National Food and Nutritional Security Policy [1717. Palmeira PA, Mattos RA, Salles-Costa R. Food security governance promoted by national government at the local level: a case study in Brazil. Food Sec. 2020;12(1). http://dx.doi.org/10.1007/s12571-019-01000-2
http://dx.doi.org/10.1007/s12571-019-010...
].

The problems related to decentralization and management of food security policy can be attributed to several factors. Vasconcellos and Moura [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
] highlight the fragility of institutional responsibilities at the state and municipal levels and the absence of a significant inducing role by the federal government. They also mention the high turnover of officials and the lack of incentives for capacity building among managers, as well as the absence of operational plans for implementing SISAN and its public policy at the local level. Medeiros et al. [1818. Medeiros LCD, Calazans DLMS, Pequeno NPF, Bagni UV, Câmara JPT, Silva APG. The food and nutritional safety system as a governance mechanism in the municipal area in Rio Grande do Norte, Brazil. Rev Cienc Plur. 2019;5(2):111-28. https://doi.org/10.21680/2446-7286.2019v5n2ID17729
https://doi.org/10.21680/2446-7286.2019v...
] further emphasize the need for operational plans to effectively implement SISAN at the local level and address issues of food security. Aliaga et al. [2121. Aliaga MA, Chaves-dos-Santos SM, Trad LAB. Politic and policies for food and nutrition security: meanings given by urban community leaders and residents of Salvador, Bahia, Brazil. Saude Soc. 2019;28(4):124-36. https://doi.org/10.1590/S0104-12902019180849
https://doi.org/10.1590/S0104-1290201918...
] found that community leaders perceive a lack of commitment from the state to promote food security and ensure food as a human right. This perception stems from historically constructed oppressive systems, where there is an interest in maintaining poverty, hunger, and food insecurity.

The studies recommend greater technical and financial support from the federal government to strengthen state and municipal management [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
]. They also advocate for the development of more effective decentralization mechanisms to expand the number of municipalities adhering to SISAN and actively engaging with the National Food and Nutritional Security Policy [1515. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
https://doi.org/10.1590/0102-311X0020681...
]. Additionally, there is a need for managers to evaluate their own performance in implementing this public policy [1818. Medeiros LCD, Calazans DLMS, Pequeno NPF, Bagni UV, Câmara JPT, Silva APG. The food and nutritional safety system as a governance mechanism in the municipal area in Rio Grande do Norte, Brazil. Rev Cienc Plur. 2019;5(2):111-28. https://doi.org/10.21680/2446-7286.2019v5n2ID17729
https://doi.org/10.21680/2446-7286.2019v...
].

Monitoring and Evaluation

Medeiros et al. [1818. Medeiros LCD, Calazans DLMS, Pequeno NPF, Bagni UV, Câmara JPT, Silva APG. The food and nutritional safety system as a governance mechanism in the municipal area in Rio Grande do Norte, Brazil. Rev Cienc Plur. 2019;5(2):111-28. https://doi.org/10.21680/2446-7286.2019v5n2ID17729
https://doi.org/10.21680/2446-7286.2019v...
] highlight difficulties in collecting and disseminating information about SISAN and the Brazilian Food and Nutritional Security Policy, which strongly impacts the governance of this system. The authors specifically address the challenges related to the Food and Nutritional Security Mapping, reporting that the data collection methodology is confusing for managers, who struggle to fill in the information in the tool.

Moreover, there is limited information dissemination and ineffective communication between government institutions and social actors [2222. Muniz AKOA, Azevedo HS, Araújo LA, Lima AEF, Ávila MMM. Perception of social participation by actors of the Food and Nutrition Security Policy. Rev Bras Promoc Saude. 2017;30(4):1-8. https://doi.org/10.5020/18061230.2017.5877
https://doi.org/10.5020/18061230.2017.58...
], along with outdated secondary data and discrepancies among national databases, which hinder the provision of accurate information [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
]. Therefore, there is a need to expand and enhance the monitoring process of SISAN through theoretical and methodological advancements that can support the management and improvement of public policies [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
,2929. Magalhães R. Evaluation of public policies and initiatives in food and nutrition security: dilemmas and methodological perspectives. Cienc Saude Coletiva . 2014;19(5):1339-46. https://doi.org/10.1590/1413-81232014195.12202013
https://doi.org/10.1590/1413-81232014195...
].

Studies also point out limitations and recommendations for the evaluation processes of SISAN and the National Food and Nutritional Security Policy. Oliveira et al. [2424. Oliveira ASB, Casemiro JP, Brandão AL, Pinto AMS. Monitoramento e avaliação da segurança alimentar e nutricional: um olhar sobre as publicações oficiais. Cienc Saude Coletiva. 2022;27(2):631-40. https://doi.org/10.1590/1413-81232022272.41332020
https://doi.org/10.1590/1413-81232022272...
] emphasize the importance of CONSEA, CAISAN, and intersectoral collaborations for advancing participatory strategies in planning, monitoring, and evaluation within the scope of SISAN. However, evaluative studies on SISAN are still scarce, highlighting the need to advance the consolidation of evaluation processes to generate evidence of the effectiveness of actions and, simultaneously, enable learning that can enhance public policies [1616. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
https://doi.org/10.1590/0102-311X0020671...
,2929. Magalhães R. Evaluation of public policies and initiatives in food and nutrition security: dilemmas and methodological perspectives. Cienc Saude Coletiva . 2014;19(5):1339-46. https://doi.org/10.1590/1413-81232014195.12202013
https://doi.org/10.1590/1413-81232014195...
,3030. Magalhães R. Implementation of multi-strategy programs: a proposal for an evaluation matrix. Cienc Saude Coletiva . 2014;19(7):2115-23. https://doi.org/10.1590/1413-81232014197.08482013
https://doi.org/10.1590/1413-81232014197...
].

Among the methodological proposals for evaluation within the scope of SISAN, the work of Machado et al. [3131. Machado ML, Gabriel CG, Lacerda JT, Machado PMO. Strategic evaluation of the Food and Nutrition Security Plan of the State of Santa Catarina, Brazil. Rev Nutr . 2018;31(6):617-30. https://doi.org/10.1590/1678-98652018000600010
https://doi.org/10.1590/1678-98652018000...
] presented a matrix consisting of 7 dimensions, 16 sub-dimensions, and 35 indicators to assess the adequacy of Food and Nutritional Security Plans to the Brazilian concept of food security. This proposal provides objective parameters for value judgment in the evaluation of the Plans. The research by Magalhães [3030. Magalhães R. Implementation of multi-strategy programs: a proposal for an evaluation matrix. Cienc Saude Coletiva . 2014;19(7):2115-23. https://doi.org/10.1590/1413-81232014197.08482013
https://doi.org/10.1590/1413-81232014197...
], although not included in this review due to being a methodological article, relied on theory-oriented evaluation to construct and present an evaluation matrix composed of three dimensions: theory validity, process and effects evaluation, and scope, with a focus on evaluating the implementation of multi-strategy programs that can be applied to assess the National Food and Nutritional Security Policy.

CONCLUSION

This is the first study that aimed to gather and discuss the results of evaluative research on SISAN and the Brazilian Food and Nutritional Security Policy. We observe a field of knowledge still in development, permeated by different types of research and methods for data collection and analysis.

In the face of recent structural dismantling of this System and the renewed government agenda on food security in Brazil, the results and recommendations from the analyzed articles presented important elements for the improvement of SISAN and its public policy regarding aspects of funding, social participation, decentralization and government management, as well as monitoring and evaluation.

Undoubtedly, there are still significant gaps to be filled by evaluative research on food security in Brazil. Therefore, it is suggested that further research be conducted to enhance the theoretical and methodological frameworks for the evaluation of SISAN and contribute to the improvement of the governance of this System.

REFERENCES

  • 1. De Carvalho CA, Viola PCAAF, Sperandio N. How is Brazil facing the crisis of Food and Nutrition Security during the COVID-19 pandemic? Public Health Nutrition. 2021;24(3):561-64. https://doi.org/10.1017/S1368980020003973
    » https://doi.org/10.1017/S1368980020003973
  • 2. Aliaga MA, Chaves-dos-Santos SM. Food and nutrition security public initiatives from a human and socioeconomic development perspective: mapping experiences within the 1996 World Food Summit signatories. Soc Sci Med. 2014;104:74-9. https://doi.org/10.1016/j.socscimed.2013.12.025
    » https://doi.org/10.1016/j.socscimed.2013.12.025
  • 3. Food and Agriculture Organization of the United Nations, International Fund for Agricultural Development, United Nations Children’s Fund, World Food Programme, World Health Organization. The State of Food Security and Nutrition in the World 2020: Transforming food systems for affordable healthy diets. Rome: FAO; IFAD; UNICEF; WFP; WHO; 2022. https://doi.org/10.4060/cc0639en
    » https://doi.org/10.4060/cc0639en
  • 4. Niles MT, Bertmann F, Belarmino EH, Wentworth T, Biehl E, Neff R. The early food insecurity impacts of COVID-19. Nutrients. 2020;12(7):2096. https://doi.org/10.3390/nu12072096
    » https://doi.org/10.3390/nu12072096
  • 5. Swinburn BA, Kraak VI, Allender S, Atkins VJ, Baker PI, Bogard JR, et al. The Global Syndemic of Obesity, Undernutrition, and Climate Change: The Lancet Commission report. Lancet. 2019;393(10173):791-846. https://doi.org/10.1016/s0140-6736(18)32822-8
    » https://doi.org/10.1016/s0140-6736(18)32822-8
  • 6. Vasconcelos FAG, Machado ML, Medeiros MAT, Neves JA, Recine E, Pasquim EM. Public policies of food and nutrition in Brazil: From Lula to Temer. Rev Nutr. 2019;32:e180161. https://doi.org/10.1590/1678-9865201932e180161
    » https://doi.org/10.1590/1678-9865201932e180161
  • 7. Neves JA, Machado ML, Oliveira LDA, Moreno YMF, Medeiros MAT, Vasconcelos FAG. Unemployment, poverty, and hunger in Brazil in Covid-19 pandemic times. Rev Nutr . 2021;34:e200170. https://doi.org/10.1590/1678-9865202134e200170
    » https://doi.org/10.1590/1678-9865202134e200170
  • 8. Rede Brasileira de Pesquisa em Soberania e Segurança Alimentar e Nutricional. II Inquérito Nacional sobre Insegurança Alimentar no Contexto da Pandemia da COVID-19 no Brasil [Internet]. São Paulo: Rede PENSSAN; 2022 [cited 2024 Jan 8]. Available from: https://olheparaafome.com.br/wp-content/uploads/2022/06/Relatorio-II-VIGISAN-2022.pdf
    » https://olheparaafome.com.br/wp-content/uploads/2022/06/Relatorio-II-VIGISAN-2022.pdf
  • 9. Arksey H, O'Malley L. Scoping studies: towards a methodological framework. Int J Soc Res Methodol. 2005;8(1):19-32. https://doi.org/10.1080/1364557032000119616
    » https://doi.org/10.1080/1364557032000119616
  • 10. Munn Z, Peters MDJ, Stern C, Tufanaru C, McArthur A, Aromataris E. Systematic review or scoping review? Guidance for authors when choosing between a systematic or scoping review approach. BMC Med Res Methodol. 2018;18(143):1-7. https://doi.org/10.1186/s12874-018-0611-x
    » https://doi.org/10.1186/s12874-018-0611-x
  • 11. Tricco AC, Lillie E, Zarin W, O'Brien KK, Colquhoun H, Levac D, et al.PRISMA Extension for Scoping Reviews (PRISMA-ScR): Checklist and Explanation. Ann Intern Med. 2018;169(7):467-73. https://doi.org/10.7326/m18-0850
    » https://doi.org/10.7326/m18-0850
  • 12. Braun V, Clarke V. Using thematic analysis in psychology. Qual Res Psychol. 2006;3(2):77-101. http://dx.doi.org/10.1191/1478088706qp063oa
    » http://dx.doi.org/10.1191/1478088706qp063oa
  • 13. Candel JJL. Diagnosing integrated food security strategies. NJAS. 2018;84:103-13. https://doi.org/10.1016/j.njas.2017.07.001
    » https://doi.org/10.1016/j.njas.2017.07.001
  • 14. Custódio MB, Yuba TY, Cyrillo DC. Food and nutrition security policy in Brazil: an analysis of resource allocation. Rev Panam Salud Publica. 2013;33(2):144-50.
  • 15. Vasconcellos ABPA, Moura LBA. Food and nutritional security: situation analysis of decentralization in the national public policy. Cad Saude Publica. 2018;34(2):e00206816. https://doi.org/10.1590/0102-311X00206816
    » https://doi.org/10.1590/0102-311X00206816
  • 16. Machado ML, Gabriel CG, Soar C, Mamed GR, Machado PMO, Lacerda JT, Compliance with guidelines by state plans for food and nutritional security in Brazil. Cad Saude Publica . 2018;34(1):e00206716. https://doi.org/10.1590/0102-311X00206716
    » https://doi.org/10.1590/0102-311X00206716
  • 17. Palmeira PA, Mattos RA, Salles-Costa R. Food security governance promoted by national government at the local level: a case study in Brazil. Food Sec. 2020;12(1). http://dx.doi.org/10.1007/s12571-019-01000-2
    » http://dx.doi.org/10.1007/s12571-019-01000-2
  • 18. Medeiros LCD, Calazans DLMS, Pequeno NPF, Bagni UV, Câmara JPT, Silva APG. The food and nutritional safety system as a governance mechanism in the municipal area in Rio Grande do Norte, Brazil. Rev Cienc Plur. 2019;5(2):111-28. https://doi.org/10.21680/2446-7286.2019v5n2ID17729
    » https://doi.org/10.21680/2446-7286.2019v5n2ID17729
  • 19. Machado ML, Gabriel CG, Soar C, Neves J, Oliveira JTC. State Plan for Food and Nutrition Security: potentialities and limitations. Rev. Nutr. 2018;31(4):413-42. https://doi.org/10.1590/1678-98652018000400006
    » https://doi.org/10.1590/1678-98652018000400006
  • 20. Rocha NC, Doria NG, Boia JM, Bógus CM. Organization and dynamics of Conselho Municipal de Segurança Alimentar e Nutricional de São Paulo: implications of their participation on the creation of a municipal food and nutrition security policy. Rev Nutr . 2012;25(1):133-46. https://doi.org/10.1590/S1415-52732012000100012
    » https://doi.org/10.1590/S1415-52732012000100012
  • 21. Aliaga MA, Chaves-dos-Santos SM, Trad LAB. Politic and policies for food and nutrition security: meanings given by urban community leaders and residents of Salvador, Bahia, Brazil. Saude Soc. 2019;28(4):124-36. https://doi.org/10.1590/S0104-12902019180849
    » https://doi.org/10.1590/S0104-12902019180849
  • 22. Muniz AKOA, Azevedo HS, Araújo LA, Lima AEF, Ávila MMM. Perception of social participation by actors of the Food and Nutrition Security Policy. Rev Bras Promoc Saude. 2017;30(4):1-8. https://doi.org/10.5020/18061230.2017.5877
    » https://doi.org/10.5020/18061230.2017.5877
  • 23. Recine E, Fagundes A, Silva BL, Garcia GS, Ribeiro RCL, Gabriel CG. Reflections on the extinction of the National Council for Food and Nutrition Security and the confrontation of Covid-19 in Brazil. Rev Nutr . 2020;33:e200176. https://doi.org/10.1590/1678-9865202033e200176
    » https://doi.org/10.1590/1678-9865202033e200176
  • 24. Oliveira ASB, Casemiro JP, Brandão AL, Pinto AMS. Monitoramento e avaliação da segurança alimentar e nutricional: um olhar sobre as publicações oficiais. Cienc Saude Coletiva. 2022;27(2):631-40. https://doi.org/10.1590/1413-81232022272.41332020
    » https://doi.org/10.1590/1413-81232022272.41332020
  • 25. Moraes VD, Machado CV, Magalhães R. O Conselho Nacional de Segurança Alimentar e Nutricional: dinâmica de atuação e agenda (2006-2016). Cienc Saude Coletiva . 2021;26(12):6175-87. https://doi.org/10.1590/1413-812320212612.33262020
    » https://doi.org/10.1590/1413-812320212612.33262020
  • 26. Siqueira RL, Fonseca DA, Viana MN, Junqueira TS, Ribeiro RCL, Cotta RMM. Food and nutritional security council: analysis of the social control over the food and nutritional security state policy in the State of Espírito Santo. Saude Soc . 2011;20(2):470-82. https://doi.org/10.1590/S0104-12902011000200018
    » https://doi.org/10.1590/S0104-12902011000200018
  • 27. Wendhausen ÁLP, Barbosa TM, Borba MC. Empowerment and resources for participation in management councils. Saude Soc . 2006;15(3):131-44. https://doi.org/10.1590/S0104-12902006000300011
    » https://doi.org/10.1590/S0104-12902006000300011
  • 28. Martins MC, Gabriel CG, Machado ML, Machado PMO, Soar C, Longo GZ. Brazilian National Food and Nutritional Security System: what are the similarities in the decentralization process?. Cad Saude Publica . 2023;39(3):e00131022. https://doi.org/10.1590/0102-311XEN131022
    » https://doi.org/10.1590/0102-311XEN131022
  • 29. Magalhães R. Evaluation of public policies and initiatives in food and nutrition security: dilemmas and methodological perspectives. Cienc Saude Coletiva . 2014;19(5):1339-46. https://doi.org/10.1590/1413-81232014195.12202013
    » https://doi.org/10.1590/1413-81232014195.12202013
  • 30. Magalhães R. Implementation of multi-strategy programs: a proposal for an evaluation matrix. Cienc Saude Coletiva . 2014;19(7):2115-23. https://doi.org/10.1590/1413-81232014197.08482013
    » https://doi.org/10.1590/1413-81232014197.08482013
  • 31. Machado ML, Gabriel CG, Lacerda JT, Machado PMO. Strategic evaluation of the Food and Nutrition Security Plan of the State of Santa Catarina, Brazil. Rev Nutr . 2018;31(6):617-30. https://doi.org/10.1590/1678-98652018000600010
    » https://doi.org/10.1590/1678-98652018000600010
  • 1
    Article elaborated from thesis by ML MACHDO, entitled “A implementação do Sistema Nacional de Segurança Alimentar e Nutricional no contexto dos municípios brasileiros: uma pesquisa avaliativa com enfoque no ciclo das políticas públicas”. Universidade Federal de Santa Catarina; 2020.
  • Support:

    Coordenação de Aperfeiçoamento de Pessoal de Nível Superior (Capes) (Process nº 1738490).

Edited by

Editor:

Vânia Aparecida Leandro Merhi

Publication Dates

  • Publication in this collection
    27 May 2024
  • Date of issue
    2024

History

  • Received
    07 June 2023
  • Accepted
    04 Oct 2023
Pontifícia Universidade Católica de Campinas Núcleo de Editoração SBI - Campus II , Av. John Boyd Dunlop, s/n. - Prédio de Odontologia, 13059-900 Campinas - SP Brasil, Tel./Fax: +55 19 3343-6875 - Campinas - SP - Brazil
E-mail: sbi.submissionrn@puc-campinas.edu.br