Introduction

This chapter discusses the evaluation function as part of the policy analysis field in Brazil. Policy evaluation refers here to the endeavour to obtain relevant, systematic knowledge about policy contexts, decision-making, programmes, teams, publics, outcomes, impacts and consequences (Sabatier, 1995; Dobuzinskis et al, 2007; Wollmann, 2007). Policy analysis refers to either an interdisciplinary or applied field within the social sciences and is explored extensively in previous chapters of this book.

As an object of study of policy analysis, the evaluation function is important because: first, it runs through and influences the whole government policy cycle, through ex ante evaluations, monitoring and ex post evaluations, with performance-monitoring activities being regarded as a type of evaluation that occurs together with policy implementation (Wollmann, 2007, pp 393–5); and, second, it also contributes directly to the production of the valid knowledge characteristic of policy analysis.

This chapter has three goals, taking Brazil as a case. First, it will review the contribution of evaluation studies to the interdisciplinary field of policy analysis. Second, it describes in general terms the process of institutionalisation of policy and programme monitoring and evaluation (M&E) functions in the federal government. Finally, it aims to investigate M&E experiences in some Brazilian federal government agencies, specifically: the Office of the President (PR), the Ministry of Planning, Budget and Management (MP), the Ministry for Social Development and the Fight against Hunger (MDS), the Ministry of Health (MoH) and the Federal Court of Audit (TCU).

The methodology used comprises a literature review, including official documents, and semi-structured interviews of key actors at these agencies. The final section points to some of the political, normative, technical and budget challenges facing the policy evaluation function in Brazil's federal administration.

Policy analysis in Brazil: the place of evaluation

Policy evaluation, whether as a systematic practice in government or as an object for academic research and teaching, is new in Brazil. Until the late 1990s, what predominated were sectoral evaluations carried out by civil servants and focusing on policy formulation and decision-making processes (Cepik, 1997; Melo, 1999; Dulci, 2010). Since the 2000s, however, there has been a marked increase in evaluation activities not only by governmental agencies, but also by other important actors, such as international organisations, civil society interest groups and universities.