The capital of hope: the invisible life on the streets of Brasilia

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Summary

The case presents the challenges of Tadeu, a public manager in the Federal District, in dealing with the growing homeless population in Brazil's capital. With the absence of information on this vulnerable population, the manager must carry out a detailed survey of the living conditions of this population and evaluate existing public policies, which are often ineffective and fragmented. It faces difficulties related to intergovernmental coordination, budget constraints and social prejudices, which make it difficult for these people to reintegrate into society. In addition, it needs to develop and monitor innovative and sustainable solutions, respecting human rights and ensuring the dignity of these people.

Keywords : public policies; vulnerable population; public management.

The creation of a Working Group

Tadeu is a newly appointed public manager at the Department of Social Development of the Federal District. Full of innovative ideas and with a track record of success in social programs in other regions of Brazil, he is faced with one of the biggest challenges of his career: facing the problems of the growing population of homeless people in the country's capital.

The issue of homeless people in the Federal District is a social problem of great relevance, reflecting the complexities and challenges faced by public administrations in trying to mitigate this situation. Brasilia, despite its modernity and urban planning, is not immune to this phenomenon. The country's capital, known for its government buildings and advanced infrastructure, is also home to a significant population of homeless people.

According to 2023 data from the Ministry of Human Rights and Citizenship, Brasília has 7,924 people in this situation, which represents 0.28% of the capital's population. This information with the percentage that corresponds to the number of homeless people in the DF was widely disseminated in the media and in the press, bringing a negative image of the public policies adopted by the State.

The Governor of the Federal District, concerned about the negative repercussion of the number of vulnerable people in the capital, formed a working group to deal with the problem. Tadeu, with his multidisciplinary team, was tasked with a series of challenges. The first mission was to carry out a detailed and accurate survey of the homeless population, going beyond the numbers to understand the living conditions, needs and barriers faced by these people. That meant collecting demographic data, health histories, and details about each individual's trajectory to the streets.

With this information, the working group would need to critically evaluate existing public policies. Thaddeus He knew it was necessary to look beyond the glaring gaps and identify where exactly policies were failing—whether in the provision of shelter, social care, or health services. He also needed to find innovative and sustainable solutions. This involved not only the creation of new programs, but also more shelters and rehabilitation services, but also the implementation of strategies that would encourage the reintegration of these people into society in a dignified and effective manner.

Intergovernmental coordination was another significant challenge. Brasília, being the political center of the country, requires a coordinated effort between the Union, the government of the Federal District, the municipalities and the Civil Society Organizations (CSOs). Thaddeus He knew that this articulation was crucial to maximize the available resources and avoid duplication of efforts. With severe budget constraints, he needed to be creative in allocating resources, exploring partnerships with the private sector, and seeking funding from international organizations.

In addition to all the logistical and strategic issues, Tadeu and his team also had to deal with public perception and community outreach. Many residents of Brasília viewed homeless people with suspicion or prejudice, which made it difficult to mobilize support and resources. Therefore, it was essential to work on public awareness, promoting empathy and understanding of the causes that lead someone to live on the streets.

Finally, the working group needed to establish monitoring and evaluation mechanisms to ensure that new public policies and programs were effective and adaptable. Thaddeus he knew that the response to the problem of the homeless population could not be static; It would be a continuous process of adjustment and improvement.

After all, who are these people?

By taking on the mission of understanding the homeless population, Tadeu was faced with a diversified panorama. The 7,924 individuals constitute a heterogeneous population group that shares extreme poverty, interrupted or fragile family ties, and the lack of regular conventional housing.

Regarding the demographic profile, the manager found, based on a study by the Institute of Research and Statistics of the Federal District (IPEDF, 2022), that this public is composed mostly of men (about 80.7%) with a predominant age group between 25 and 45 years old. Regarding the places of concentration of the population, it was noted that the highest incidence occurs in the central areas, with the highest percentage in the Pilot Plan (24.7%), followed by São Sebastião (13.1%), Ceilândia (12.59%) and Taguatinga (11.95%).

It also found, from this same study, that 71.1% of these people declare themselves black, and 11.6% indigenous, according to data from the District Household Sample Survey (PDAD, 2021). In addition, 3.5% are transsexual people, and there are 244 children and adolescents living on the streets of the Federal District.

These people occupy public spaces as places of residence and livelihood for a period or permanently, as well as using shelter units for overnight stays or as temporary housing.

These individuals face significant barriers, such as a lack of access to adequate healthcare, employment opportunities, and social support networks. Many have stories of fragmented lives, with broken family ties, histories of violence or abuse, and experiences of discrimination that make it even more difficult for them to reintegrate into society. These conditions create a vicious cycle, where the absence of resources and support keeps them in a situation of continuous vulnerability.

A look at existing public policies

After better understanding the peculiarities of homeless people in the Federal District, Tadeu asked the Department of Social Development of the Federal District for a survey on the public policies developed in the region, aimed at this public.

The Federal District has Specialized Reference Centers for the Homeless Population (POP Centers) that offer a series of services, including welcoming, food, hygiene, specialized care and referral to other services in the social assistance network. These centers are a key piece in the attempt to reintegrate into society and continue to meet the basic needs of this population.

In addition, the secretariat informed about the existence of health care programs and partnerships with the public defender's office to ensure access to basic rights. However, despite these initiatives, challenges remain, especially in the articulation and effectiveness of intersectoral actions, in the provision of sufficient shelter and in meeting the specific needs of mental health and chemical dependency.

Intergovernmental coordination

During a meeting with the working group, composed of health, education and security professionals, all pertinent information was passed on, which opened space for discussions. With the demands brought by different agencies, it became evident the need and importance of dealing with the issue with a focus on intergovernmental coordination, through an integrated district policy, where different secretariats and government agencies, such as the Social Development, Health and Public Safety Secretariats, could collaborate to provide essential services. Including everything from shelter shelters to medical assistance and professional training. Additionally, partnerships with NGOs and private institutions would play an important role, complementing the government's efforts and providing a wider support network.

Although the majority agreed with the intergovernmental model, one person in the working group questioned whether the fragmentation of actions and the lack of continuous coordination could not lead to duplication of efforts or, even worse, leave gaps in the services provided.

Another point made at the meeting was the fact that many of the policies implemented are of an emergency nature, with few long-term initiatives that really address the structural causes of homelessness, such as the lack of affordable housing and the precariousness of the labor market. This points to an urgent need for more sustainable and integrated policies, which can ensure not only an immediate response, but also lasting solutions to this social problem.

The question of the budget

Aware of the importance of aligning public policies with the necessary budget, Tadeu analyzed the numbers and was alarmed by the financial reality.

The Federal District allocated a relatively small amount to social assistance programs. Of this amount, an even smaller percentage was destined for homeless people, and the amount included expenses with shelters, POP Centers, training and social reintegration programs, as well as emergency support and food. Also, the costs of personnel, maintenance of facilities and partnerships with CSOs, which are essential for the execution of services and consume a large part of this budget.

Tadeu was concerned because he knew that when policies are not properly adjusted to the budget, there is a risk of important projects being underfunded, leading to their partial or inadequate execution. In addition, a misallocation of resources can result in frustration for both public managers and the population, which does not see its needs met.

Lessons from the street: when the public manager faces reality

Another important point to define the actions to be taken in the face of the situation of the number of homeless people is to understand the relationship of these people with the streets. So, Thaddeus asked to follow the social approach work for a day, developed through partner CSOs.

During the work, he observed in practice that leaving the streets of people in vulnerable situations is a path with several obstacles, many of which are aggravated by prejudice and social stereotypes. This fact was clearly observed when the group went to carry out a work in Asa Norte, an upscale neighborhood in the Federal District. Thaddeus He was approached by a person from the neighborhood who said with all the letters "you have to get these people out of here, take them to another place and leave them here clean".

The manager took a deep breath and had to explain, with all the patience in the world, that these stereotypical views not only obscure the varied circumstances that lead someone to live on the streets, but also make it difficult to get the help and support needed to get out of this condition. This situation is a reflection of the concept of "hygienism", where society often seeks to "cleanse" urban space from the most vulnerable, rather than addressing the structural causes of their situation.

In addition to social stigma, there are significant structural barriers. The lack of stable housing makes it difficult to access basic services such as health and employment. Public policies are often not sufficiently tailored to address the specific needs of these individuals, leaving them trapped in a cycle of marginalization.

The prejudice that exists in society is also reflected in selection processes, where homeless candidates are often discarded without considering their skills and potential contributions. After all the explanation, the person seemed to understand absolutely nothing and reinforced: "these people stay here and only serve to devalue our property, you really have to take it away, force these people to go somewhere else".

In this way, he had to be more incisive and explain that the Brazilian State cannot simply force people to leave the streets or take them to a specific place due to fundamental principles guaranteed by the Federal Constitution of 1988 and Human Rights.

The 1988 Constitution ensures the inviolability of the right to freedom, dignity and security (article 5, caput), rights that are pillars of the Democratic Rule of Law. Any state action that forces individuals to leave public spaces or be taken to specific locations without their direct consent would violate these rights.

In addition, the Constitution guarantees the inviolability of intimacy, private life and free movement (article 5, items X and XV), which prevents the State from coercively intervening in people's lives without legal justification or court order. The actions of the State must always respect human dignity, one of the foundations of the Federative Republic of Brazil (art. 1, III).

After months of intense work, the manager and his team were faced with a new challenge: how to measure the impact of public policies implemented for homeless people in the Federal District? The monitoring and evaluation mission proved to be crucial, because without clear and accurate data, it would be impossible to adjust and improve the strategies adopted. This would require efficient mechanisms to monitor the progress of programs and initiatives.

So, the working group began to develop a system of performance indicators that included metrics such as the number of people served by social assistance programs, the number of individuals who managed to get off the streets and the improvement in the living conditions of those who were still in a situation of vulnerability. However, the data were not so reliable, as the nature of the homeless population is fluid, many people changed locations frequently, making continuous monitoring difficult.

The big day: presentation of the plan proposed by the Working Group

With all the data and a dedicated team, Tadeu Now he faces the most difficult challenge of his journey, transforming a collection of information into a cohesive and effective action plan. The pressures are great, and time is scarce.

Each piece of data, each story collected is a piece of a puzzle that he needs to assemble to present concrete solutions to the governor.

Here is the dilemma: how to propose effective actions that are both realistic and impactful? It needs to consider the limited resources of the Federal District, the need for coordination between different levels of government, and the challenge of combating deep-rooted social prejudices. In addition, it must ensure that its proposals are inclusive, respecting the diversity of needs within the homeless population.

Questions for the discussion

1 - What are the main challenges that Tadeu faces when dealing with the growing number of homeless people in the Federal District, considering budgetary and political constraints?

2 - What are the main legal and political obstacles that Tadeu should consider when proposing solutions for homeless people?

3 - How can the articulation between different levels of government (Union, states, Federal District and municipalities) be improved to more effectively address the issue of homeless people?

4 - How can the use of public management tools help Tadeu develop and evaluate assistance programs for homeless people?

5 - How can Tadeu ensure that the proposed public policies respect human rights and are implemented ethically, considering the principle of human dignity?

6 - How can prejudices and social stereotypes impact the effectiveness of public policies for homeless people?

References:

IPEDF . Profile of the homeless population in the Federal District. Brasilia , 2022. https://segov.df.gov.br/df-nao-tem-o-maior-percentual-de-pessoas-em-situacao-de-rua/

Ministry of Human Rights and Citizenship. MDHC launches report on homeless people in Brazil; Study indicates that 1 in every thousand Brazilians is homeless. Sep 14 2023. https://www.gov.br/mdh/pt-br/assuntos/noticias/2023/setembro/mdhc-lanca-relatorio-sobre-pessoas-em-situacao-de-rua-no-brasil-estudo-indica-que-1-em-cada-mil-brasileiros-nao-tem-moradia#:~:text=Pessoas%20pardas%20(55%25)%20and,second%20more%20frequent%20(14%25)

CODEPLAN - Government of the Federal District. Planning Company of the Federal District. District Household Sample Survey (Pdad). 2021. https://www.codeplan.df.gov.br/wp-content/uploads/2022/05/Apresentacao_Distrito_Federal.pdf

About The Authors

Ana Luiza Araújo Dantas de Souza Barros she is a student at the Department of Administration (ADM/FACE) at the University of Brasília (UnB). He is a volunteer member of the ADM Casoteca. E-mail: aninhalulu2003@gmail.com

Jéssica Lainne Ramos Tavares is a Geologist from the University of Brasília (UnB), with specializations in Water and Environmental Management from the Federal University of Pará (UFPA) and in Competitive Intelligence and Marketing Innovation. He is currently a student of Administration at the Department of Administration (ADM/FACE) at UnB and works in the area of People Management at the State Secretariat for Social Development of the Federal District. He is a volunteer member of the ADM Casoteca. Interest in topics related to People Management, Women's Entrepreneurship, Innovation and Marketing. Contact: jessicalainnet@gmail.com

Adalmir de Oliveira Gomes is a Professor at the Department of Administration and the Professional Graduate Program in Public Administration (PGAP) at the University of Brasília (UnB). PhD in Business Administration from the University of Brasília (2014) with a postdoctoral degree from the School of Public and Environmental Affairs, Indiana University, USA (2019). Author of several papers and articles published in national and international scientific journals in the area of Public Administration. Leader of the research group Administration of Justice (AJUS) and organizer of the Meeting on Administration of Justice (EnAJUS). E-mail: adalmir@unb.br

This case was written from secondary information and based on other references cited. It is not the authors' intention to evaluate or judge the company in question. This text is intended exclusively for academic study and discussion, and its use or reproduction in any other form is prohibited. Copyright infringement will subject the offender to the penalties of Law No. 9,610/1998.