Forging alliances: political competition and industrial policy in democratic Brazil

Abstract

Most of the literature on the politics of industrial policy describes a policy realm that is dominated by business–state relations. This paper goes beyond this and proposes that, in democratic settings, political competition and civil society actors also play a vital role in industrial policy. Through a lens focused on Brazil during the 2000s, the study delves into the dynamics between the election of a centre-left party and the subsequent industrial policy, highlighting the interplay of democratic mandates, entrenched economic interests, and supportive developmental alliances. Notably, the continuation of a centre-left coalition and consistent institutional frameworks witnessed considerable shifts in industrial policy outcomes, which allows for an in-depth evaluation of interest group influence on policy formation and implementation. By triangulating data from 23 interviews with actors in the industrial policy process, data from the Brazilian National Development Bank (BNDES), and an analysis of industrial policy plans, this paper posits that the prevalence of economic issues in the electoral debate and the participation of societal actors in the policymaking process are enablers of innovation-focused industrial policies; this allows governments to countervail the power of incumbent sectors and undertake policies that are not favoured by the prevailing business interest.