{"id":123822,"date":"2025-12-11T07:10:00","date_gmt":"2025-12-11T10:10:00","guid":{"rendered":"https:\/\/www.ufrgs.br\/jornal\/?p=123822"},"modified":"2025-12-09T10:51:25","modified_gmt":"2025-12-09T13:51:25","slug":"a-lasting-mobilization-of-volunteer-citizens-highlights-the-need-to-rethink-the-model-of-public-administration","status":"publish","type":"post","link":"https:\/\/www.ufrgs.br\/jornal\/a-lasting-mobilization-of-volunteer-citizens-highlights-the-need-to-rethink-the-model-of-public-administration\/","title":{"rendered":"A lasting mobilization of volunteer citizens highlights the need to rethink the model of public administration"},"content":{"rendered":"\n

Public Policy | Community initiative was essential during the chaotic period following the flood. However, the ongoing need for prolonged volunteer efforts highlights the fragility of a state structure that has been delegating its services to private institutions<\/strong>
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*By Cristiane Miglioranza
*First published in July 4, 2024
*Photo: Volunteers working on the cleaning of the Oi Nois Aqui Traveiz headquarters (Credit: Fl\u00e1vio Dutra)<\/em><\/p>\n\n\n\n

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Since the end of April 2024, Rio Grande do Sul has been experiencing the effects of one of the biggest climate disasters in its history. According to the monitoring of rain impacts by Civil Defense-RS, out of the State\u2019s 497 municipalities, 478 were directly affected. Nearly 2.4 million people were impacted, and over 420,000 were left homeless. As of July 1, monitoring recorded 179 confirmed deaths and 33 people still missing.<\/p>\n\n\n\n

The calamity and the massive number of climate refugees sparked solidarity efforts both in Brazil and abroad. Thousands of volunteers actively participated in rescues, the creation and maintenance of shelters, donation drives, and cleanup efforts, among various other humanitarian initiatives. This spontaneous mobilization extended far beyond the initial 24 hours\u2014considered the “emergency phase”\u2014and is already showing signs of fatigue. Appeals for volunteer help in shelters and community kitchens continue, as do requests for donations of food, hygiene items, cleaning supplies, clothing, and pet care products.<\/p>\n\n\n\n

In a scenario marked by the unpreparedness of state and local governments, community self-organization brought forth the sentiment of \u201cthe people for the people\u201d as an increasingly reinforced and widely shared slogan on social media. Although the feeling of abandonment is real, experts warn that the notion of the State as an outdated concept is a harmful illusion. According to Eduardo Dullo, professor in the Graduate Program in Social Anthropology (PPGAS\/UFRGS), people still confuse the State with the government.<\/p>\n\n\n\n

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\u201cThe government is temporary. The State remains. Calamities like the one we are experiencing now bring to light the need to think in terms of State policies. Especially because climate change can no longer be ignored or denied.\u201d<\/p>\nEduardo Dullo<\/cite><\/blockquote>\n\n\n\n

The professor is the author of the book \u2018\u2019A Horizon of (Im)possibilities: A Chronicle of Brazil\u2019s Conservative Turn\u2019\u2019. Co-edited with anthropologist Katerina Hatzikidi, the work analyzes the impacts of recent phenomena in Brazil, including the rise of the far right and the climate crisis.<\/p>\n\n\n\n

Aragon Dasso Jr., a professor at the UFRGS School of Administration and leader of the Research Group on State, Democracy, and Public Administration (GEDAP), explains that public administration is the administrative arm of the government. \u201cWhen the government begins to implement a model of the State, it designs a profile of public administration that is more or less robust, more or less service-oriented.\u201d The professor identifies in the disaster scenario unfolding in Rio Grande do Sul, especially in Porto Alegre, two ultraliberal governments with a rhetoric of dismantling the public sector.<\/p>\n\n\n\n

\u201cTo present this idea of dismantling as something positive, these governments use euphemisms like \u2018desestatiza\u00e7\u00e3o\u2019 (de-statization) instead of \u2018privatization.\u2019 This makes it harder to understand the model of the State they are implementing. Such model of privatization increasingly delegates public services to private institutions \u2013 profit-driven or non-profit \u2013 whether such services involve infrastructure, concessions, permits, or management. Those that are profit-driven charge fees to citizens, who are then referred to as users or customers.\u201d The researcher draws attention to the fact that concessions are also privatizations, even if temporary. \u201cThe logic of the private sector prevailing over the public is at the core of such governments,\u201d he adds.<\/p>\n\n\n\n

\u2018\u2019By the people, for the people\u2019\u2019<\/strong><\/h5>\n\n\n\n

Dasso Jr. points to the dismantling of public administration as one of the elements behind the idea that the State, as a social organization, is ineffective. According to the researcher, voluntarism takes on the role of the state protection network following the collapse of public services that have been undermined and, therefore, become unable to respond to the crisis. \u201cIt forms as a solidarity network, initially spontaneous. It\u2019s a person who enters the neighboring house to rescue someone in danger. In other words, something entirely altruistic, supportive, and voluntary. But this spontaneity has a short lifespan, a limited duration. It is, in fact, desirable in emergency situations where, even though an established state network exists, this community help may still be needed,\u201d he points out.<\/p>\n\n\n\n

The researcher emphasizes, however, that this type of mobilization is expected during an emergency, which encompasses the first hours after a tragedy occurs. After this period, it is expected that the public administration takes charge of the situation. \u201cThe emergency positively mobilizes this sense of community, of solidarity. In the second phase, when the tragedy intensifies, the state\u2019s protection network should already be in place. Suddenly, 48 or 72 hours have passed, and people are still being rescued from the waters. Then people from other parts of Brazil and the world, from other cities in Rio Grande do Sul, start arriving because it\u2019s still an emergency. A week goes by, and we still have people traveling here, arriving and still managing to rescue someone from an inundated house. It\u2019s insane to think that this is still an emergency,\u201d he emphasizes.<\/p>\n\n\n\n

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\u201cThe discourse of \u2018by the people, for the people\u2019 does not appear spontaneously. A citizen who voluntarily went to help did so because the firefighter or Civil Defense wasn\u2019t there. When this network is in place, the volunteer steps back, having fulfilled their role. In administrative law, we have a term for what this citizen did, which is called a \u2018de facto public servant.\u2019 It\u2019s the person who, in an emergency, steps in as if they were the State, but knows it\u2019s only because of the emergency.\u201d<\/p>\nAragon Dasso Jr.<\/cite><\/blockquote>\n\n\n\n

For anthropologist Eduardo Dullo, the idea of “the people for the people” has the positive aspect of citizen mobilization. However, it obscures the reasons that made it indispensable. \u201cThe problematic point is that this becomes absolutely essential because there is no governmental or state apparatus to handle the situation. In other words, if we only focus on the positive side, we fail to reflect on why a long-lasting mobilization of volunteer citizens has become absolutely necessary.\u201d<\/p>\n\n\n\n

Aragon Dasso Jr. emphasizes that the discourse claiming the State is in crisis is also reinforced by opinion leaders, such as digital influencers. \u201cThe State is not in crisis. What is in crisis is this ultraliberal model. Only the State can respond to the crisis \u2013 this is an undisputed point even in the most ultraliberal countries in the world. We are seeing private companies seeking financial and logistical support from the State,\u201d he highlights. For him, the importance of state policy became evident during the COVID-19 pandemic. \u201cIt was when the citizen looked at the SUS (Unified Health System) and said \u2018Thank goodness it exists,\u2019 because without it, the death toll would have been much higher. Fortunately, it is a state structure that hasn\u2019t been completely dismantled.\u201d<\/p>\n\n\n\n

From an anthropological perspective focused on political and democratic issues, Dullo invites reflection on who this “people” are. \u201cIt\u2019s interesting to think about who are those volunteers. It\u2019s an idea that encounters a limitation because there is an entire structure of public institutions, such as universities, that are voluntarily making themselves available to the State to add to the reconstruction of Rio Grande do Sul.\u201d<\/p>\n\n\n\n

For Dasso Jr., the fact that the ESEFID shelter became a reference highlights the importance of the University to the community. \u201cIf there is a group of public servants with an expertise \u2013 and who transmit it to different and complementary areas \u2013 associated with technicians and students who also carry such knowledge, these are qualified people who feel responsible because, in theory, they have a vocation for the public service. This could be a model to be used in several places, but, in fact, what should exist is a model created by the Municipality itself, by the State Government itself, where UFRGS would act as support and not as the central and essential hub for the entire direct service. What is happening is the opposite: we are providing direct and localized services instead of being the main support for established networks,\u201d he claims.<\/p>\n\n\n\n

Based on first-hand experience with volunteering alongside displaced people and in response to the need for guidelines to organize the increasing number of shelters as more and more people required refuge, members of the Contraponto Project at UFRGS created a guide for managing shelters for people in climate disaster situations. Emerging from the demands encountered in the daily life of the shelters, the guide aims to assist in the design and management of spaces that house flood victims, with a focus on the municipality of Porto Alegre.<\/p>\n\n\n\n

“We identified several important issues in the management of these spaces and wondered how we could help. Based on the technical knowledge of our team, we understood that we could write a technical guide to assist civil society members who carry out this essential work during difficult times like the one we are living in,” says Fab\u00edola de Carvalho Leite Peres, a PhD student in Social Anthropology and vice president of Contraponto. The development of the guide involved collaboration with other universities, such as the Youth Action Hub and the Academic Center for Public and Social Administration at UFRGS.<\/p>\n\n\n\n

In the catastrophe, the members of Contraponto got involved in different ways: working in shelters, gathering and sharing information, and collecting donations. “In general, all those who volunteered in shelters began their activities between the first and second week of implementing spaces like IPA, Centro Vida, CTG 35, Col\u00e9gio Estadual J\u00falio de Castilhos, ESEFID, and CIBAI\/Miss\u00e3o Pompeia. Most of them continue to be involved, adjusting their participation according to their available hours,” says Fab\u00edola.<\/p>\n\n\n\n

The guide was sent to the Social Development Department of Porto Alegre, which showed interest. “Our goal has always been for the guide to reach the managers of as many shelters as possible. We understood, therefore, that contact with the City Hall would be important for such dissemination. In a way, it was acknowledged by the Department that there was a significant gap for this type of tool. The material would be of great use to everyone,” she explains.<\/p>\n\n\n\n

The guide was entirely created by the volunteer team of the Contraponto Project, made up of researchers and university students from fields such as Public Policy, Anthropology, Biology, History, Social Work, and Electrical Engineering. It was validated by various partners, including volunteers who have worked in shelter locations. “In other words, the public authorities did not participate in the development of the guide,” says Fab\u00edola. The material enabled the organization of several shelter spaces and assisted various social initiatives.<\/p>\n\n\n\n

Signs of burnout<\/strong><\/h5>\n\n\n\n

Even after many people have left the shelters, either due to the possibility of returning to what remained of their homes, or through other arrangements such as living with relatives or leaving the state, volunteers continue to be requested by support services. Many of those who volunteered in the first weeks of the calamity stopped their involvement either due to the need to return to their daily activities or because of physical and mental health issues. There were also those who found themselves among those directly affected by the flood.<\/p>\n\n\n\n

Eduardo Dullo points out the lack of labor regulations in the case of climate catastrophes in Brazilian legislation. “Capitalism exerts pressure on both volunteers, who are pressured by their employers to abandon their volunteer service activities, and on the displaced individuals, on whom the pressure is even more inhumane.” <\/p>\n\n\n\n

Dasso Jr. also highlights the need for public policies and, more emphatically, for questioning the privatization state model. “We will increasingly see this because there is no longer an environmental risk, there is certainty of environmental damage. Situations like those that happened in September 2023 in part of Rio Grande do Sul and in May 2024 will repeat themselves; this is not a matter of futurism. It is science saying this. We should not expect another 80-year cycle like the one occurred between the 1941 flood through the 2024 one. Perhaps even this year, in this state and this country,” he emphasizes.<\/p>\n\n\n\n

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“Therefore, if this state modeling disarray is maintained, we will face the same trials. That\u2019s why I believe the \u2018people for the people\u2019 rhetoric is an opportunistic slogan, because it\u2019s not a people for the people that finances itself through social chaos. These are legal entities, organizations with or without profit that have owners, and to which this state model transfers services.”<\/p>\nAragon Dasso Jr.<\/cite><\/blockquote>\n\n\n\n

Discarded Volunteering and the Phenomenon of NGO-ization<\/strong><\/h5>\n\n\n\n

The guide created by the Contraponto Project was an emergency response that was accepted by the public administration as essential during the crisis. However, as Dullo and Dasso Jr. emphasize, when it comes to rebuild cities and the state, public universities \u2013 as institutions of science that act voluntarily \u2013 continue overlooked, with the State Administration turning to private consultancies and organizations for proposals.<\/p>\n\n\n\n

Eduardo Dullo suggests looking at the idea of unwanted volunteering. “This is the case of a recovery plan after the flood offered by UFRGS which was disregarded by the Porto Alegre City Hall, which opted for a private consultancy.” The anthropologist emphasizes that, although this private consultancy may be free at first, it benefits from an economic exchange that isn’t necessarily monetary but involves data and information. “Universities are a type of volunteer willing to do what’s necessary, with knowledge and research to propose solutions and alternatives, integrated into the community, understanding its geographical, economic, and social reality. A type of volunteering that the government doesn’t want. It is accepted for temporary climate refugee shelters but not beyond that.”<\/p>\n\n\n\n

Dasso Jr. explains the progression from community-based networks to professional networks that take over the coordination of volunteer support services. “After four or five days, a week, we no longer see solidarity. Professional networks, such as NGOs, private and non-profit entities, take over \u2013 professionals who make a living from this, who have turned it into a business with employees, who begin to operate through resource acquisition, funding agreements, and cooperation with the public administration. They also take advantage of this situation to receive donations. Many of these professionals worked in Brumadinho and Mariana.”<\/p>\n\n\n\n

For the expert in public administration and policies, it is during such events that the role of science through its institutions becomes evident. “This is why public universities exist, for their community, through the triad of teaching, research, and outreach. Not just in the logic of service provision, but in the exchange of knowledge. We have a point of view in this debate that is not only scientific. It is political, obviously. Ultimately, we are responsible for science. When it becomes clear that the privatization of essential services has failed everywhere in the world and that re-statization is a model already being implemented in many places, we feel as if we\u2019ve been swimming against the tide. It causes unease and discomfort to look at our main leaders, especially the governor and mayor, holding a \u2018we-need-your-help\u2019 speech.’ We need elected leaders who point the way, not the ones who shift responsibility. And then, in the midst of this chaos, while the university is saying ‘We are here,’ the government is turning us its back and hiring consultancies, spending public money,” he emphasizes.<\/p>\n\n\n\n

According to Dasso Jr., the phenomenon of “NGO-ization” distorts the role of civil society. “My concern is that we eventually fall into the trap of expanding these private networks to an extent where voluntarism becomes the rule. Voluntarism can be accepted in an emergency situation, but not as a rule. There is also the issue of voluntary work taking away jobs. We can look at the 2014 World Cup in Brazil as an example. Ten years ago, there were a lot of people working for free for FIFA, a private entity. They were provided with a snack, a participation certificate, and a vest. They should have hired Brazilian workers,” he concludes.<\/p>\n\n\n\n

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Translated into English by Amanda Cavagnoli Andreotti<\/strong>, undergraduate student enrolled in the course “Supervised Translation Training I (English)” of the Undergraduate Program in Language and Literature, under the supervision and translation revision of Professor Elizamari R. Becker (P.h.D.) – IL\/UFRGS.<\/p>\n\n\n\n

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Explore the full section In English<\/strong> <\/a><\/div>\n<\/div>\n\n\n\n
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Public Policy | Community initiative was essential during the chaotic period following the flood. However, the ongoing need for prolonged volunteer efforts highlights the fragility of a state structure that has been delegating its services to private institutions.
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