Brazil's enduring struggle: From job hunters to state capture

The assassination of U.S. President James Garfield in 1881 by a disgruntled "job hunter" spurred the Pendleton Act of 1883, a landmark in U.S. federal civil service meritocracy. However, the sustainability of such reforms is not guaranteed, especially when one political force disproportionately controls patronage resources.

In democracies, incumbents use appointments to reward allies and win elections. They are unlikely to relinquish this advantage unless both major political forces face similar losses from restricting patronage. This creates a "prisoner's dilemma" scenario where politicians might collectively prefer an impartial bureaucracy but hesitate to disarm unilaterally. Merit-based recruitment rules can thus act as a mutual disarmament mechanism, fostering reform when neither party fears being at a disadvantage.

Brazil followed a unique path. While its 1934 constitution introduced civil service exams, their implementation accelerated under the Estado Novo with the creation of the DASP in 1938, establishing professional bureaucratic cores. Post-war democracy saw these cores survive, though professionalization advanced unevenly. The 1988 constitution extended the exam requirement to states and municipalities. However, this did not fully replace patrimonialism with meritocracy but rather accommodated it. Professional careers and sectoral bureaucracies solidified, particularly at the federal level, creating "meritocratic islands." Simultaneously, leadership and decision-making roles across all three branches of government remained susceptible to party networks, nepotism, and illicit interests. At state and municipal levels, temporary contracts and an excess of appointed positions further illustrate this persistent issue.