From creeping crisis to policy change: The adoption of drought preparedness policy in Brazil

This paper aims to understand the national-level policy change that occurred in Brazilian drought management, whereby the policy shifted from reactive crisis management to a drought preparedness approach. We found that a combination of factors supported the policy change, such as the interplay of multiple drought events in different regions of the country, the length and timing of these events, attention paid to the issue, and the role of policy entrepreneurs and political entrepreneurs in connecting solutions to the problem. The analysis is based on the multiple streams framework (MSF), which includes two windows of opportunity: an agenda window, to account for the juncture at which the drought issue appeared on the political and public agenda; and the decision window, when a drought preparedness instrument was designed and adopted. We contribute to the literature on policy change in the wake of a disaster by showing how a long-duration event sparked policy change and by shedding light on the role of creeping crises as focusing events; and we contribute to the MSF literature by analytically distinguishing the features of the agenda and the decision window and by applying the theory to a Latin American context.