THE DESIGN OF TARGET POPULATIONS IN HUMAN RIGHTS POLICIES: A COMPARATIVE ANALYSIS OF THE MULTI-YEAR PLANS OF THE STATE CAPITALS

Abstract

This article analyzes how the 2018–2021 Multi-Year Plans (PPAs) of 22 Brazilian state capitals define the target populations of human rights, social assistance, and citizenship policies. Grounded in policy design theory and the social construction of target populations, the study examines which groups are named, combined, or omitted in municipal planning instruments. Based on document analysis, we built an original database comprising 1,774 actions/sub-actions and 2,928 mentions of target populations, classified into 18 categories using a language model validated by human annotators, distinguishing mention incidence from action coverage. The analyses combine frequencies by region and capital, concentration measures (Herfindahl-Hirschman Index and effective number of categories), and a complementary cluster analysis. Results show a predominance of broad categories (Universal and Social Vulnerability), coexisting with specific framings, especially institutionalized age-based groups, while identity-based categories remain marginal and Roma and quilombola communities are absent. Multiple classification is the exception, indicating that populations are treated as segmented groups. Heterogeneity across capitals is structured but gradual: concentrated, diversified, and low-specification profiles coexist along a continuum of concentration and specification. We conclude that the local design of these policies reproduces hierarchies of visibility and involves trade-offs between inclusion and precision, reflecting distinct social constructions, institutional trajectories, and state capacities.