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Social enterprises are embedded in ecosystems with multiple actors interested in the field’s growth. One way to enhance social enterprises is through public policies and developing countries like Brazil included this in the public agenda. After an important mobilization of private organizations and public managers, the Brazilian federal government implemented in 2017 the National Impact Investment and Business Strategy (ENIMPACTO) renamed in 2023 to National Impact Economy Strategy with the same abbreviation. Since its creation, ENIMPACTO saw significant modifications leading to a decree in 2023 extending its mandate, amplifying membership and changing its name to the National Impact Economy Strategy while maintaining the same acronym. This experience leads us to the following question: How was ENIMPACTO created and developed?

We used institutional arrangements and advocacy coalition theory to analyze the key elements that contributed to ENIMPACTO’s creation and its evolution through time. A qualitative, single-case study on the Brazilian experience implementing ENIMPACTO was conducted through semi-structured interviews with national strategy members, participant observation, document and data analysis.

We argue that advocacy coalition and institutional arrangements frameworks combined are needed to understand Enimpacto’s complexity. The strategy presented an extensive multiple-actor articulation involving shared beliefs that were also important to gather support on recreating and expanding Enimpacto when external events threatened its continuity. Yet, it presented important challenges on how to achieve consensus and alignment regarding important concepts and regulation strategy among the actors and manage the public policy governance and activities implementation.

We combine institutional arrangements and advocacy coalition frameworks and apply them to analyze a public policy composed of actors of multiple sectors that play an active advocacy coalition role. We also present empirical evidence that elements of the advocacy coalition framework add analytical elements to institutional arrangements literature and how they affect each other. We point to two important elements of the institutional arrangements framework (territoriality and subsidiarity) that were not initially considered by ENIMPACTO and were later incorporated because of tensions in the field. We provide empirical evidence of the incipient role that public administration can play in promoting social enterprises' agenda that might base similar strategies to boost social enterprises in other locations.