Effectiveness of public policies supporting innovative entrepreneurship

an analysis in light of the Centelha Program

Authors

DOI:

https://doi.org/10.59901/cz8y6z44

Keywords:

Innovative Entrepreneurship, Public Policies, Centelha Program

Abstract

The article analyzes the effectiveness of the Centelha Program in the State of Rio de Janeiro as a public policy to support innovative entrepreneurship. Based on the concept of entrepreneurial ecosystems (EE), the study highlights that effective policies must consider the startup life cycle stages and the territorial and socioeconomic inequalities of local ecosystems. Centelha, created by the MCTI, FINEP, and partners, aims to foster innovative ideas in the early stages, especially in underrepresented regions and groups. The analysis shows that although the program initially achieved territorial reach and mobilized diverse profiles, subsequent stages saw increasing concentration in the capital, reduced racial and gender diversity, greater approval of more mature projects, and proponents with formal education at the postgraduate level. It is concluded that Centelha reinforced preexisting inequalities, showing low effectiveness in democratizing innovative entrepreneurship. The article suggests improving the program's design through regional metrics, inclusive scoring systems, and stronger support actions in the early stages to increase access for underrepresented groups and municipalities outside the capital. The study underscores the importance of policies adapted to local contexts and continuous evaluations to ensure greater equity and effectiveness in fostering innovative entrepreneurship.

Author Biographies

  • Guilherme de Oliveira Santos, Faperj e PUC-Rio

    Master's and PhD in Public Policy, Strategies and Development from UFRJ. Currently, he is an Advisor to the Technology Directorate of Faperj and an Innovation Consultant at the ECOA Institute/PUC-Rio.

  • Renata Lèbre La Rovere, UFRJ

    Bachelor's degree in Economics, specialization in Industrial Economics from UFRJ (Federal University of Rio de Janeiro), D.E.A. in Productive Structures and Global Systems from Université Paris VII, and PhD in Economic Sciences from Université Paris VII, France. Currently, she is a retired full professor at the Institute of Economics of the Federal University of Rio de Janeiro, participating in the Innovation Economics Group and the Electric Sector Studies Group.

  • Caroline dos Santos Gonzaga, UFRJ

    Master's degree and doctoral candidate in Public Policy, Strategy and Development at UFRJ (Federal University of Rio de Janeiro)

References

ALKHARAFI, N. (2024). The role of women in driving national innovation and entrepreneurship through entrepreneurial ecosystems. Journal of Innovation & Knowledge 9, 100550.

ALVES, A.C.; FISCHER, B.B.; VONORTAS, N.S. (2021). Ecosystems of entrepreneurship: configurations and critical dimensions. The Annals of Regional Science, 67 p.73–106, DOI: 10.1007/s00168-020-01041-y.

AUDRESTCH, D; CRUZ, M.; TORRES, J. (2022). Revisiting Entrepreneurial Ecosystems. World Bank Policy Research Working Paper 10229. Disponível em: https://documents1.worldbank.org/curated/en/099413211142227958/pdf/IDU04c1d171703fac0466a083eb0c835a900e26d.pdf. Acesso em: 23 julho de 2025.

Baumol, W.J. (1990). Entrepreneurship: Productive, Unproductive, and Destructive. Journal of Political Economy, Vol. 98, No. 5, Part 1, p. 893-921.

BRASIL. (2018). Portaria MCTIC nº 4.082, de 10.08.2018. Institui o Programa Nacional de Apoio à Geração de Empreendimentos Inovadores - Programa Centelha.

BROWN, R.; MASON, C. (2017) Looking inside the spiky bits: a critical review and conceptualisation of entrepreneurial ecosystems. Small business economics, v. 49, n. 1, p. 11-30.

CERTI. (2019). Manual Metodológico Volume I - O Programa Centelha e sua Metodologia. Fundação Centros de Referências em Tecnologias Inovadoras.

CERTI. (2021). Manual Metodológico Centelha 2, Volume I - O Programa Centelha e sua Metodologia. Fundação Centros de Referências em Tecnologias Inovadoras. Versão 1.0.

ESLAMLOO, F; BROWN, K; BIYOUKI, Z.A. (2025). Successful commercialisation in startup accelerator programmes: How different startup ecosystems matter. Journal of Innovation & Knowledge 10, 100688.

FILIPELLI, S; TROISE, C; BILGLIARDI, B; CORVELLO, V. (2025). Examining the influence of entrepreneurial ecosystem pressure on the economic, social, and environmental orientation of startups. Technological Forecasting & Social Change 210, 123900.

FINEP. (2020). Manual operacional e de orientação ao parceiro. Programa nacional de apoio à geração de empreendimentos inovadores - Programa Centelha II. Financiadora de Estudos e Projetos - FINEP.

FUENTES, N; SCHMUTZLER, J; VARGAS, A.M. (2024). Unpacking the multilayered nature of entrepreneurial ecosystems: A conceptual complex adaptive system model. International Journal of Innovation Studies 8, p. 335–350.

FUERLINGER, G.; FANDL, U.; FUNKE, T. (2015). O papel do Estado no ecossistema do empreendedorismo: perspectivas da Alemanha. Triple Helix , v. 2, n. 1, p. 1-26.

GUERRERO, M; SIEGEL, D.S. (2024). Schumpeter meets Teece: Proposed metrics for assessing entrepreneurial innovation and dynamic capabilities in entrepreneurial ecosystems in anemerging economy, innovation and dynamic capabilities in entrepreneurial ecosystems in an emerging economy. Research Policy 53, 104984.

KAI, D.A.; LIMA, E.P; BENITEZ, G.P. (2024). A social cognitive perspective in innovation ecosystems: Understanding startups from ideation to consolidation in industry 4.0 era. Technological Forecasting & Social Change 209, 123592.

KANTIS, H.D; FEDERICO, J.S. (2015). Entrepreneurial Ecosystems in Latin America: the role of policies. Buenos Aires: Entrepreneurial Development Programme (PRODEM) – Institute of Industry, Universidad Nacional de General Sarmiento.

LA ROVERE, R.; MATOS, M. G. P.; SANTOS, G. O.; LIMA, A. P. C. E. S. (2020). Bridging the literature on innovation systems and entrepreneurial ecosystems: cross-fertilizations for understanding knowledge-intensive, social and environmental entrepreneurship.

LEENDERSTSE, J.; SCHRIJVERS, M.; STAM E. Measure Twice, Cut Once. (2020). Entrepreneurial Ecosystem Metrics. Working Paper Series, Utretch, v. 20, n. 1, p. 1-66, fev.

MONTEIRO, C.J.C; ARAÚJO, Y.V; RIBEIRO, L.S; SANTOS, G.O; LA ROVERE, R. L. (2022). Desafios para a definição de métricas nos ecossistemas de empreendedorismo e implicações para políticas públicas. VI Encontro Nacional de Economia Industrial – ENEI, Salvador. Disponível em: https://pdf.blucher.com.br/engineeringproceedings/vi-enei/839.pdf Acesso em: 23/07/2025.

PITTZ, T.G. (2024). Ballasts of the entrepreneurial ecosystem. Technovation 138, 103113.

Roundy, P.T; Evans, W.R. (2024) Entrepreneurial ecosystems as multiteam systems: Navigating independence and interdependence in the leadership of startup communities. Journal of Business Venturing Insights 21, e0044.

SANTOS, G. O. (2016). Alinhamento das incubadoras de empresas ao contexto regional no estado do Rio de Janeiro: uma comparação entre metrópole e interior. Dissertação de mestrado defendida no Programa de Políticas Públicas e Estratégias de Desenvolvimento, Instituto de Economia, UFRJ.

SANTOS, G. O. (2020). Caminhos para a construção de uma nova estratégia de desenvolvimento: Uma Abordagem Evolucionária do Sistema Regional de Inovação do Estado do Rio de Janeiro. 2020. 309 f. Tese (Doutorado em Política Pública, Estratégia e Desenvolvimento) – Universidade Federal do Rio de Janeiro, Rio de Janeiro.

SANTOS, G. O. (2022). Ciência, Tecnologia e Inovação no Estado do Rio de Janeiro. Nota técnica nº 004/2022, Subsecretaria de Planejamento Estratégico, Secretaria de Estado de Planejamento e Gestão do Rio de Janeiro (SUBPLE/SEPLAG-RJ). Disponível em: https://estrategia.planejamento.rj.gov.br/estrategia-api/wp-content/uploads/2023/01/Nota-Tecnica-no-004.2022.SUBPLE-Ciencia-Tecnologia-e-Inovacao-no-ERJ.pdf Acesso em 05/08/2025.

SANTOS, G. O.; CENDÃO, F. (2019). Desafios e Obstáculos para a consolidação de um ecossistema de empreendedorismo na cidade do Rio de Janeiro: Uma análise com base na visão dos principais players. Gestão & Regionalidade (online), v. 35, p. 161-183.

SANTOS, G. O; LA ROVERE, R. L.; BALOG, D. L. T.; GONZAGA, C. S.; LU NI, A. C. (2024). Políticas Públicas para Ecossistemas de Empreendedorismo: O caso do Programa Centelha RJ. Anais do XIII EGEPE - Encontro de Estudos sobre Empreendedorismo e Gestão de Pequenas empresas, Curitiba, p. 1-16.

SANTOS, G. O; LA ROVERE, R. L. (2022). As possibilidades e os limites da Triple Helix como alavanca de desenvolvimento regional no Estado do Rio de Janeiro: uma análise baseada nas especificidades dos Sistemas Regionais de Inovação. In: Marcelo Gonçalves do Amaral, Andréa Aparecida da Costa Mineiro; Adriana Ferreira de Faria (Orgs.). As Hélices da Inovação: Interação universidade-empresa-governo-sociedade no Brasil, Volume 1, 1 ed., Curitiba. CRV, p. 365-39.

SARASWATHY, S. (2008). What Makes Entrepreneurs Entrepreneurial? Charlottesville, Virginia: The Darden Graduate School of Business Administration, University of Virginia. Disponível em: https://22657557.fs1.hubspotusercontent-na1.net/hubfs/22657557/Public%20Documents%20For%20Site/what-makes-entrepreneurs-entrepreneurial-sarasvathy.pdf

SCHÄFER, S; FISCHER, B; SCHAEFFER, P.R; BALLESTRIN, A. (2024). Beyond local boundaries: Unraveling the spatiality of entrepreneurial ecosystems. Journal of Business Venturing Insights 22, e00478.

SEBRAE. (2024). Startups Report Brasil 2024. Serviço Brasileiro de Apoio às Micro e Pequenas Empresas. Disponível em: https://digital.sebraestartups.com.br/sebrae-startups-report-brasil-2024. Acesso em: 14/07/2025.

SEBRAE. (2025). Startups Report Rio de Janeiro 2025. Serviço Brasileiro de Apoio às Micro e Pequenas Empresas. Disponível em: https://digital.sebraestartups.com.br/startups-report-rj-2025. Acesso em: 21/07/2025.

STAM, E. (2015). Entrepreneurial ecosystems and regional policy: a sympathetic critique. European planning studies 23(9), p.1759–1769.

STAM, E.; SPIGEL, B. (2016). Entrepreneurial Ecosystems. Utrecht: School of Economics, Utrecht University.

STAM, E.; VAN DE VEN, A. (2021). Entrepreneurial ecosystem elements. Small Business Economics 56(2), p.809–832, DOI 10.1007/s11187-019-00270-6.

THAI, Q.H; MAI, K.N; DO, T.T. (2023). An Evolution of Entrepreneurial Ecosystem Studies: A Systematic Literature Review and Future Research Agenda. SAGE Open, January-March, p. 1–24, DOI: 10.1177/21582440231153060.

Published

2025-12-31