This research aims to understand the National Pact for Literacy at the Right Age (PNAIC) and its changes in the period 2013-2019, having as a guideline the perception of its actors and as a lócus the State of Rio de Janeiro. As a national policy, the PNAIC was instituted by the MEC as a formal commitment made by the Federal government, the Federal District, the States and the Municipalities, in a collaborative system, with the goal that all children should be literate until the end of the literacy cycle. Thus, it involved complex federative relationships and a multiplicity of organizations. The thesis dialogues with part of the literature on implementation, especially with Matland s (1995) models of ambiguity and conflict in public policy implementation, and adopts an interpretative approach (YANOW, 2000) to investigate the meanings constructed by actors about the PNAIC, with emphasis on the main changes that took place in its configuration between 2013 and 2018. In the specific case of the State of Rio de Janeiro, despite the discontinuity of the PNAIC nationwide, the implementation of the policy was sustained in 2019 by the state Steering Committee initiative, with 75 of the 92 municipalities of Rio de Janeiro. Among the results of the implementation of the PNAIC in the state of Rio de Janeiro, it was found that many municipalities created in their own secretariats a department or section of literacy, and that most of the literacy teachers were looking for more training, both in graduation and post-graduation level. As main conclusions, it can be attributed to the meanings constructed by the actors in relation to the PNAIC some changes in the policy configuration itself, which occurred over time. Since its inception, the idea of the Pact has prompted a mobilization of various actors and institutions around the commitment to literacy and it has played an important role motivating the participation and adherence of States and Municipalities. At the federal level, the change from the first to the second PNAIC configuration gave management a prominent place, aiming that the continuing education of literacy teachers would get capillarity and reach the most distant municipalities, assigning the overall coordination to the State Secretariats in place of the universities. Regarding the coordination of formation of the PNAIC in the State of Rio de Janeiro, the interpretations of the implementing agents on continuing education were linked to the promotion of teacher autonomy and to more horizontal forms of interaction between university and school, favoring continuing education as exchange of experience. These were also principles and values that had been guiding UFRJ s work with teacher training in such a way that it can be stated that the interpretations and formative experiences of UFRJ guided the PNAIC s continuing education activities in the State of Rio de Janeiro. Finally, the meanings given by the actors involved in the coordination of the PNAIC, led the Rio de Janeiro State Secretariat of Education, UNDIME and UFRJ to articulate themselves around a project to continue the Pact for Literacy in Rio de Janeiro.