Stakeholder mapping: advancing research on sexual and reproductive health policies and income protection for cisgender and transgender female sex workers in Buenos Aires, Argentina.
Panizoni E, Esandi M, et al. • Frontiers in public health • 2026
Stakeholder mapping proved to be a valuable tool for understanding the political landscape while ethically centering the voices of female sex workers, identifying 147 key actors across sectors with 16% as promoters, 68% as supporters, and 10% as blockers of sexual and reproductive health policies in Buenos Aires.
Key Findings
Results
A total of 147 key stakeholders were identified across multiple sectors relevant to sexual and reproductive health (SRH) of female sex workers (FSWs) in Buenos Aires.
Sectors represented included government, civil society, academia, abolitionist community organizations, health services, media, and national and jurisdictional governments.
The mapping was conducted between February and September 2023.
Identification used both primary and secondary sources.
The process involved a series of internal meetings and consultations with relevant community organizations.
Results
Only four stakeholder categories had detailed knowledge of the SRH situation and policies focused on female sex workers.
The mapping included analysis of stakeholder knowledge, level of agreement/interest, and level of influence/power.
Average values of knowledge, power/influence, and interest/agreement were calculated for each stakeholder category.
The limited distribution of detailed knowledge highlights gaps in awareness across the broader stakeholder landscape.
Results
The majority of identified stakeholders (68%) were categorized as supporters of SRH policies and income protection for female sex workers.
Supporters included FSWs themselves and the civil society organizations representing them, who also actively participated in the mapping process.
The six stakeholder position types identified were: promoter, supporter, neutral, observer, high-risk blocker, and low-risk blocker.
Absolute and relative frequencies were estimated for each stakeholder category.
Supporters represented the largest single stakeholder category at 68% of all identified actors.
Results
National and jurisdictional governments stood out as the primary promoters of SRH policies for female sex workers, comprising 16% of all stakeholders.
Promoters were defined as stakeholders with high knowledge, high interest/agreement, and high influence/power.
16% of the 147 identified stakeholders were categorized as promoters.
National and jurisdictional governments were specifically highlighted within this promoter category.
Results
Abolitionist community organizations and security forces were identified as the primary blockers of SRH policies for female sex workers.
Blockers comprised 10% of all identified stakeholders.
Blockers were categorized as either high-risk or low-risk blockers within the stakeholder matrix.
Observers accounted for 3% and neutral stakeholders for 3% of the total.
The presence of abolitionist organizations as blockers reflects existing ideological tensions around sex work policy in Argentina.
Methods
The three-stage prospective stakeholder mapping methodology provided a replicable framework for analyzing health policy landscapes related to marginalized populations.
Stage 1 involved identification and categorization of stakeholders using primary and secondary sources.
Stage 2 involved analysis of stakeholder knowledge, level of agreement/interest, and level of influence/power.
Stage 3 involved characterization of stakeholder positioning using a matrix with six position types.
The authors describe the methodology as providing 'a replicable methodology for similar initiatives in other socio-political contexts.'
Background
The stakeholder mapping was conducted as a foundational step toward developing an implementation project supporting both cisgender and transgender female sex workers.
The project aimed to support SRH policies and income protection specifically for cisgender and transgender sex workers in Ciudad Autónoma de Buenos Aires (CABA).
The mapping was described as 'a crucial tool in health policy and systems and research to identify, categorize, and characterize key stakeholders involved in policy planning and implementation.'
FSWs and their representative civil society organizations were actively included as participants in the mapping process, not only as subjects.
What This Means
This research describes a systematic process called 'stakeholder mapping' carried out in Buenos Aires, Argentina, to identify who the key players are in shaping health policies and income protections for cisgender and transgender female sex workers. Between February and September 2023, researchers worked with community organizations to identify and categorize 147 individuals and groups — from government agencies and civil society organizations to media outlets, health services, and security forces — analyzing how much knowledge, influence, and interest each had in these policies. Sex workers themselves and their representative organizations were included as active participants in the process, not just as subjects of study.
The mapping found that most stakeholders (68%) were 'supporters' of better sexual and reproductive health policies for sex workers, while 16% were active 'promoters' — primarily national and local government bodies. However, 10% were identified as 'blockers,' meaning they actively oppose such policies; these were mainly abolitionist organizations (groups that oppose sex work entirely) and security forces. A notable finding was that only four categories of stakeholders had detailed knowledge of the actual health situation and existing policies for female sex workers, suggesting widespread gaps in awareness.
This research suggests that stakeholder mapping is a useful tool for understanding the political landscape before launching health programs aimed at marginalized populations. By identifying who holds power, who has knowledge, and who is likely to support or block change, policymakers and advocates can better plan their strategies. The authors propose that this three-stage methodology could be adapted and used in other countries or contexts facing similar challenges around sex worker health and rights.
Panizoni E, Esandi M, Zalazar V, Aristegui I, Argüello A, Cardozo N, et al.. (2026). Stakeholder mapping: advancing research on sexual and reproductive health policies and income protection for cisgender and transgender female sex workers in Buenos Aires, Argentina.. Frontiers in public health. https://doi.org/10.3389/fpubh.2025.1655388