The analysis of public policy on territorial development in Brazil points to the power asymmetries that are established in the decision spaces. To characterize the action in these public spaces, the characteristics and connections of the socio-technical networks established in the "Território de Aguas Emendadas" (DF-GO and MG) were analyzed. The results show that the new councils concentrate the powers and benefits instead expand spaces for staff and organizations (plurality of ATER). The power of network technicians can access information and resources for the projects, however, these technicians are brakes on the process of participation: by the claim of exclusive jurisdiction, by differential access to information, by the creation of parallel spaces for negotiation and consequent weakening of the official spaces of participation. Finally, given the creation of at least two paths to financial resources (ATER official and NGO's), there are networks that oppose and compete with farmers for financing projects.