This is the first of a “duology” of articles reporting on an action research project about public health services in Venezuela. This first paper presents a summary of a conceptual framework from which a process of intervention was launched. The second paper, which follows immediately in this special issue, presents a narrative of the intervention process and a final discussion about it. The conceptual framework is constituted by two types of interpretive models of the role of the state concerning health services. On the one hand, four