Quando nem todas as rotas de cooperação intergovernamental levam ao mesmo caminho: arranjos federativos no Brasil para promover capacidades estatais municipais

Abstract

Rev. Serv. Público Brasília 69, edição especial Repensando o Estado Brasileiro 85-122 dez 2018 Cuando no todas las rutas de cooperación intergubernamental llevan al mismo camino: arreglos federativos en Brasil para promover capacidades estatales municipalesEl artículo discute el federalismo brasileño y sus diversos caminos para obtener cooperación intergubernamental. El análisis empírico se centra en tres rutas federativas para promover capacidades estatales municipales. En la dimensión territorial, el Comité de Articulación Federativa, creado en 2003, asignado en la Presidencia de la República, y sus esfuerzos para calificar la gestión fiscal y administrativa municipal. En la dimensión de políticas públicas, el Sistema Único de la Asistencia Social, implantado en 2005, y el efecto de sus reglas para estimular la modernización de las Secretarías Municipales. Se comparó ese sistema nacional de políticas con el otro modelo, como es el caso de la educación, para evaluar los resultados de la implantación del Plan de Acciones Articuladas surgido en 2007. En la dimensión de programas, se evalúa el PMAT, creado en 1997 por el BNDES y el PNAFM, implantado por el Ministerio de Hacienda desde 2002. Se concluye que, con tantas rutas, producir e implantar políticas públicas en el federalismo brasileño es un verdadero caleidoscopio.Palabras clave: federalismo -Brasil, relaciones intergubernamentales, capacidad estatal, administración municipal When not all intergovernmental cooperation routes lead in the same direction: federal arrangements in Brazil to promote municipal state capacitiesThe article discusses Brazilian federalism and its various ways of achieving intergovernmental cooperation. The empirical analysis focuses on three federative routes to promote municipal state capacities. In the territorial dimension, the Federative Articulation Committee, created in 2003, allocated at the Presidency of the Republic, and its efforts to qualify municipal fiscal and administrative management. In the public policy dimension, the Single Social Assistance System, implemented in 2005, and the effect of its rules to stimulate the modernization of the Municipal Secretariats. This national policy system is compared with another model, such as education, to evaluate the results of the implementation of the Articulated Action Plan that emerged in 2007. In the dimension of programs, it is evaluated the PMAT, created in 1997 by the BNDES and PNAFM, implemented by the Ministry of Finance since 2002. It is concluded that, with so many routes, producing and implementing public policies in Brazilian federalism is a true kaleidoscope.

verso e o reverso da cooperação federativa e da difusão vertical de políticas para promover capacidade estatal nos municípios brasileiros

“…Aa hipóteses analisadas mostram que a construção de capacidades estatais (Evans, 1995;Grindle, 1996;Grin & Abrucio, 2018b;Olsen, 2005;Rueschemeyer & Evans, 2002;Schmitter, Wageman, & Obydenkova, 2005;Sikkink,1991) é pouco provável de ser alcançada com o modelo de difusão vertical de políticas adotado pelo PNAFM. A cooperação federativa para promover capacidades estatais, ao menos nas duas variáveis analisadas, não parece ser uma rota apropriada para lograr êxito nesse objetivo.…”

Construção de um modelo de análise de redes de políticas públicas em contextos de federalismo e de presidencialismo de coalizão

“…The new context of autonomy was absent from incentives for coordination and cooperation (ABRUCIO, FRANZESE and SANO, 2013). Grin and Abrucio (2018) note that municipalities' low state capacities (administrative, technical, political, and institutional) represent a significant obstacle. It is possible to say that municipalities took on new responsibilities without having the necessary competencies.…”

The Brazilian states and the Federal Social Assistance System: state capacity-building in Maranhão and São Paulo

“…Thus one important impact of the logic of the public policy systems has been the gradual and continued strengthening of the state capacities of subnational governments to implement policies (ABRUCIO, FRANZESE and SANO, 2013;BICHIR, 2016a;FRANZESE and ABRUCIO, 2013;GRIN and ABRUCIO, 2018). That is because the implementation of policies on a national scale makes demands on the Union's coordinating capacity and more than that, it depends on the institutional capacities of local governments to meet the demands of municipalization (BICHIR, 2011).…”

“…The transferal not only of resources associated to programs but the greater part of their respective administration to those spheres of government created conditions for the emergence and strengthening of a local bureaucracy (FRANZESE and ABRUCIO, 2013). It is reasonable to assume, therefore, that designs of the public policy systems operate within a framework of measures and regulations aimed at obtaining state capacity development at the sub-national level (BICHIR, 2011(BICHIR, , 2016aGRIN and ABRUCIO, 2018).…”