Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE
Autor(a) principal: | |
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Data de Publicação: | 2017 |
Tipo de documento: | Dissertação |
Idioma: | por |
Título da fonte: | Repositório Institucional do FGV (FGV Repositório Digital) |
Texto Completo: | http://hdl.handle.net/10438/18222 |
Resumo: | In federalist nations, the specific institutional structure that articulates autonomy and unity (or self-rule and shared-rule, according to Elazar’s definition in 1987) has been appointed as an obstacle to the expansion of social policies and to its intergovernmental coordination. As stated by Pierson (1995), although highly interdependent, the public policies in federalist countries are only modestly coordinated. Deil Wright (1978), indicates that intergovernmental relations in federalist nations may be organized through a pattern that reinforce hierarchy and dependence of subnational governments or as patterns of negotiation and interdependence. Brazilian researchers on the theme have pointed out that the specific authority structure in terms of fiscal resources, political autonomy, and constitutional jurisdiction in each policy area have an important role on defining the IGR pattern. Besides, although Brazilian municipalities having been able to gain political autonomy, increment its fiscal share and receive constitutional jurisdiction over a wide set of policy areas, the decision on major policies regulatory milestones often remains centralized in the federal level. From this theoretical approach, in the present study we review the vertical distribution of authority in Brazilian National School Meals Program (PNAE) to then assess the coordinating federal ability in the program. This evaluation was conducted based on the case study of the implementation of a federal regulation that stipulated that at least 30% of federal resources should be spent with purchases from family farmers, preferably locals. This was, as we see it, the regulation that have most hardly revealed that a centralized decision structure in the program remained even after the decentralization that took place in 1994, when states and municipalities have started executing the program. The data analysis of 4992 municipalities (90% of the total of Brazilian local governments) from 2011 to 2014 shows that the municipalities’ adaptation to the regulation devolved in a stable and growing pattern, in local governments of all sizes and of all national regions. Although around 60% of municipalities have not reached the minimum target of 30% by 2014, there is a clear progress towards that. We thus conclude that there is a high federal coordinating capacity on the program. This capacity is built upon a centralized authority structure with little room for a cooperative approach, which determines a “inclusive authority” pattern of IGR. On the other hand, there is interdependence in the policy implementation and we could as well find situations of negotiation and cooperation, even with less institutional basis, which adds elements of Wright’s “overlapping authority model” of IGR. Finally, we recommend that the institutional design of the National School Meals Program (PNAE) should evolve to a more cooperative status, including states and municipalities in the policy decision making though negotiating arenas, creating flexible incentives, supporting local innovation, improving the role of states in local coordination and reaching for equalizing regional inequalities. |
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Bonduki, Manuel Ruas Pereira CoelhoEscolas::EAESPAbrucio, Fernando LuizGrin, Eduardo JoséSpink, Peter2017-05-03T14:28:28Z2017-05-03T14:28:28Z2017-02-23BONDUKI, Manuel Ruas Pereira Coelho. Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE. Dissertação (Mestrado em Administração Pública e Governo) - FGV - Fundação Getúlio Vargas, São Paulo, 2017.http://hdl.handle.net/10438/18222In federalist nations, the specific institutional structure that articulates autonomy and unity (or self-rule and shared-rule, according to Elazar’s definition in 1987) has been appointed as an obstacle to the expansion of social policies and to its intergovernmental coordination. As stated by Pierson (1995), although highly interdependent, the public policies in federalist countries are only modestly coordinated. Deil Wright (1978), indicates that intergovernmental relations in federalist nations may be organized through a pattern that reinforce hierarchy and dependence of subnational governments or as patterns of negotiation and interdependence. Brazilian researchers on the theme have pointed out that the specific authority structure in terms of fiscal resources, political autonomy, and constitutional jurisdiction in each policy area have an important role on defining the IGR pattern. Besides, although Brazilian municipalities having been able to gain political autonomy, increment its fiscal share and receive constitutional jurisdiction over a wide set of policy areas, the decision on major policies regulatory milestones often remains centralized in the federal level. From this theoretical approach, in the present study we review the vertical distribution of authority in Brazilian National School Meals Program (PNAE) to then assess the coordinating federal ability in the program. This evaluation was conducted based on the case study of the implementation of a federal regulation that stipulated that at least 30% of federal resources should be spent with purchases from family farmers, preferably locals. This was, as we see it, the regulation that have most hardly revealed that a centralized decision structure in the program remained even after the decentralization that took place in 1994, when states and municipalities have started executing the program. The data analysis of 4992 municipalities (90% of the total of Brazilian local governments) from 2011 to 2014 shows that the municipalities’ adaptation to the regulation devolved in a stable and growing pattern, in local governments of all sizes and of all national regions. Although around 60% of municipalities have not reached the minimum target of 30% by 2014, there is a clear progress towards that. We thus conclude that there is a high federal coordinating capacity on the program. This capacity is built upon a centralized authority structure with little room for a cooperative approach, which determines a “inclusive authority” pattern of IGR. On the other hand, there is interdependence in the policy implementation and we could as well find situations of negotiation and cooperation, even with less institutional basis, which adds elements of Wright’s “overlapping authority model” of IGR. Finally, we recommend that the institutional design of the National School Meals Program (PNAE) should evolve to a more cooperative status, including states and municipalities in the policy decision making though negotiating arenas, creating flexible incentives, supporting local innovation, improving the role of states in local coordination and reaching for equalizing regional inequalities.Nos países federalistas, o arranjo específico que articula autonomia e unidade – ou self rule e shared rule, na formulação de Elazar (1987) – tem sido apontado como um obstáculo à expansão de políticas sociais e à coordenação intergovernamental em sua produção. Para Pierson (1995), apesar de altamente interdependentes, as políticas públicas nos países federalistas são apenas modestamente coordenadas. Deil Wright (1978), por sua vez, observa que as relações intergovernamentais no federalismo podem tanto estruturar-se a partir de padrões que reforçam hierarquia e dependência dos entes subnacionais como a partir de padrões sob a égide da negociação e interdependência. A literatura nacional tem apontado, ainda, que a forma como está estruturada a distribuição vertical de autoridade nos campos fiscal, político e de competências em cada área de política pública é importante definidor do padrão de relações intergovernamentais. Identifica ainda que, após 1988, apesar de os municípios terem recebido autonomia política, competências constitucionais sobre amplas áreas de políticas públicas e crescentes parcelas da receita tributária disponível, o poder de decisão sobre os grandes marcos normativos das políticas públicas vem sendo retomado pelo nível federal, no que pode ser considerado tanto um movimento de recentralização quanto de tentativa de coordenação. A partir desta problemática teórica, analisamos a distribuição vertical de autoridade no Programa Nacional de Alimentação Escolar (PNAE) nos dias atuais para, em seguida, avaliar a capacidade de coordenação federal no programa. Esta avaliação foi realizada com base no estudo de caso da implementação em nível nacional da obrigação criada pelo art. 14 da lei 11.947/09 que determina o dispêndio de, no mínimo, 30% dos recursos repassados pelo governo federal com compras diretamente da agricultura familiar. A forma de implementar a previsão legal foi, ao nosso ver, o processo que mais claramente evidenciou o caráter ainda centralizado do programa, em que pese a descentralização da execução ocorrida em 1994. Analisando os dados referentes a 4992 municípios entre os anos de 2011 e 2014, percebe-se que o processo de adequação dos municípios à lei ocorreu de forma crescente e estável em todas as categorias de municípios e em todas as regiões do país. Concluímos que há grande capacidade de coordenação do FNDE sobre a ação dos municípios no PNAE. Concluímos que esta ampla capacidade de coordenação apoia-se em um modelo centralizado e pouco cooperativo, que se traduz em um padrão de relações intergovernamentais de “autoridade inclusiva” (Wright, 1978). Observa-se, no entanto, que há interdependência na implementação da política e que também estiveram presentes elementos de cooperação e negociação, ainda que menos formais, o que agregou às relações intergovernamentais do programa a presença de elementos do modelo de “autoridade superposta”, configurando uma situação que mistura ambos padrões. Ao fim, recomendamos que o desenho institucional do PNAE avance para uma institucionalidade mais cooperativa, incluindo os municípios e estados na formulação das regras gerais por meio de espaços de negociação, estabelecendo estruturas mais flexíveis de incentivo, revendo o papel atribuído aos estados, apoiando a inovação e buscando equalizar as desigualdades regionais.porSchool mealsCooperative federalismCoordinationFamily farmingDescentralizationPNAEFederalismo cooperativoCoordenaçãoAgricultura familiarDescentralizaçãoAdministração públicaAgricultura familiarPolíticas públicas - BrasilFederalismoDescentralização na administração públicaEntre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAEinfo:eu-repo/semantics/publishedVersioninfo:eu-repo/semantics/masterThesisinfo:eu-repo/semantics/openAccessreponame:Repositório Institucional do FGV (FGV Repositório Digital)instname:Fundação Getulio Vargas 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dc.title.por.fl_str_mv |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
title |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
spellingShingle |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE Bonduki, Manuel Ruas Pereira Coelho School meals Cooperative federalism Coordination Family farming Descentralization PNAE Federalismo cooperativo Coordenação Agricultura familiar Descentralização Administração pública Agricultura familiar Políticas públicas - Brasil Federalismo Descentralização na administração pública |
title_short |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
title_full |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
title_fullStr |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
title_full_unstemmed |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
title_sort |
Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE |
author |
Bonduki, Manuel Ruas Pereira Coelho |
author_facet |
Bonduki, Manuel Ruas Pereira Coelho |
author_role |
author |
dc.contributor.unidadefgv.por.fl_str_mv |
Escolas::EAESP |
dc.contributor.member.none.fl_str_mv |
Abrucio, Fernando Luiz Grin, Eduardo José |
dc.contributor.author.fl_str_mv |
Bonduki, Manuel Ruas Pereira Coelho |
dc.contributor.advisor1.fl_str_mv |
Spink, Peter |
contributor_str_mv |
Spink, Peter |
dc.subject.eng.fl_str_mv |
School meals Cooperative federalism Coordination Family farming Descentralization |
topic |
School meals Cooperative federalism Coordination Family farming Descentralization PNAE Federalismo cooperativo Coordenação Agricultura familiar Descentralização Administração pública Agricultura familiar Políticas públicas - Brasil Federalismo Descentralização na administração pública |
dc.subject.por.fl_str_mv |
PNAE Federalismo cooperativo Coordenação Agricultura familiar Descentralização |
dc.subject.area.por.fl_str_mv |
Administração pública |
dc.subject.bibliodata.por.fl_str_mv |
Agricultura familiar Políticas públicas - Brasil Federalismo Descentralização na administração pública |
description |
In federalist nations, the specific institutional structure that articulates autonomy and unity (or self-rule and shared-rule, according to Elazar’s definition in 1987) has been appointed as an obstacle to the expansion of social policies and to its intergovernmental coordination. As stated by Pierson (1995), although highly interdependent, the public policies in federalist countries are only modestly coordinated. Deil Wright (1978), indicates that intergovernmental relations in federalist nations may be organized through a pattern that reinforce hierarchy and dependence of subnational governments or as patterns of negotiation and interdependence. Brazilian researchers on the theme have pointed out that the specific authority structure in terms of fiscal resources, political autonomy, and constitutional jurisdiction in each policy area have an important role on defining the IGR pattern. Besides, although Brazilian municipalities having been able to gain political autonomy, increment its fiscal share and receive constitutional jurisdiction over a wide set of policy areas, the decision on major policies regulatory milestones often remains centralized in the federal level. From this theoretical approach, in the present study we review the vertical distribution of authority in Brazilian National School Meals Program (PNAE) to then assess the coordinating federal ability in the program. This evaluation was conducted based on the case study of the implementation of a federal regulation that stipulated that at least 30% of federal resources should be spent with purchases from family farmers, preferably locals. This was, as we see it, the regulation that have most hardly revealed that a centralized decision structure in the program remained even after the decentralization that took place in 1994, when states and municipalities have started executing the program. The data analysis of 4992 municipalities (90% of the total of Brazilian local governments) from 2011 to 2014 shows that the municipalities’ adaptation to the regulation devolved in a stable and growing pattern, in local governments of all sizes and of all national regions. Although around 60% of municipalities have not reached the minimum target of 30% by 2014, there is a clear progress towards that. We thus conclude that there is a high federal coordinating capacity on the program. This capacity is built upon a centralized authority structure with little room for a cooperative approach, which determines a “inclusive authority” pattern of IGR. On the other hand, there is interdependence in the policy implementation and we could as well find situations of negotiation and cooperation, even with less institutional basis, which adds elements of Wright’s “overlapping authority model” of IGR. Finally, we recommend that the institutional design of the National School Meals Program (PNAE) should evolve to a more cooperative status, including states and municipalities in the policy decision making though negotiating arenas, creating flexible incentives, supporting local innovation, improving the role of states in local coordination and reaching for equalizing regional inequalities. |
publishDate |
2017 |
dc.date.accessioned.fl_str_mv |
2017-05-03T14:28:28Z |
dc.date.available.fl_str_mv |
2017-05-03T14:28:28Z |
dc.date.issued.fl_str_mv |
2017-02-23 |
dc.type.status.fl_str_mv |
info:eu-repo/semantics/publishedVersion |
dc.type.driver.fl_str_mv |
info:eu-repo/semantics/masterThesis |
format |
masterThesis |
status_str |
publishedVersion |
dc.identifier.citation.fl_str_mv |
BONDUKI, Manuel Ruas Pereira Coelho. Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE. Dissertação (Mestrado em Administração Pública e Governo) - FGV - Fundação Getúlio Vargas, São Paulo, 2017. |
dc.identifier.uri.fl_str_mv |
http://hdl.handle.net/10438/18222 |
identifier_str_mv |
BONDUKI, Manuel Ruas Pereira Coelho. Entre chicotes e cenouras orgânicas: cooperação, coerção e coordenação na implementação das compras da agricultura familiar para o PNAE. Dissertação (Mestrado em Administração Pública e Governo) - FGV - Fundação Getúlio Vargas, São Paulo, 2017. |
url |
http://hdl.handle.net/10438/18222 |
dc.language.iso.fl_str_mv |
por |
language |
por |
dc.rights.driver.fl_str_mv |
info:eu-repo/semantics/openAccess |
eu_rights_str_mv |
openAccess |
dc.source.none.fl_str_mv |
reponame:Repositório Institucional do FGV (FGV Repositório Digital) instname:Fundação Getulio Vargas (FGV) instacron:FGV |
instname_str |
Fundação Getulio Vargas (FGV) |
instacron_str |
FGV |
institution |
FGV |
reponame_str |
Repositório Institucional do FGV (FGV Repositório Digital) |
collection |
Repositório Institucional do FGV (FGV Repositório Digital) |
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