Capacidades para políticas públicas urbanas de grandes municípios em ambiente metropolitano
Arquivos
Data
2020-05-11
Autores
Título da Revista
ISSN da Revista
Título de Volume
Editor
Universidade Federal de Viçosa
Resumo
As novas atribuições assumidas pelos municípios após a Constituição de 1988 ampliaram também as exigências para qualificar sua gestão (GRIN et al., 2018). Passadas três décadas da afirmação do município como novo ente subnacional com importante aumento de responsabilidade nas políticas urbanas, e do enfraquecimento das estruturas metropolitanas pela Constituição Federal, é tempo de compreender a capacidade para o processo de políticas públicas dos municípios metropolitanos, denominada pelos pesquisadores do campo de públicas como policy capacity ou, em livre tradução, capacidade para políticas públicas. A policy capacity refere-se ao conjunto de habilidades e recursos – ou competências e aptidões – necessárias para executar funções relacionadas aos processos das políticas públicas (WU et al., 2015). Assim, esse estudo visa a responder o seguinte questionamento: Como a policy capacity se manifesta no processo das políticas públicas urbanas de grandes municípios em ambiente metropolitano? Para tanto, fez-se um estudo em três maiores cidades pertencentes à região metropolitana de Belo Horizonte (RMBH): Belo Horizonte, Betim e Contagem (IBGE, 2019). A RMBH foi pioneira na retomada da gestão metropolitana pós-Constituição de 1988 e é a terceira mais populosa do país. A base teórica fundamentou-se no modelo desenvolvido por Wu, Ramesh e Howlett (2015), denominado pelos autores como um “nested model of policy capacity” e representado por três habilidades (analítica, operacional e política) combinadas em três níveis de recursos (individual, organizacional o sistêmico). A abordagem foi quali- quantitativa, com pesquisa documental, análise de conteúdo, análise estatística descritiva e análise lexical. A coleta de dados se deu com pesquisa documental e com a realização de 11 entrevistas e aplicação de 74 questionários (Survey). Como principais resultados, constatou-se a presença de alta capacidade analítica individual e organizacional, com destaque para a cidade de Belo Horizonte, em que há multidisciplinaridade na formação dos burocratas e multiplicidade de cargos e funções e que possui em sua estrutura um órgão de inteligência para gerar dados e instruir todos os órgãos ligados à políticas urbanas. A capacidade analítica individual foi apontada como a força motriz de todo o ciclo de políticas públicas. A capacidade operacional não mantém o mesmo nível, com apontamentos de deficiência de infraestrutura. Com relação a capacidade política, somente Belo Horizonte demonstra bom desempenho, com relacionamentos de nível internacional. Restou evidenciado que os gestores públicos têm consciência da importância da coordenação das questões urbanas entre os municípios da RMBH, mas relacionam pouco entre si e, apesar da existência da agência metropolitana constituída para essa coordenação, há uma atuação tímida na articulação das grandes cidades e forte na imposição de regras de ordenamento urbano, demonstrando deficiência na capacidade política no nível sistêmico. No geral, percebeu-se assimetrias nas capacidades para políticas públicas, uma vez que Belo Horizonte demonstra mais domínio na formulação, implementação e avaliação das políticas urbanas. Por fim, sugere-se o aprofundamento do estudo capacidade para políticas públicas em cada nível e também em outros tipos de políticas e também se sugere estudos que relacionem a policy capacity com os resultados de políticas públicas. Palavras-chave: Capacidade. Política pública. Capacidade para políticas públicas. Municípios. Policy capacity. Política urbana. Regiões metropolitanas. RMBH.
The new attributions assumed by the municipalities after the 1988 Constitution also increased the requirements to qualify their management (GRIN et al., 2018). After three decades of affirming the municipality as a new subnational entity with an important increase in responsibility in urban policies, and the weakening of metropolitan structures by the Federal Constitution, it is time to understand the capacity for the public policy process of metropolitan municipalities, called by the researchers of the city. public field as policy capacity or, in free translation, capacity for public policies. Policy capacity refers to the set of skills and resources - or competences and skills - necessary to perform functions related to public policy processes (WU et al., 2015). Thus, this study aims to answer the following question: How does policy capacity manifest itself in the process of urban public policies in large municipalities in a metropolitan environment? To this end, a study was carried out in three cities belonging to the metropolitan region of Belo Horizonte (RMBH): Belo Horizonte, Betim and Contagem (IBGE, 2019). RMBH was a pioneer in resuming metropolitan management after the 1988 Constitution and is the third most populous in the country. The theoretical basis was based on the model developed by Wu, Ramesh and Howlett (2015), called by the authors as a “nested model of policy capacity” and represented by three skills (analytical, operational and political) combined in three levels of resources (individual, organizational or systemic). The approach was quali- quantitative, with documentary research, content analysis, descriptive statistical analysis and lexical analysis. Data collection took place with documentary research and 11 interviews and 74 questionnaires (Survey). As main results, there was the presence of high individual and organizational analytical capacity, with emphasis on the city of Belo Horizonte, in which there is multidisciplinarity in the training of bureaucrats and a multiplicity of positions and functions and which has in its structure a intelligence agency to generate data and instruct all agencies linked to urban policies. Individual analytical capacity was identified as the driving force of the entire public policy cycle. Operational capacity does not maintain the same level, with notes of infrastructure deficiency. With regard to political capacity, only Belo Horizonte shows good performance, with international relationships. It remains to be seen that public managers are aware of the importance of coordinating urban issues between the municipalities of RMBH, but they have little relationship with each other and, despite the existence of the metropolitan agency established for this coordination, there is a timid performance in the articulation of large cities and strong in the imposition of urban planning rules, showing deficiency in political capacity at the systemic level. In general, asymmetries were noticed in the capacities for public policies, since Belo Horizonte demonstrates more dominance in the formulation, implementation and evaluation of urban policies. Finally, it is suggested to deepen the study capacity for public policies at each level and also in other types of policies, and studies that relate policy capacity to the results of public policies are also suggested. Keywords: Capacity. Public policy. Capacity for public policies. Policy capacity. Urban politics. Metropolitan region. RMBH. Municipalities.
The new attributions assumed by the municipalities after the 1988 Constitution also increased the requirements to qualify their management (GRIN et al., 2018). After three decades of affirming the municipality as a new subnational entity with an important increase in responsibility in urban policies, and the weakening of metropolitan structures by the Federal Constitution, it is time to understand the capacity for the public policy process of metropolitan municipalities, called by the researchers of the city. public field as policy capacity or, in free translation, capacity for public policies. Policy capacity refers to the set of skills and resources - or competences and skills - necessary to perform functions related to public policy processes (WU et al., 2015). Thus, this study aims to answer the following question: How does policy capacity manifest itself in the process of urban public policies in large municipalities in a metropolitan environment? To this end, a study was carried out in three cities belonging to the metropolitan region of Belo Horizonte (RMBH): Belo Horizonte, Betim and Contagem (IBGE, 2019). RMBH was a pioneer in resuming metropolitan management after the 1988 Constitution and is the third most populous in the country. The theoretical basis was based on the model developed by Wu, Ramesh and Howlett (2015), called by the authors as a “nested model of policy capacity” and represented by three skills (analytical, operational and political) combined in three levels of resources (individual, organizational or systemic). The approach was quali- quantitative, with documentary research, content analysis, descriptive statistical analysis and lexical analysis. Data collection took place with documentary research and 11 interviews and 74 questionnaires (Survey). As main results, there was the presence of high individual and organizational analytical capacity, with emphasis on the city of Belo Horizonte, in which there is multidisciplinarity in the training of bureaucrats and a multiplicity of positions and functions and which has in its structure a intelligence agency to generate data and instruct all agencies linked to urban policies. Individual analytical capacity was identified as the driving force of the entire public policy cycle. Operational capacity does not maintain the same level, with notes of infrastructure deficiency. With regard to political capacity, only Belo Horizonte shows good performance, with international relationships. It remains to be seen that public managers are aware of the importance of coordinating urban issues between the municipalities of RMBH, but they have little relationship with each other and, despite the existence of the metropolitan agency established for this coordination, there is a timid performance in the articulation of large cities and strong in the imposition of urban planning rules, showing deficiency in political capacity at the systemic level. In general, asymmetries were noticed in the capacities for public policies, since Belo Horizonte demonstrates more dominance in the formulation, implementation and evaluation of urban policies. Finally, it is suggested to deepen the study capacity for public policies at each level and also in other types of policies, and studies that relate policy capacity to the results of public policies are also suggested. Keywords: Capacity. Public policy. Capacity for public policies. Policy capacity. Urban politics. Metropolitan region. RMBH. Municipalities.
Descrição
Palavras-chave
Política urbana, Regiões metropolitanas, Política pública
Citação
ROSADO, Carolina Gomes. Capacidades para políticas públicas urbanas de grandes municípios em ambiente metropolitano. 2020. 182 f. Dissertação (Mestrado em Administração) - Universidade Federal de Viçosa, Viçosa. 2020.