Capacidades estatais regionais para a gestão integrada de recursos hídricos
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Data
2025-10-09
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Universidade Federal de Viçosa
Resumo
A Gestão Integrada de Recursos Hídricos (GIRH) é uma das principais abordagens institucionais voltadas ao uso sustentável da água e à segurança hídrica. Esse modelo, incorporado à meta 6.5 dos Objetivos de Desenvolvimento Sustentável (ODS), pressupõe que os Estados desenvolvam arranjos cooperativos e intergovernamentais de gestão. Os países devem articular diferentes interesses setoriais e níveis de governança em torno de uma mesma bacia hidrográfica. Em países federativos como o Brasil, tais desafios ganham maior complexidade, pois diferentes unidades da federação compartilham recursos hídricos e precisam construir mecanismos permanentes de cooperação. Mesmo com as conquistas da Política Nacional de Recursos Hídricos, a implementação da GIRH no país continua marcada pela complexidade da dupla dominialidade da água entre União e estados e pelas assimetrias de capacidades estatais entre entes federativos. Para compreender essas dinâmicas, esta tese realizou uma análise qualitativa das Capacidades Estatais Regionais necessárias à efetivação da GIRH. Do ponto de vista teórico, a pesquisa apoia-se na Teoria Econômica dos Bens Comuns, segundo a qual recursos como a água exigem gestão compartilhada entre Estado e sociedade, em múltiplos níveis de governança. Também traz a perspectiva das Capacidades Estatais, que enfatiza a necessidade de os Estados reunirem competências e recursos, de modo a viabilizar tanto as interações Estado-sociedade quanto os mecanismos de cooperação intergovernamental em prol da GIRH. A Bacia Hidrográfica do Rio São Francisco (BHSF), maior bacia exclusivamente brasileira, foi escolhida como estudo de caso por representar grande complexidade institucional. Ela reúne múltiplos estados e instâncias decisórias, apresenta forte heterogeneidade regional e desigualdades de recursos entre estados e municípios. Ainda assim, apresenta mecanismos perenes de gestão, governança e cooperação por meio de seu comitê interestadual e de seus comitês estaduais. A pesquisa combinou levantamento de literatura e de indicadores municipais, análise documental, observação participante e entrevistas com atores estratégicos. Como contribuição teórica, a tese propõe ampliar o conceito de Capacidades Estatais, de modo a incluir a noção de Capacidades Estatais Regionais para a GIRH. Estas, entendidas como as interações entre as instituições do Estado, formais e informais, e seus atores, organizacionais e individuais, sob condições territoriais específicas de uma bacia hidrográfica, que conformam capacidades estatais únicas, exclusivas desse recorte espacial e decisivas à implementação da GIRH. A principal conclusão prática é que o avanço da GIRH no Brasil requer tanto o fortalecimento da coordenação entre União e unidades da federação, quanto entre ministérios e setores envolvidos na utilização dos recursos hídricos. Cabe ao Estado articular setores e regiões, para que a Política Nacional de Recursos Hídricos seja um eixo de integração entre políticas que dependem da água, e não uma concorrente dessas políticas. Reconhecer a água como bem comum estratégico implica priorizá-la como questão de Estado, com planejamento local, regional e nacional integrados, para que as capacidades estatais dos entes se complementem, viabilizando a implementação da GIRH em suas bacias hidrográficas. Palavras-chave: água; gestão integrada de recursos hídricos (GIRH); bacia hidrográfica; capacidades estatais regionais; políticas públicas
Integrated Water Resources Management (IWRM) is one of the main institutional approaches aimed at the sustainable use of water and water security. This model, incorporated into Goal 6.5 of the Sustainable Development Goals (SDGs), requires States to develop cooperative and intergovernmental management arrangements. Countries must coordinate different sectoral interests and levels of governance around a single river basin. In federative countries such as Brazil, these challenges become more complex, as different subnational units share water resources and need to build permanent mechanisms of cooperation. Despite the achievements of the National Water Resources Policy, the implementation of IWRM in Brazil remains marked by the complexity of the dual dominion of water between the federal and state governments and by asymmetries in state capacities among federative entities. To understand these dynamics, this thesis conducted a qualitative analysis of the Regional State Capacities required for the effective implementation of IWRM. From a theoretical standpoint, the research is grounded in the Common Pool Resources theory, according to which resources such as water require shared management between the State and society at multiple levels of governance. It also draws on the State Capacity perspective, which emphasizes the need for States to develop skills and competencies, beyond merely providing resources, in order to enable both State- society interactions and intergovernmental cooperation mechanisms in support of IWRM. The São Francisco River Basin (SFRB), the largest basin located entirely within Brazil, was chosen as a case study because it represents significant institutional complexity. It encompasses multiple states and decision-making instances, shows strong regional heterogeneity, and exhibits inequalities in resources among states and municipalities. Nevertheless, it maintains enduring mechanisms of management, governance, and cooperation through its interstate and state river basin committees. The research combined literature and municipal indicator review, document analysis, participant observation, and interviews with strategic actors. As a theoretical contribution, the thesis proposes expanding the concept of State Capacity to include the notion of Regional State Capacities for IWRM, understood as the interweaving of State institutions, both formal and informal, and their actors, organizational and individual, under the specific territorial conditions of a river basin. These configurations produce unique state capacities, specific to that spatial and institutional context, which are decisive for the implementation of IWRM. The main practical conclusion is that advancing IWRM in Brazil requires strengthening coordination not only between the federal government and subnational entities, but also among ministries and sectors involved in water use. The State must articulate sectors and regions so that the National Water Resources Policy serves as an axis of integration among policies that depend on water, rather than competing with them. Recognizing water as a strategic common good implies prioritizing it as a matter of State, with integrated local, regional, and national planning, so that the state capacities of different entities complement one another, enabling the effective implementation of IWRM across river basins. Keywords: water; integrated water resources management (IWRM); river basin; regional state capacities; public policies
Integrated Water Resources Management (IWRM) is one of the main institutional approaches aimed at the sustainable use of water and water security. This model, incorporated into Goal 6.5 of the Sustainable Development Goals (SDGs), requires States to develop cooperative and intergovernmental management arrangements. Countries must coordinate different sectoral interests and levels of governance around a single river basin. In federative countries such as Brazil, these challenges become more complex, as different subnational units share water resources and need to build permanent mechanisms of cooperation. Despite the achievements of the National Water Resources Policy, the implementation of IWRM in Brazil remains marked by the complexity of the dual dominion of water between the federal and state governments and by asymmetries in state capacities among federative entities. To understand these dynamics, this thesis conducted a qualitative analysis of the Regional State Capacities required for the effective implementation of IWRM. From a theoretical standpoint, the research is grounded in the Common Pool Resources theory, according to which resources such as water require shared management between the State and society at multiple levels of governance. It also draws on the State Capacity perspective, which emphasizes the need for States to develop skills and competencies, beyond merely providing resources, in order to enable both State- society interactions and intergovernmental cooperation mechanisms in support of IWRM. The São Francisco River Basin (SFRB), the largest basin located entirely within Brazil, was chosen as a case study because it represents significant institutional complexity. It encompasses multiple states and decision-making instances, shows strong regional heterogeneity, and exhibits inequalities in resources among states and municipalities. Nevertheless, it maintains enduring mechanisms of management, governance, and cooperation through its interstate and state river basin committees. The research combined literature and municipal indicator review, document analysis, participant observation, and interviews with strategic actors. As a theoretical contribution, the thesis proposes expanding the concept of State Capacity to include the notion of Regional State Capacities for IWRM, understood as the interweaving of State institutions, both formal and informal, and their actors, organizational and individual, under the specific territorial conditions of a river basin. These configurations produce unique state capacities, specific to that spatial and institutional context, which are decisive for the implementation of IWRM. The main practical conclusion is that advancing IWRM in Brazil requires strengthening coordination not only between the federal government and subnational entities, but also among ministries and sectors involved in water use. The State must articulate sectors and regions so that the National Water Resources Policy serves as an axis of integration among policies that depend on water, rather than competing with them. Recognizing water as a strategic common good implies prioritizing it as a matter of State, with integrated local, regional, and national planning, so that the state capacities of different entities complement one another, enabling the effective implementation of IWRM across river basins. Keywords: water; integrated water resources management (IWRM); river basin; regional state capacities; public policies
Descrição
Palavras-chave
Água, Desenvolvimento de recursos hídricos - Brasil, Água - Uso, Sustentabilidade, Empresas estatais, Políticas públicas - Brasil
Citação
MORAIS, Luiz Paulo Rigueira de. Capacidades estatais regionais para a gestão integrada de recursos hídricos. 2025. 227 f. Tese (Doutorado em Administração) - Universidade Federal de Viçosa, Viçosa. 2025.