Inserção de catadores na elaboração de plano municipal de gestão integrada de resíduos sólidos: uma análise a partir do modelo de coalizões de defesa

Abstract

Government action allied with civil society is essential in the elaboration of a public policy. When devised and executed in an undemocratic manner, the greater the risk of this policy not having population adherence. This study aims to understand the involvement of associations and cooperatives of recyclable waste pickers in the process of elaborating Belo Horizonte’s Municipal Integrated Solid Waste Management Plan (MISWMP-BH) with the Advocacy Coalition Framework developed by Paul Sabatier and Hank Jenkins-Smith. Three periods were used: Period 1 (2007-2010): determined based on the launch of Law No. 11,445 of January 5, 2007, which establishes national guidelines for basic sanitation and the launching of Law No. 12,305, which establishes the National Policy on Solid Waste, in August 2010; Period 2 (2010-2014): located at the moment of launch of Law No. 12,305, until the contracting of the first consultancy for the preparation of MISWMP-BH in 2014; Period 3 (2014-2017): covers the beginning of the preparation activities in 2014, until the launch of the MISWMP-BH, in March 2017. Secondary data were collected (documents presented by the Municipality of Belo Horizonte) and interviews through forms, allowing the identification and analysis of policy design. The non-participant observation in the process occurred between the events from December 2015 to March 2017, promoted by the Belo Horizonte’s Department of Urban Cleaning (DUC-BH). The analysis reveals that the design of the process in question was influenced by the more powerful coalition, identified here as the Moderate Change Coalition. The results show that the second coalition, identified here as the Radical Change Coalition, had little influence. The public hearings for this coalition were conducted at the end of the process, and no contributions were made by the waste pickers group, one of the most important groups in the solid waste recycling chain. The existence of events of magnitude that effectively constitute crises, including the economic crises in Brazil in the 21st century, the impeachment process that altered the transfer of funds from federal programs to recyclable waste pickers, the scrapping of the DUC-BH and the use of private consultancy firms for the elaboration of the MISWMP-BH, were exogenous and endogenous shocks to the subsystem, which contribute to explaining some aspects of the process under analysis.