Implementação de políticas públicas de prevenção à criminalidade em Minas Gerais : o Programa Fica Vivo! e o Programa de Inclusão Social de Egressos do Sistema Prisional

Abstract

Implementation is understood as a complex process, inherently political, marked by the characteristics of public policy and the interaction of different actors, interests and contexts. Two programs of the Crime Prevention Policy of Minas Gerais were analyzed, based on Citizen Security and, therefore, on a more democratic and multidimensional concept in the fight against violence and crime. The Fica Vivo! aims to contribute to the prevention and reduction of homicides of adolescents and young people living in areas with a higher incidence of this crime. The Program for the Social Inclusion of Exempted from the Prison System (PrEsp) seeks to favor access to rights and promote the social inclusion of people who have gone through incarceration experiences, minimizing the vulnerabilities aggravated by this process. It was investigated whether there are differences in the outputs of the implementation between the programs, which were supposed to be related to 1) institutional arrangements, which define how actors and interests are articulated and whose analysis allowed inferring possible consequences on the political-relational state capacity in implementation; and 2) the dimensions of conflict and ambiguity, which are associated with the characteristics of the implementation processes. The program arrangements provide for forms of articulation between the agents involved, but informal interactions are decisive for this. It was interpreted that the institutional arrangement of Fica Vivo! it is more robust, especially due to the existence of a formal interaction instance. Elements that favored the development of political-relational capacities, legitimacy and learning for the two programs were identified. Arrangements combine high flexibility and adaptability at the edge as conditions for implementation, and implementers play a key role. The empirical analysis of the dimensions of conflict and ambiguity led to the relativization of Matland's (1995) theoretical model. Such factors do not only vary between programs, but internally within them, depending on the activity: direct service to the public involves greater ambiguity and less conflict, while articulation actions are also permeated by high ambiguity, but by greater conflict. The conflict is more pronounced in Fica Vivo!, where there is strong dialogue with actors who have different views and the difficulty of reconciling Social Protection and Strategic Intervention. For PrEsp, it stems from the stigma related to the graduate, implying greater invisibility and the need for constant awareness, which indicates resistance to implementation. In PrEsp, it was understood that there was greater adherence to the experimental implementation. In Fica Vivo!, the experimental characteristics are limited to the care actions. It was inferred that the articulation actions, despite the high conflict and high ambiguity, do not categorically fit into the symbolic type, but are more similar to policy implementation. In short, the implementation products are heavily dependent on the ways the implementer's act, their interaction and practices with the target audience. The variation in actors’ involved profiles is associated with forms of implementation that also vary between municipalities or territories. Implementation is open, also constituting a policy formulation process.