Cooperação federativa e financiamento da educação no atual PNE (2014-2024) : uma análise dos processos de implementação do SNE, do CAQi e do CAQ

Abstract

The purpose of this PhD dissertation is to analyze the implementation of the current National Plan of Education (NPE) in Brazil 2014-2024, with a focus upon the two dimensions considered structural of this NPE, which are, federalism and education financing. Concerning the first dimension, we analyze the implementation process of the National System of Education (NSE) and, as for the second, we analyze the implementation processes of both - the initial Quality-Student Cost (iQSC) and the Quality-Student Cost (QSC), initiatives that ought to be led by the Brazilian Ministry of Education. Using qualitative research - whose data and information were obtained from interviews and primary and secondary documentary sources -, subsidized by theoretical arguments derived from the public policy implementation subfield and considering the above three initiatives mentioned earlier, we found that the following factors influenced the implementation of the NPE: (i) the process of policy formation; (ii) the policy characteristics; (iii) the political capacity and, finally, (iv) the political and economic context in which implementation occurs. Regarding the elaboration of the NPE, process vastly participative and permeated by several and intense disputes between advocacy communities and the executive power, we verified that the government’s proposals were tremendously defeated, above all considering the proceedings of the NPE’s draft at the National Congress. In other words, the federal government, chiefly responsible for implementing the aforementioned three initiatives, become defeated, in relation to its preferences, when the process of NPE’s elaboration. Concerning the National Plan’s characteristics, precisely due to the preponderance of advocacy communities’ preferences over the government ones, we may conclude that the Law that formalized NPE become considerably broad and complex. Therefore, to be implemented, the federal government should commit to large efforts, mostly from the perspective of agreements building, the need of articulation with the Congress and with the subnational entities as well as from the budgetary perspective, which appeared quite implausible. In practice, the federal government did not demonstrate the political capacities required to implement the NSE, the iQSC and the QCS, which became evident from successive and controversial decisions taken by the Presidency, considering that these decision contributed not only for weaken the Ministry of Education; they entailed the loss of protagonism of the NPE as the main guided that oriented educational policies in Brazil. Finally, taking into account these endogenous factors were not enough to explain that the implementation deficits perceived in the National Plan of Education, we emphasized that political and the economical contexts in which the implementation of NPE occurred was not favorable as well. After all, since the reelection of the president Dilma Rousseff, the country was submerged into a political crisis that demanded a concentration of efforts from the presidency, as a tentative of diminishing the crisis and of the governability maintenance, which implied negative consequences over the capacity of the federal government in maintaining focus on social agendas, including the educational one. Furthermore, the economic crisis which resurfaced in 2015, in opposition to the scenario of optimism which characterized the elaboration of the current NPE, also entailed a budgetary retractions, revealing impacts on the possibility of implementing agendas that were depended upon the rise of federal investments.