Políticas públicas e concepções sobre a creche: um estudo com famílias, profissionais, gestores e outros atores no contexto de Belo Horizonte/MG

Abstract

This thesis investigates the social role of daycare centers by analyzing the perceptions of families, education professionals, public administrators, and social movements regarding services for children aged 0 to 3 years. The research, conducted in Belo Horizonte, combined qualitative approaches with a case study design, drawing on document analysis (laws, decrees, and official data) and empirical research (interviews with 25 stakeholders and questionnaires administered to families across three institutions: one municipal public daycare, one government-contracted institution, and one private facility). The study begins from the premise that daycare is a social right guaranteed by Brazil’s 1988 Constitution, yet it underscores persistent challenges such as regional inequalities, the structural division between daycare (0– 3 years) and preschool (4–5 years), and the impacts of the COVID-19 pandemic. The theoretical framework also explores tensions between care as a family responsibility—predominantly borne by women—and the role of the State, while contrasting international models. In Belo Horizonte, the trajectory of daycare centers can be divided into three phases: the first, from the late 1970s to 2003, was marked by the absence of public provision and the emergence of community-led initiatives spearheaded by women; the second, from 2003 to 2017, saw the creation of Municipal Early Childhood Education Schools (EMEIs) and the First School Program (Programa Primeira Escola), which expanded enrollment but faced legal disputes over unmet demand, culminating in the 2017 Conduct Adjustment Agreement (Termo de Ajustamento de Conduta – TAC); the third phase, beginning in 2018, has been characterized by setbacks such as the reduction of public nurseries and a growing reliance on partnerships with private institutions to provide full-time care for children under three. Data from 2024 show that 95% of slots in partnered daycare centers are full-time, whereas municipal institutions predominantly offer part-time programs, reinforcing the long-standing division between daycare and preschool services. Most participants recognized the educational potential of daycare centers for child development. However, the findings reveal divergent views regarding their social function: for families, particularly mothers, they represent vital spaces for care and workforce participation, provided they operate full-time; for educators, they are workplaces that, while rewarding, are marked by precarious conditions; for public administrators, they pose msignificant budgetary challenges. Meanwhile, representatives of social movements and labor unions highlight tensions surrounding the persistence of partnership-based policies. The results also point to the need to overcome bureaucratic barriers to access—such as online registration systems that exclude digitally marginalized families—and to conduct systematic demand studies. As contributions, the thesis advocates for expanding high-quality public daycare provision, strengthening intersectoral coordination (education, health, and social services), and enhancing the professional recognition of early childhood educators. Ultimately, the study emphasizes the importance of incorporating diverse stakeholder perspectives in policymaking, ensuring that daycare centers fulfill their dual role as both a right of children and support for families.