Gabriela Spanghero Lotta

Desafios da integração nos novos arranjos institucionais de políticas públicas no Brasil

O Governo Federal brasileiro tem experimentado arranjos institucionais que tem como objetivo construir politicas publicas efetivas em um contexto territorial complexo. Neles ha dois eixos centrais: (i) a tentativa de articular tematicas intersetoriais e (ii) a construcao de modelos de gestao de politicas publicas com coordenacao entre os entes federativos e a sociedade civil. Este artigo analisa como novos arranjos institucionais consideram o papel dos territorios. A analise esta estruturada em duas questoes centrais: (a) qual a centralidade dada a concepcao de territorio e em que medida ele desempenha papel ativo ou passivo no desenho do arranjo; (b) que fatores poderiam explicar contornos do arranjo institucional e como a dimensao territorial se materializa neles. O artigo analisa tres arranjos: Plano Brasil Sem Miseria; Programa de Aceleracao do Crescimento; Programa Territorios da Cidadania. As analises baseadas em documentos oficiais dos programas visam compreender, a partir de sua estrutura de funcionamento, como se dao questoes como intersetorialidade, relacoes federativas e concepcao de territorio. Analisando os programas, percebe-se que, ainda que em graus variados, ha mais justaposicao do que integracao de politicas publicas, e que neles os territorios – entendido como os locus de implementacao das politicas e as forcas sociais nele presentes – nao ocupam uma posicao ativa, revelando-se meros repositorios de investimentos. Como consequencia, essa fragilidade, observada tanto na dupla integracao desejada como na articulacao territorial, e algo que resulta em perda de eficiencia dos investimentos e em comprometimento dos resultados. Esses limites se devem, em grande medida, ao peso da cultura setorial que permeia os gestores e o comportamento das forcas sociais, associado a uma cultura institucional de privilegio dos resultados alcancaveis em curto prazo. Esses aspectos, por sua vez, concretizam-se tanto nas normas que regulamentam os arranjos como no leque de agentes envolvidos. Em termos teoricos essa hipotese se afasta das analises que tomam os arranjos meramente sob o ângulo administrativo ou de gestao e se aproxima das abordagens institucionalistas, para as quais nao se pode analisar os arranjos institucionais isolados do ambiente institucional do qual sao, a um so tempo, parte e expressao.

A contribuição da logística integrada às decisões de gestão das políticas públicas no Brasil

This article aims to identify and classify the logistics aspects of the management of public policies, examining how logistics decisions are essential to improve the state organizations and public services performance. Adopting integrated logistics and supply chain management point of view we seek to identify how these logistics decisions can be considered in decision making processes of public policy management as a tool to promote efficiency and significant impacts on results of public organizations management. Therefore, this article presents a series of essential decisions that concern the central idea of logistics in the public sector. It also discusses some experiences and cases that demonstrate the importance and specificity of these discussions to public policy.

Burocracia, redes sociais e interação: uma análise da implementação de políticas públicas

RESUMO Introducao : Um dos enfoques da literatura sobre analise da implementacao de politicas publicas observa como burocratas exercem sua discricionariedade e, assim, implementam e reformulam a politica desenhada. O exercicio da discricionariedade e influenciado por diversos fatores institucionais e relacionais, de forma que os resultados das politicas podem ser, em parte, explicados pelas interacoes estabelecidas pelos burocratas. Metodos : Em termos metodologicos, a pesquisa foi conduzida a partir de etnografia e entrevistas com 24 Agentes Comunitarios de tres municipios: Sobral (CE), Taboao da Serra (SP) e Sao Paulo (SP). A escolha dos 8 Agentes Comunitarios de saude por Unidades Basicas de Saude buscou contemplar variedades em termos de tempo na carreira, envolvimento com movimentos sociais, relacao com igreja etc. Essa variacao foi determinada em funcao de dimensoes que poderiam influenciar o perfil relacional dos Agentes Comunitarios de Saude e a forma de uso da discricionariedade. Resultados: Os resultados demonstram que a atuacao discricionaria dos burocratas de nivel de rua e altamente influenciada por suas trajetorias profissionais e perfil relacional. As redes sociais dos Agentes Comunitarios influenciam a forma como estes interagem com os usuarios e determinam os resultados das politicas entregues. Os atores mais habilidosos sao os que conseguem caminhar na complexidade de identidades e interesses, utilizando seus signos, identidades e terminologias especificas para construir relacoes e praticas. Discussao: Analisando a atuacao dos Agentes Comunitarios de Saude, este artigo observa como as politicas se constroem de forma dinâmica a partir de processos interativos entre burocratas e outros atores. Partindo do poder alocativo dos burocratas de rua, a insercao destas praticas nas redes sociais locais permite-lhes escolher os recursos que levarao para ambos “os mundos” e construirem as dinâmicas de mediacao desses recursos, tornando, portanto, mais permeavel, ou “mais proxima”, a fronteira entre Estado e sociedade. PALAVRAS-CHAVE: implementacao; burocracia; redes sociais; interacao; politicas publicas. ABSTRACT Introduction : One of the approaches of policies implementation literature is to observe how bureaucrats exercise their discretion and, thus, implement and formulate the policy designed. The exercise of discretion is influenced by various institutional and relational factors, so that policy outcomes can be partly explained by the interactions established by bureaucrats. Methods : Methodologically, the research was based on ethnography and interviews with 24 community agents from three municipalities: Sobral (CE), Taboao da Serra (SP) and Sao Paulo (SP). The choice of the 8 community health agents for Basic Health Units sought to contemplate varieties in terms of career time, involvement with social movements, relationship with church, etc. This variation was determined by dimensions that could influence the relational profile of community health agents and the way of using discretion. Results : The results demonstrate that the discretionary performance of street level bureaucrats is highly influenced by their professional trajectories and relational profile. Social networks of community agents influence how they interact with users and determine the results of delivered policies. The most skillful actors are those who manage to walk in the complexity of identities and interests, using their specific signs, identities, and terminologies to build relationships and practices. Discussion : Analyzing the performance of Community Health Agents, this article observes how policies are built dynamically from interactive processes between bureaucrats and other actors. Based on the allocative power of street bureaucrats, the insertion of these practices into local social networks allows them to choose the resources that will lead to both “the worlds” and to build the mediation dynamics of these resources, thus becoming more permeable, or “more next”, the border between State and society. KEYWORDS: Implementation; bureaucrats; social networks; interactions; public policies.

O desempenho dos burocratas de médio escalão: determinantes do relacionamento e das suas atividades

Although scholars have been investigating bureaucrats for a long time, mid-level bureaucrats (MLB) have been far less studied in the literature. To fill this gap, this article explores MLBs heterogeneity regarding their profile, professional background and, above all, performance. The main goal is to investigate the determinants of bureaucrats’ performance, depicted by two crucial dimensions: the degree of MLBs relationship within public bureaucracy and complexity level of their activities. These skills are valued today with increasing importance in contexts of network governance and bureaucratic responsiveness. First, a descriptive analysis was undertaken of survey data collected in 2014 from federal mid-level bureaucrats in positions filled by appointment. This was followed by formulating synthetic indexes of two dimensions: bureaucrats’ activities and their work relationships. Subsequently, multivariate models were employed to explain the determinants of these dimensions. Empirical results show that the mid-level bureaucrats’ performance is both affected by the government’s structure factors as well as by their own individual characteristics. However, the variables effects vary considerably. The empirical evidence suggests that MLBs tend to be more connected and perform more activities as they hold higher positions filled by appointment, have a higher level of education and capacity to influence decision processes and work directly with policymaking, especially in social policy.Although scholars have been investigating bureaucrats for a long time, mid-level bureaucrats (MLB) have been far less studied in the literature. To fill this gap, this article explores MLBs heterogeneity regarding their profile, professional background and, above all, performance. The main goal is to investigate the determinants of bureaucrats’ performance, depicted by two crucial dimensions: the degree of MLBs relationship within public bureaucracy and complexity level of their activities. These skills are valued today with increasing importance in contexts of network governance and bureaucratic responsiveness. First, a descriptive analysis was undertaken of survey data collected in 2014 from federal mid-level bureaucrats in positions filled by appointment. This was followed by formulating synthetic indexes of two dimensions: bureaucrats’ activities and their work relationships. Subsequently, multivariate models were employed to explain the determinants of these dimensions. Empirical results show that the mid-level bureaucrats’ performance is both affected by the government’s structure factors as well as by their own individual characteristics. However, the variables effects vary considerably. The empirical evidence suggests that MLBs tend to be more connected and perform more activities as they hold higher positions filled by appointment, have a higher level of education and capacity to influence decision processes and work directly with policymaking, especially in social policy.

Análise do Programa Mais Médicos à luz dos arranjos institucionais: intersetorialidade, relações federativas, participação social e territorialidade

This article analyzes the Mais Medicos (More Doctors) program based on the concept of an institutional arrangement, understood as the set of rules, organizations and processes that define the specific design of a given public policy, defining how it will articulate across players and interests. This concept will allow us to understand the dynamics of the players in this arrangement, as well as their governance, decision-making and governability, and how these factors reflect on public policy performance. A deeper analysis is based on four categories considered essential to understand an organizational arrangement in Brazil: sector cooperation (sometimes referred to as intersecoriality), federative relationships, social involvement and territoriality.This article analyzes the Mais Médicos (More Doctors) program based on the concept of an institutional arrangement, understood as the set of rules, organizations and processes that define the specific design of a given public policy, defining how it will articulate across players and interests. This concept will allow us to understand the dynamics of the players in this arrangement, as well as their governance, decision-making and governability, and how these factors reflect on public policy performance. A deeper analysis is based on four categories considered essential to understand an organizational arrangement in Brazil: sector cooperation (sometimes referred to as intersecoriality), federative relationships, social involvement and territoriality.