Atores e ideias na conformação da Política Nacional de Habitação Social de 1987 a 2021: uma análise à luz do Advocacy Coalition Framework
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Data
2023-05-22
Autores
Romagnoli, Alexandre José
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Universidade Estadual Paulista (Unesp)
Resumo
Esta pesquisa teve como objetivo principal identificar a influência de atores e ideias na conformação da Política Nacional de Habitação Social durante o período de 1987 a 2021. Como referencial teórico, empregou-se o Advocacy Coalition Framework – ACF, desenvolvido por Paul Sabatier e colaborares (1993, 1999, 2007). Estruturada a partir de cinco importantes processos decisórios – verdadeiros marcos legais da Política - a pesquisa, de tipo qualitativa, utilizou-se de um vasto conjunto de dados que reuniu notas taquigráficas de audiências públicas de Comissões da Câmara dos Deputados e do Senado Federal, Atas do Conselho das Cidades, edições da Revista Brasileira de Habitação, documentos relativos aos processos decisórios, documentos referentes aos atores identificados e entrevistas semiestruturadas. Para a análise dos documentos foi empregada a Análise de Conteúdo, que contou com o auxílio do software NVivo®. Como resultado foram identificadas três coalizões de defesa influentes no subsistema da política: a Coalizão da Moradia Popular (CoMP), a Coalizão Desenvolvimentista da Construção Civil (CoDCC) e a Coalizão da Financeirização da Moradia (CoFM). Verificou-se que as coalizões com crenças ligadas aos interesses de mercado dominaram o subsistema por todo o período analisado, sendo a CoDCC aquela que predominou pelo maior período. A CoMP, apesar de alcançar importantes “vitórias” durante o primeiro momento da pesquisa (1987-2005) com a consolidação de suas crenças na Constituição Federal, no Estatuto da Cidade (Lei nº 10.257/2001) e no Sistema Nacional de Habitação de Interesse Social (Lei nº 11.124/2005), durante o segundo momento (2009-2021) passou por progressivo enfraquecimento. Dessa forma, não reuniu capacidade de influência suficiente para alterar a lógica econômico-financeira, associada a crenças defendidas pela CoDCC e CoFM, que majoritariamente definiram os processos decisórios seguintes, a saber: o Programa “Minha Casa, Minha Vida” e o Programa “Casa Verde e Amarela”.
This research aims to identify the influence of actors and ideas in the conformation of the National Social Housing Policy during the period from 1987 to 2021. The Advocacy Coalition Framework (ACF), developed by Paul Sabatier and collaborators (1993, 1999, 2007), was used as a theoretical framework. Structured from five important decision-making processes, the qualitative research used a vast set of data that gathered 42 shorthand notes of public hearings held mainly by the Committees of the Chamber of Deputies and the Federal Senate, 56 minutes of the Council of Cities, 10 editions of the Brazilian Journal of Housing, documents related to decision-making processes, documents referring to the identified actors and semi-structured interviews. For the analysis of the documents, Content Analysis was used, which had the aid of the NVivo® software. As a result, three influential defense coalitions were identified in the policy subsystem: the Popular Housing Coalition (CoMP), the Civil Construction Developmental Coalition (CoDCC) and the Housing Financialization Coalition (CoFM). It was found that coalitions with beliefs linked to market interests dominated the subsystem throughout the period analyzed, with CoDCC being the one that predominated for the longest period. The CoMP, despite achieving important "victories" during the first moment of the research (1987-2005) with the consolidation of its beliefs in the Federal Constitution, in the City Statute (Law No. 10,257/2001) and in the National Social Interest Housing System (Law No. 11,124/2005), during the second moment (2009-2021) it went through progressive weakening. Thus, it did not gather sufficient influence capacity to change the economic-financial logic, associated with beliefs defended by CoDCC and CoFM, which mostly defined the following decision-making processes, namely: the "Minha Casa, Minha Vida" Program and the "Casa Verde e Amarela" Program.
This research aims to identify the influence of actors and ideas in the conformation of the National Social Housing Policy during the period from 1987 to 2021. The Advocacy Coalition Framework (ACF), developed by Paul Sabatier and collaborators (1993, 1999, 2007), was used as a theoretical framework. Structured from five important decision-making processes, the qualitative research used a vast set of data that gathered 42 shorthand notes of public hearings held mainly by the Committees of the Chamber of Deputies and the Federal Senate, 56 minutes of the Council of Cities, 10 editions of the Brazilian Journal of Housing, documents related to decision-making processes, documents referring to the identified actors and semi-structured interviews. For the analysis of the documents, Content Analysis was used, which had the aid of the NVivo® software. As a result, three influential defense coalitions were identified in the policy subsystem: the Popular Housing Coalition (CoMP), the Civil Construction Developmental Coalition (CoDCC) and the Housing Financialization Coalition (CoFM). It was found that coalitions with beliefs linked to market interests dominated the subsystem throughout the period analyzed, with CoDCC being the one that predominated for the longest period. The CoMP, despite achieving important "victories" during the first moment of the research (1987-2005) with the consolidation of its beliefs in the Federal Constitution, in the City Statute (Law No. 10,257/2001) and in the National Social Interest Housing System (Law No. 11,124/2005), during the second moment (2009-2021) it went through progressive weakening. Thus, it did not gather sufficient influence capacity to change the economic-financial logic, associated with beliefs defended by CoDCC and CoFM, which mostly defined the following decision-making processes, namely: the "Minha Casa, Minha Vida" Program and the "Casa Verde e Amarela" Program.
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Políticas públicas, Política habitacional, Habitação social, Atores e ideias, Advocacy Coalition Framework, Public policy, Housing policy, Social housing, Actors and ideas