A cadeia produtiva da reciclagem sob a ótica da governança territorial e das políticas públicas: estudo de caso nos municípios de Vitória da Conquista/BA, Piracicaba/SP e Anápolis/GO
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Data
2018-12-05
Autores
Santos, Adma Viana [UNESP]
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Universidade Estadual Paulista (Unesp)
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Diante do agravamento dos problemas ambientais, a reciclagem tem se apresentado como uma das principais questões no âmbito das discussões socioambientais, sendo notada, ainda, uma evidenciação do aspecto econômico da atividade recicladora, em detrimento dos aspectos ambientais e sociais, o que tem conduzido ao desenvolvimento da cadeia produtiva da reciclagem no Brasil. O entendimento é de que se trata de uma atividade econômica promissora, que surge como um mercado novo e em desenvolvimento, incentivado pela própria Política Nacional de Resíduos Sólidos. Assim, o objetivo desta pesquisa foi o de analisar a cadeia produtiva da reciclagem como reflexo da condução de políticas públicas adotadas para o desenvolvimento do setor no território nacional, no anseio de explicitar as reais capacidades de ação e execução de tais políticas, de forma transparente e coletiva, pelo caminho da governança, em seu processo de construção complexa. Ademais, buscou-se analisar a estruturação/organização da cadeia produtiva da reciclagem, atentando-se, principalmente, para as particularidades da indústria recicladora no Brasil, bem como identificar os diversos atores envolvidos intrinsecamente nessa atividade econômica, suas estratégias organizacionais, formas de atuação e funções, buscando definir a composição e atuação do Estado, dos membros da sociedade civil e dos empresários, a partir de uma tipologia capaz de demonstrar o caráter público, privado ou tripartite da governança. Para o desenvolvimento dos objetivos propostos e seguindo a orientação teórica, a pesquisa empírica foi desenvolvida com a realização de visitas e entrevistas semiestruturadas junto às empresas do setor de recuperação de materiais, às lideranças das cooperativas de catadores de materiais recicláveis, bem como aos representantes da sociedade civil organizada e do poder público local das cidades de Vitória da Conquista/BA, Piracicaba/SP e Anápolis/GO, bases empíricas da pesquisa. Diante dos resultados encontrados nesta pesquisa, verificou-se a existência de um conjunto de políticas públicas, com temas direta ou indiretamente correlatos, que constituem o aparato legal e institucional direcionado à gestão e gerenciamento dos resíduos, sendo estas adotadas para a busca de soluções para os resíduos sólidos, bem como para o desenvolvimento da atividade econômica recicladora no território. Nesse contexto se insere a Política Nacional de Resíduos Sólidos, enquanto principal diretriz norteadora de ações e responsabilidades relativas a essa temática no país. Com relação a estruturação/organização da cadeia produtiva da reciclagem, observou-se a existência de um setor formado, em sua maioria, por micro e pequenas empresas, estando essas localizadas, predominantemente, nas regiões Sul e Sudeste do país. Neste setor, destaca-se o alumínio, o papel e o plástico como os materiais que apresentam os maiores índices de recuperação da indústria recicladora brasileira. Por fim, foi verificada as formas de atuação dos atores dessa cadeia produtiva, de forma mais específica, a ação do Estado, da sociedade civil organizada e dos catadores de materiais recicláveis. Esses possuem interesses diversos e, por vezes, conflitantes, sendo constatado que, na complexidade dos processos que permeiam a atividade de catação e a cadeia produtiva da reciclagem, as organizações da sociedade civil (na qual se incluem os catadores), exercem menos influência na coordenação compartilhada de recursos e estratégias territoriais, em função de seus incipientes mecanismos de representatividade e baixa autonomia.
Faced with the aggravation of environmental problems, recycling has been presented as one of the main issues in the socio - environmental discussions, and it is also noticed an evidence of the economic aspect of the recycling activity, to the detriment of environmental and social aspects, which has led to the development of the recycling chain in Brazil. The understanding is th at this is a promising economic activity, which emerges as a new and developing market, encouraged by the National Policy on Solid Waste. Thus, the objective of this research was to analyze the productive chain of recycling as a reflection of the conduction of public policies adopted for the development of the sector in the national territory, in the desire to make explicit the real capacity of action and execution of such policies, in a transparent way and collective, by way of governance, in its complex construction process. In addition, we sought to analyze the structuring/organization of the recycling chain, taking into account, mainly, the particularities of the recycling industry in Brazil , as well as to identify the various actors involved in this economic activity intrinsically, their organizational strategies, forms of action and functions, seeking to define the composition and performance of the State, members of civil society and entrepreneurs, based on a typology capable of demonstrating the character public, private or tripartite governance. For the development of the proposed objectives and following the theoretical orientation, the empirical research was developed with visits and semi - structured interviews with the companies of the mate rial recovery sector, the leaderships of the cooperatives of collectors of recyclable materials , as well as to representatives of organized civil society and local government in the cities of Vitória da Conquista (Bahia, northeastern Brazil), Piracicaba (S ão Paulo, southeastern Brazil) and Anápolis (Goiás, Central - West Brazil). In view of the results found in this research, we verified the existence of a set of public policies, with directly or indirectly related themes, which constitute the legal and insti tutional apparatus directed to the management and management of waste , and these are adopted for the search of solutions for solid waste, as well as for the development of recyclable economic activity in the territory. In this context, the National Solid W aste Policy is inserted as the main guideline for actions and responsibilities related to this issue in the country. With regard to the structuring/organization of the recycling chain, there was a sector formed, mostly, by micro and small enterprises, thes e being located, predominantly, in the South and Southeast regions of the country. In this sector, aluminum, paper and plastic stand out as the materials that present the highest recovery rates of the Brazilian recycling industry. Finally, it was verified the forms of action of the actors of this productive chain, more specifically, the action of the State, organized civil society and collectors of recyclable materials. These have diverse and sometimes conflicting interests. It is evident that, in the complexity of the processes that permeate the harvesting activity and the recycling chain, civil society organizations (including collectors) have less influence on shared coordination of resources and territorial strategies, due to their incipient rep resentation mechanisms and low autonomy.
Faced with the aggravation of environmental problems, recycling has been presented as one of the main issues in the socio - environmental discussions, and it is also noticed an evidence of the economic aspect of the recycling activity, to the detriment of environmental and social aspects, which has led to the development of the recycling chain in Brazil. The understanding is th at this is a promising economic activity, which emerges as a new and developing market, encouraged by the National Policy on Solid Waste. Thus, the objective of this research was to analyze the productive chain of recycling as a reflection of the conduction of public policies adopted for the development of the sector in the national territory, in the desire to make explicit the real capacity of action and execution of such policies, in a transparent way and collective, by way of governance, in its complex construction process. In addition, we sought to analyze the structuring/organization of the recycling chain, taking into account, mainly, the particularities of the recycling industry in Brazil , as well as to identify the various actors involved in this economic activity intrinsically, their organizational strategies, forms of action and functions, seeking to define the composition and performance of the State, members of civil society and entrepreneurs, based on a typology capable of demonstrating the character public, private or tripartite governance. For the development of the proposed objectives and following the theoretical orientation, the empirical research was developed with visits and semi - structured interviews with the companies of the mate rial recovery sector, the leaderships of the cooperatives of collectors of recyclable materials , as well as to representatives of organized civil society and local government in the cities of Vitória da Conquista (Bahia, northeastern Brazil), Piracicaba (S ão Paulo, southeastern Brazil) and Anápolis (Goiás, Central - West Brazil). In view of the results found in this research, we verified the existence of a set of public policies, with directly or indirectly related themes, which constitute the legal and insti tutional apparatus directed to the management and management of waste , and these are adopted for the search of solutions for solid waste, as well as for the development of recyclable economic activity in the territory. In this context, the National Solid W aste Policy is inserted as the main guideline for actions and responsibilities related to this issue in the country. With regard to the structuring/organization of the recycling chain, there was a sector formed, mostly, by micro and small enterprises, thes e being located, predominantly, in the South and Southeast regions of the country. In this sector, aluminum, paper and plastic stand out as the materials that present the highest recovery rates of the Brazilian recycling industry. Finally, it was verified the forms of action of the actors of this productive chain, more specifically, the action of the State, organized civil society and collectors of recyclable materials. These have diverse and sometimes conflicting interests. It is evident that, in the complexity of the processes that permeate the harvesting activity and the recycling chain, civil society organizations (including collectors) have less influence on shared coordination of resources and territorial strategies, due to their incipient rep resentation mechanisms and low autonomy.
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Palavras-chave
Cadeia produtiva da reciclagem, Governança territorial, Reciclagem, Políticas públicas, Atores sociais, Atuação do Estado, Productive chain of recycling, Territorial governance, Recycling, Public policy, Social actors, State performance, Power relations