Políticas de coordenação ou de cooperação? Uma análise das formas de colaboração estado-municípios nas políticas educacionais a partir da produção acadêmica brasileira

Abstract

This paper aims to analyze the forms of collaboration that states have developed with municipalities within the scope of the elementary education policy, after the promulgation of the 1988 Federal Constitution (CF/88), which establishes that the different federative entities must organize their education systems in a regime of collaboration. Thus, this study is part of the research agenda on intergovernmental relations, with a focus on the interactions between states and municipalities as subnational entities. The concepts of cooperation and intergovernmental coordination are used as the foundation for the development of this research. Given the lack of systematic and accessible information, the research conducted a comprehensive mapping of the academic production on the topic, aiming to contribute, as an initial step, to the understanding of the types of collaboration adopted by states to support municipalities in the field of education. The methodology used was a scoping literature review, which allows for the examination of academic production on a topic in a reproducible and reliable manner. The data were analyzed based on a logical framework that links the type of collaboration (cooperation or coordination) and the area of action of educational policy (inputs or outcomes). From this analysis, the following types of collaboration between states and municipalities were identified: cooperation in specific policies aimed at inputs; cooperation in specific policies aimed at outcomes; coordination of programs aimed at inputs; and coordination of programs aimed at outcomes. At the end of the research, 41 texts were analyzed, which constitute the final data set. Since a single text can address cases from more than one state, a total of 51 cases were analyzed, covering 19 out of the 26 Brazilian states. These cases allowed for the identification of 73 state policies of collaboration with municipalities, of which 39 are of the type cooperation in specific policies aimed at inputs; 23 are of the type coordination of programs aimed at inputs; 11 are of the type coordination of programs aimed at outcomes; and no cases of cooperation in specific policies aimed at outcomes were found. This overview reveals that initiatives involving the effective coordination of a set of articulated actions between states and municipalities, aiming to improve outcomes, especially learning, are still scarce and recent. The few collaborative experiences aimed at results may, in part, explain the persistence of one of the greatest challenges of contemporary Brazilian public education: the quality of education.