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A incorporação das premissas de desenvolvimento sustentável ao planejamento governamental brasileiro: o plano plurianual (PPA)
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O objetivo desta tese foi avaliar a incorporação das premissas de desenvolvimento
sustentável ao planejamento estratégico governamental brasileiro. O planejamento
estratégico no nível federal se faz sobretudo pelos Planos Plurianuais (PPA),
implementados em um período de quatro anos, a partir do segundo ano de cada mandato
presidencial.
Procurou-se analisar as dificuldades da integração dessas premissas ao planejamento a
partir de um exame do processo de elaboração e implementação dos planos. Em termos
de abordagem metodológica, foi feita análise de conteúdo dos PPA no período 1991-
2019, cobrindo sete planos. A análise documental foi complementada com entrevistas
semiestruturadas em que participaram trinta e quatro servidores com longa experiência
em planejamento no setor público e na elaboração dos próprios PPA.
Constatou-se que, embora haja um relativo consenso sobre a necessidade de se realizar
uma transição para a sustentabilidade, sua operacionalização em termos de políticas
públicas e de escopo do próprio planejamento se defronta com obstáculos diversos, além
dos usualmente considerados na literatura sobre o tema.
A pesquisa indica que nesse período houve grande avanço na agenda de sustentabilidade
no país, mas o processo, como um todo, continua insuficiente para assegurar uma efetiva
mudança dos paradigmas de produção e consumo. Ademais, o percurso dessa transição
para a sustentabilidade não tem sido linear ou sequencial, mas ocorre de forma dialética,
com conquistas e retrocessos que se vão sobrepondo no tempo.
Em especial, percebe-se a ausência de uma genuína transversalização da ideia de
sustentabilidade ao longo dos planos, os quais não conseguem superar a perspectiva de
cada agenda setorial. Interesses e programas de cada segmento do governo terminam por
impactar a coerência e a organicidade de propostas que, de acordo com os princípios da
sustentabilidade, deveriam primar pela coesão e interdependência. Coloca-se, então, em
dúvida a capacidade de uma estratégia de transição patrocinada pelo Estado, ainda que se
considere o aparato governamental crucial para uma mudança de qualquer paradigma.
The objective of this thesis was to evaluate the incorporation of sustainable development premises into Brazilian’s government strategic planning. Strategic planning at federal level is mainly carried out through the Multi-Year Plans (PPA), implemented over a four year period, starting in the second year of each presidential term. Throughout the research an attempt was made to analyze the difficulties to integrate these premises into planning, based on an examination of the process of elaboration and implementation of plans. In terms of methodological approach, a content analysis of the PPAs was carried out for the period 1991-2019, comprising seven plans. The documental analysis was complemented with semi-structured interviews in which thirty-four employees with long experience in planning in the public sector and in the preparation of their own PPAs were involved. It was found that, although there is a relative consensus on the need to carry out a transition to sustainability, its operationalization in terms of public policies and the scope of the planning itself faces several obstacles, beyond those usually considered in the literature on the subject. The research indicates that there was, in fact, great progress in the sustainability agenda in the country over these thirty years of PPA, but the process remains insufficient to allow an effective change in production and consumption paradigms. Furthermore, the path towards this transition to sustainability has not been linear or sequential, but takes place in a dialectical way, with achievements and setbacks that overlap in time. In particular, there is an absence of a genuine integration of the idea of sustainability into the plans, which make them unable to overcome the perspective of sectorial agendas. Interests and programs of each government sector end up impacting the consistency of proposals that, in accordance with the principles of sustainability, should strive for cohesion and interdependency. The capacity of a transitional strategy sponsored by the state is questioned, even though the governmental apparatus is seen as crucial to a change of any paradigm.
The objective of this thesis was to evaluate the incorporation of sustainable development premises into Brazilian’s government strategic planning. Strategic planning at federal level is mainly carried out through the Multi-Year Plans (PPA), implemented over a four year period, starting in the second year of each presidential term. Throughout the research an attempt was made to analyze the difficulties to integrate these premises into planning, based on an examination of the process of elaboration and implementation of plans. In terms of methodological approach, a content analysis of the PPAs was carried out for the period 1991-2019, comprising seven plans. The documental analysis was complemented with semi-structured interviews in which thirty-four employees with long experience in planning in the public sector and in the preparation of their own PPAs were involved. It was found that, although there is a relative consensus on the need to carry out a transition to sustainability, its operationalization in terms of public policies and the scope of the planning itself faces several obstacles, beyond those usually considered in the literature on the subject. The research indicates that there was, in fact, great progress in the sustainability agenda in the country over these thirty years of PPA, but the process remains insufficient to allow an effective change in production and consumption paradigms. Furthermore, the path towards this transition to sustainability has not been linear or sequential, but takes place in a dialectical way, with achievements and setbacks that overlap in time. In particular, there is an absence of a genuine integration of the idea of sustainability into the plans, which make them unable to overcome the perspective of sectorial agendas. Interests and programs of each government sector end up impacting the consistency of proposals that, in accordance with the principles of sustainability, should strive for cohesion and interdependency. The capacity of a transitional strategy sponsored by the state is questioned, even though the governmental apparatus is seen as crucial to a change of any paradigm.
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Desenvolvimento sustentável Planeamento estratégico Paradigma económico Plurianual Brasil