Ativismo e discricionariedade : análise da implementação da política de ATER no Programa Nacional de Diversificação em áreas cultivadas com tabaco

Abstract

Esta tese analisa o processo de implementação da Assistência Técnica e Extensão Rural (ATER) no escopo do Programa Nacional de Diversificação em Áreas com Cultivo de Tabaco (PNDACT) no Rio Grande do Sul (RS), entre os anos de 2018 e 2022. O objetivo geral do trabalho foi analisar como a implementação da política de ATER no âmbito do PNDACT é influenciada pelos valores das organizações implementadoras. Na execução da pesquisa foram utilizados como conceitos centrais as noções de burocrata de nível de rua e de discricionariedade, oriundos da literatura de implementação de políticas públicas, e os conceitos de causa contenciosa e de ativismo institucional, utilizados na literatura de movimentos sociais. O trabalho foi realizado a partir de estudo da implementação da política pública no Estado do RS por quatro organizações distintas, quais sejam: CAPA, Instituto Cultural Padre Josimo, COOPSAT e EMATER. Metodologicamente a pesquisa ocorreu a partir de análise qualitativa de informações oriundas de análise de literatura, de documentos que nortearam a política e de 14 entrevistas com dirigentes e extensionistas das quatro organizações implementadoras. A tese mostra que a implementação da política de ATER por organizações com valores distintos ocasiona diferentes estímulos de implementação para os extensionistas rurais.

This thesis analyzes the implementation process of Technical Assistance and Rural Extension (ATER) in the scope of the National Program for Diversification of Tobacco Cultivated Areas (PNDACT) in Rio Grande do Sul (RS). In RS, this policy was implemented in the period from 2018 to 2022 by four organizations, namely: EMATER/RS, Instituto Cultural Padre Josimo, CAPA, and COOPSAT. This work aimed to understand how the extensionist technicians responsible for executing this policy exercise their discretions. Three specific objectives were structured to achieve this purpose. The first sought to identify the criteria that guided the implementation of the PNDACT by extensionists from different organizations. The second specific objective sought to identify the justifications that technicians present for choosing certain courses of action when implementing the policy. The third sought to ascertain whether belonging to different organizations influences the adoption of distinct implementation conditions. In this research, the notions of a Street-Level Bureaucrat and Discretion from the literature on public policy implementation were used as a central idea, and the concepts of Contentious Causes and Institutional Activism, used in the literature of social movements in research aimed at understanding the conformation of various Brazilian public policies. The work was based on a qualitative analysis of information from a literature review, documents that guided the policy, and fourteen interviews with leaders and extensionists from the four policy implementing organizations. Among the research results, it was possible to demonstrate the existence of disputes over the orientation of ATER services at the national level, and the coalition involving family farming continued to exert influence in the execution of the ATER policy within the scope of the PNDACT, even after the Workers Party leaves the Federal Government. Furthermore, it was possible to confirm the hypotheses formulated that belonging to different organizations, as well as differences in the professional area of each extensionist, influence the different forms of action of these agents. It was also concluded that the implementation of the ATER policy is permeated by the activism institutional of extensionists.