Panorama das capacidades institucionais municipais para a promoção da Governança Ambiental no Estado de São Paulo
Resumo
Studies on the perspective of sustainable development fulfill local governance as central to the promotion of this new development paradigm. However, due to several factors, such as the limitation inherent to the capabilities of public authorities in providing answers to the complex range of environmental issues and problems; the recent institutionalization of specific organizational structures for the Environment agenda in the State of São Paulo or their absence, the institutional structures of local governments still seem to lack sufficient power in promoting environmental governance. To understand this scenario, the present work analyzes the panorama of institutional resources for the promotion of environmental governance in the State of São Paulo. The methodological proposal is divided into two parts: in the first, a critical review of the recent literature on environmental governance in Brazilian municipalities was carried out, from which the main paradigms related to the construction of environmental governance in the national scenario were identified from the understanding of the scale of the concept (global, territorial and local). At this stage, the different meanings of the same concept were reported, even if at different scales of understanding they delimit the construction of environmental governance in municipalities through different strategies and instruments; the second part was carried out based on the survey, systematization and analysis of secondary data from the Munic survey (2021) organized by the Brazilian Institute of Geography and Statistics, with the objective of bringing the paradigms evidenced in the construction of the concept of governance closer to the proposed scenario for the State of São Paulo. In this stage, a series of data correlations are developed on the institutional resources of the municipalities and their environmental management structures, which were divided into: i) capability to promote expanded participation; ii) capability to provide resources; iii) policy coordination capability and means of implementation. Throughout the analyses, critical reflections were proposed on the listed resources and the understanding of municipal environmental governance. As main results, it is highlighted, in the first instance, that the promotion of environmental governance in the State of São Paulo finds as its main challenge the limits of the current model of representative democracy itself, which imposes barriers to the legitimation of participatory practices, opening room for manipulation and to clientelistic practices, which reinforce social exclusion. Thus, understanding the institutions beyond their structures, and considering the rules, norms and the modus operandi of the institutions, it is necessary to improve the institutional capability of the municipalities in the sense of environmental democracy, based on the pillars of participation, access to information and justice, to be able to promote environmental governance. Los estudios sobre la perspectiva del desarrollo sostenible consideran la gobernanza local como central para la promoción de este nuevo paradigma de desarrollo. Sin embargo, debido a varios factores, como la limitación inherente a las capacidades de las autoridades públicas para dar respuestas a la compleja gama de cuestiones y problemas ambientales; Debido a la reciente institucionalización de estructuras organizativas específicas para la agenda ambiental en el estado de São Paulo o a su ausencia, las estructuras institucionales de los gobiernos locales todavía parecen carecer de poder suficiente para promover la gobernanza ambiental. Para comprender este escenario, el presente trabajo analiza el panorama de recursos institucionales para la promoción de la gobernanza ambiental en el Estado de São Paulo. La propuesta metodológica se divide en dos partes: en la primera, se realizó una revisión crítica de la literatura reciente sobre gobernanza ambiental en municipios brasileños, a partir de la cual se identificaron los principales paradigmas relacionados con la construcción de la gobernanza ambiental en el escenario nacional a partir de la comprensión de la escala del concepto (global, territorial y local). En esta etapa se reportaron los diferentes significados de un mismo concepto, aunque en diferentes escalas de comprensión delimitan la construcción de la gobernanza ambiental en los municipios a través de diferentes estrategias e instrumentos; la segunda parte se realizó a partir del levantamiento, sistematización y análisis de datos secundarios de la encuesta Munic (2021) organizada por el Instituto Brasileño de Geografía y Estadística, con el objetivo de acercar los paradigmas evidenciados en la construcción del concepto de gobernanza. más cercano al escenario propuesto para el Estado de São Paulo. En esta etapa se desarrollan una serie de correlaciones de datos sobre los recursos institucionales de los municipios y sus estructuras de gestión ambiental, los cuales se dividieron en: i) capacidad para promover una mayor participación; ii) capacidad para proporcionar recursos; iii) capacidad de coordinación de políticas y medios de implementación. A lo largo de los análisis, se propusieron reflexiones críticas sobre los recursos catalogados y la comprensión de la gobernanza ambiental municipal. Como principales resultados, se destaca, en primera instancia, que la promoción de la gobernanza ambiental en el Estado de São Paulo encuentra como principal desafío los límites del propio modelo actual de democracia representativa, que impone barreras a la legitimación de prácticas participativas. , abriendo espacio a la manipulación y a prácticas clientelistas, que refuerzan la exclusión social. Así, entendiendo las instituciones más allá de sus estructuras, y considerando las reglas, normas y el modus operandi de las instituciones, es necesario mejorar la capacidad institucional de los municipios en el sentido de la democracia ambiental, basada en los pilares de participación, acceso a información y justicia, para poder promover la gobernanza ambiental.
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