Teoria da instrumentação da ação pública e os instrumentos públicos municipais: os instrumentos de planejamento do município de Candeias/MG

Abstract

This paper discusses the local development on the Theory of Public Action Instrumentation, aiming to analyze how the public instruments PPA, LDO and LOA elaborated in the municipality of Candeias / MG interfere in the municipal public action. In order to do so, we try to remember, since redemocratization, the changes that have taken place in the municipal planning, where the municipalities acquire greater autonomy and protagonism on the decisions at the local level. The Federal Constitution of 1988 establishes three instruments of municipal planning, such as the Plurianual Plan (PPA), the Budgetary Guidelines Law (LDO) and the Annual Budget Law (LOA), which are actually being implemented after the edition of the Fiscal Responsibility Law (LRF). In a second moment, it is analyzed how the Instrumentation of Public Action defines the public instruments as devices at the same time technical and social, in which are ordered the social relations between the public administration and the recipients depending on the meaning and the representation given to each actor. Therefore, the PPA, LDO and LOA are instruments that have abandoned their initial objectives, taking into account power relations that express autonomous force of action. In this way, the actors' appropriations and the technical configuration of the instrument generate two effects: one aimed at the technical and autonomous rationality of the instrument, independent of social groups; and the social effect of the instrument that holds the direct interference of the actors involved in its elaboration. Both effects will be dealt with later in this research. For this purpose, this work had as a qualitative case study the City of Candeias - MG, for the analysis of how the choice and elaboration of the public instruments of municipal planning occur. Documentary research is used as data collection, as well as interviews with semi-structures and focus groups, with representatives of civil society and municipal public administrators. It is observed that the instrumentation of the public action comes from the force exerted by the instrument on the action of the actor, instead of the action of the actor on the instrument. In the municipality in question, the action of the actors is conditioned by two factors; the technical factor of the instrument and the financial factor for the accomplishment of public policies.