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Abstract(s)
A presente tese analisa, discute e reflete sobre os processos de governança locais na
conceção, implementação e avaliação de projetos implementados no âmbito de programas
ou políticas sociais, partindo da análise das mudanças ocorridas na sociedade portuguesa nos
últimos 30 anos e respetivas repercussões na vida das pessoas, das organizações e dos
territórios.
A conquista da democracia foi um marco inequívoco no processo de reconhecimento
e consagração de direitos sociais, em Portugal. As funções assumidas pelo Estado Social
garantem a universalidade dos direitos, mas, ao longo dos anos, foram sendo demonstradas
algumas fragilidades do sistema instituído, associadas à centralização das funções,
designadamente a dificuldade de acesso aos serviços, devido à localização dos serviços
físicos e/ou distanciamento das populações, e a excessiva morosidade no acesso a direitos,
causada sobretudo pela burocratização dos serviços. Por outro lado, existe uma tradição de
cooperação entre o Estado e as Organizações da Economia Social na provisão de bens e
serviços (assinatura do Pacto de Cooperação para a Solidariedade Social, em 1996) nas áreas
de infância, juventude, deficiência, velhice, saúde, educação e ação social. Neste contexto,
assistiu-se a uma progressiva delegação de competências em matéria de ação social, que
oscilou entre períodos com maior centralização e outros de maior descentralização de
poderes e competências.
Através da análise de um exemplo de uma medida de política (a Rede Local de
Intervenção Social / Serviço de Atendimento e Acompanhamento Social), da aplicação de
inquéritos por questionário (a profissionais de 74 concelhos distintos), da realização de
estudos de caso e de grupos focais com atores privilegiados, foi possível definir eixos de
análise que permitem compreender as dinâmicas de governança e classificar traços
caracterizadores que possibilitaram a constituição de modelos de governança adotados nos
territórios. A investigação permitiu identificar virtualidades e limitações da adoção de
modelos de governança de base territorial, muito influenciados pelo histórico e
características do relacionamento interinstitucional dos territórios, bem como pelo seu grau
de abertura à operacionalização das dinâmicas de governança. Não obstante, verificou-se
uma certa ambiguidade avaliativa e alguma controvérsia no debate sobre a necessidade e
utilidade da avaliação, por um lado, e de um descrédito sobre a eficácia dos processos de
avaliação, por outro. Em consequência, apesar do reconhecimento teórico da pertinência da
avaliação, prevalece uma cultura de obrigatoriedade de cumprimento de práticas de
avaliação, quando impostas, sem uma apropriação dos seus resultados ou a adoção de
medidas de acordo com as recomendações.
Sublinha-se a necessidade de reforçar a sensibilização para a aplicação efetiva de
práticas de avaliação, enquanto momentos de reflexão e aprendizagem, tendo por base os
princípios da participação, utilidade, flexibilidade / adaptabilidade, valorização da
complexidade, abordagem multimétodo e enfoque em mudanças e impactos. Apenas uma
avaliação assente nos valores de transparência, independência, ética e inclusão poderá
contribuir para aferir os resultados, efeitos e impactos de projetos, programas e políticas
sociais assentes em modelos de governança territoriais.
This thesis analyses, discusses and reflects on the processes of local governance in the design, implementation and evaluation of projects applied within the scope of social programmes or policies, from the analysis of the changes that have occurred in Portuguese society in the last 30 years and their repercussions on the people’s lives, organisations and territories. The conquest of democracy was an unequivocal milestone in the process of recognition and enshrinement of social rights in Portugal. The functions assumed by the Social State guarantee the universality of rights. However, over the years some weaknesses of the established system associated to the centralisation of functions have been demonstrated, namely the difficulty in accessing services, due to the location of physical services and/or the distance from the population, and the excessive slowness in accessing rights, mainly due to the bureaucratisation of services. On the other hand, there is a tradition of cooperation between the State and Social Economy organisations in the provision of goods and services (signature of the Cooperation Pact for Social Solidarity in 1996) in the areas of childhood, youth, disability, old age, health, education and social action. In this context, there was a progressive delegation of competencies in the field of social action, which oscillated between periods of greater centralisation and others of greater decentralisation of powers and those competencies. III Through the analysis of an example of a policy measure (the Local Social Intervention Network / Social Support Service), the application of questionnaire surveys (to professionals from 74 different municipalities), the accomplishment of case studies and focus groups with privileged actors, it was possible to define axes of analysis that allow to understand the dynamics of governance and classify characterizing features. These same features enabled the constitution of governance models adopted in the territories. The research made it possible to identify the virtues and limitations of the adoption of territorial governance models, greatly influenced by the history of the previous conciliation and the degree of openness of the territories to their operationalisation. Nevertheless, there was an evaluative ambiguity and controversy in the debate on its necessity and usefulness, on the one hand, and of discredit on the effectiveness of evaluation processes, on the other. Consequently, despite the theoretical recognition of the relevance of evaluation, there prevails a culture of mandatory compliance with evaluation practices, when imposed, without an appropriation of its results or the adoption of measures according to the recommendations. The need to strengthen awareness of the effective application of evaluation practices, as moments of reflection and learning, based on the principles of participation, usefulness, flexibility/adaptability, appreciation of complexity, multi-method approach and focus on changes and impacts, is emphasized. Only an evaluation based on the values of transparency, independence, ethics and inclusion can contribute to assessing the results, effects and impacts of projects, programmes and social policies based on territorial governance models.
This thesis analyses, discusses and reflects on the processes of local governance in the design, implementation and evaluation of projects applied within the scope of social programmes or policies, from the analysis of the changes that have occurred in Portuguese society in the last 30 years and their repercussions on the people’s lives, organisations and territories. The conquest of democracy was an unequivocal milestone in the process of recognition and enshrinement of social rights in Portugal. The functions assumed by the Social State guarantee the universality of rights. However, over the years some weaknesses of the established system associated to the centralisation of functions have been demonstrated, namely the difficulty in accessing services, due to the location of physical services and/or the distance from the population, and the excessive slowness in accessing rights, mainly due to the bureaucratisation of services. On the other hand, there is a tradition of cooperation between the State and Social Economy organisations in the provision of goods and services (signature of the Cooperation Pact for Social Solidarity in 1996) in the areas of childhood, youth, disability, old age, health, education and social action. In this context, there was a progressive delegation of competencies in the field of social action, which oscillated between periods of greater centralisation and others of greater decentralisation of powers and those competencies. III Through the analysis of an example of a policy measure (the Local Social Intervention Network / Social Support Service), the application of questionnaire surveys (to professionals from 74 different municipalities), the accomplishment of case studies and focus groups with privileged actors, it was possible to define axes of analysis that allow to understand the dynamics of governance and classify characterizing features. These same features enabled the constitution of governance models adopted in the territories. The research made it possible to identify the virtues and limitations of the adoption of territorial governance models, greatly influenced by the history of the previous conciliation and the degree of openness of the territories to their operationalisation. Nevertheless, there was an evaluative ambiguity and controversy in the debate on its necessity and usefulness, on the one hand, and of discredit on the effectiveness of evaluation processes, on the other. Consequently, despite the theoretical recognition of the relevance of evaluation, there prevails a culture of mandatory compliance with evaluation practices, when imposed, without an appropriation of its results or the adoption of measures according to the recommendations. The need to strengthen awareness of the effective application of evaluation practices, as moments of reflection and learning, based on the principles of participation, usefulness, flexibility/adaptability, appreciation of complexity, multi-method approach and focus on changes and impacts, is emphasized. Only an evaluation based on the values of transparency, independence, ethics and inclusion can contribute to assessing the results, effects and impacts of projects, programmes and social policies based on territorial governance models.
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Keywords
Governança Política social Intervenção social Avaliação Governance Social policy Social intervention Evaluation