Elites estatais e reforma do estado na nova rep??blica: o projeto Enap e a forma????o da carreira de gestor governamental no Brasil

Os objetos desta pesquisa s??o: 1) a atua????o das elites burocr??ticas do Poder Executivo Federal no processo de transi????o pol??tica no Brasil, nos anos 1980; 2) as frentes de reforma na Nova Rep??blica, nas ??reas social, econ??mica e administrativa e 3) as tentativas de renova????o da gest??o p??blica representadas pela cria????o da Escola Nacional de Administra????o P??blica (ENAP) e da Carreira de Gestor Governamental (EPPGG). Esse era um contexto de reinstitucionaliza????o da fun????o diretiva do Estado e de deslocamento das fronteiras entre o burocr??tico e o pol??tico no setor p??blico brasileiro. A hip??tese central aqui defendida ?? de que a ENAP e a Carreira de Gestor Governamental eram duas op????es inovadoras frente ao dilema sobre quais seriam os pap??is cab??veis a pol??ticos e administradores na nova ordem democr??tica, mas tamb??m eram op????es sem enraizamento nos pactos e agendas de prioridades que viabilizaram a mudan??a de regime no pa??s. A Escola e a Carreira estavam em disson??ncia com as principais tend??ncias de recomposi????o das elites estatais na transi????o a partir do regime militar e sofreram bloqueios em raz??o disso, mas a pesquisa procurou desconstruir algumas narrativas sobre esses conflitos interburocr??ticos, que associam as resist??ncias impostas ?? ENAP e ?? Carreira pelos grupos de funcion??rios da Fazenda e Planejamento a interesses meramente corporativistas. Com um trajeto pelos estudos sobre as burocracias dos regimes militares e sobre as transi????es no Brasil e na Am??rica Latina, buscou-se aqui uma melhor identifica????o dos grupos integrantes das ???tecnoburocracias??? e de suas contribui????es para a moderniza????o administrativa e econ??mica do pa??s, na segunda metade do s??culo XX. Buscou-se revelar algumas conflu??ncias entre as ideias de tecnocratiza????o e profissionaliza????o das altas fun????es p??blicas e seus elos com as aspira????es pela reconstru????o do Estado sob bases mais democr??ticas, mostrando que, nos anos 1980, as propostas da SEDAP n??o eram os ??nicos projetos de moderniza????o em curso, tampouco os grupos que a elas se opuseram representavam interesses univocamente antidemocr??ticos.

The aims of this work are: 1) the actions of the bureaucratic elites of the government's in the transition process to the democracy of Brazil in the eighties; 2) the process of reform in the social, economic and administrative areas in the Brazilian New Republic and 3) the attempt to innovate the public administration brought by the creation of Escola Nacional de Administra????o P??blica (ENAP) and the career of Gestor Governamental (EPPGG) (career of Government Managers). It focuses on the context of reinstitutionalization of the steering function of the State and on the displacement of the borders existing between bureaucracy and politics in the Brazilian public sector. The main hypothesis being sought is that ENAP and the Carreira de Gestor Governamental were two innovative agents able to manage the dilemma about the appropriate roles of politicians and executive directors in the new democratic order, but also were freestanding options within the pacts and agendas of priorities that made the changes in the governance regime, once the ???Escola??? and the ???Carreira??? were in dissonance with the main tendencies of recomposition of the bureaucratic elites in the transition process of the military regime and because of this they suffered restrictions. The academic research tried to deconstruct some narratives about the bureaucratic conflicts which assigned the resistance imposed to the career by the groups of employees of the ministries of Fazenda and Planejamento to merely corporatist interests. Starting from the studies about the bureaucracies of the military regime and the transitions in the Brazil e and Latin America, we intended to properly identify the groups of the ???tecnobureaucracy??? and their contributions to the administrative and economics modernization of the country in the second half of the twentieth century to reveal the link between the idea of professionalization of the high public careers and the aspirations for the reconstruction of the State grounded on more democratic foundings, showing that proposals of SEDAP were not the only projects of the ongoing modernization, neither the opponent groups represented only antidemocratic interests.

Les objectifs de cette recherche sont: 1) la performance des ??lites bureaucratiques de l'administration f??d??rale dans le processus de transition politique au Br??sil, durant les ann??es 1980; 2) les fronts de reforme ?? l???int??rieur de la Nouvelle R??publique, par rapport ?? la vie sociale, ??conomique et administrative et 3) les essais de renouvellement de l'administration publique represent??s par la cr??ation de l'??cole nationale d'administration publique (ENAP) et la Carri??re de Gestionnaire Public (EPPGG). Il s???agit d???un contexte de r??int??gration de la fonction directive de l?????tat, ainsi que de d??placement des fronti??res entre le secteur politique et bureaucratique publique au Br??sil. L'hypoth??se centrale soutenue ici est que l???ENAP et la Carri??re de Gestionnaire Public ??taient deux options innovantes en face du dilemme sur quels seraient les r??les applicables aux politiciens et auxs administrateurs dans le nouvel ordre d??mocratique, pourtant ??taient ??galement des options sans enracinement dans les pactes et l???agenda de priorit??s qui ont engendr?? le changement de r??gime dans le pays. L?????cole et la Carri??re ??taient en contradiction avec les tendances principales de recomposition des ??lites de l'Etat dans la transition du r??gime militaire et ?? cause de cela, l???ont elles ont subi des blocages, mais l'??tude a cherch?? ?? d??construire certains discours sur les conflits inter-bureaucratiques qui combinent la r??sistance impos??e ?? l'ENAP et ?? la Carri??re par les groupes des employ??s des Finances et de la Planification seulement aux int??r??ts corporatistes. ?? travers un parcours pour les ??tudes sur les bureaucraties des r??gimes militaires et sur les transitions au Br??sil et en Am??rique latine, ici nous avons cherch?? ?? mieux identifier les groupes qui composaient les ???techno-bureaucracies" et leur contribution ?? la modernisation ??conomique et administrative du pays, dans la deuxi??me moiti?? du XXeme si??cle. Nous avons cherch?? ?? r??v??ler des confluences entre les id??es de technocratisation et la professionnalisation des hautes fonctions publiques et ses liens avec les aspirations ?? la reconstruction de l'Etat sous des bases plus d??mocratiques, et nous montrons que, pendant les ann??es 1980, les propositions de SEDAP n?????taient pas les seuls projets de modernisation pr??sents, ni ses groupes opos??s repr??sentaient des int??r??ts uniquement antid??mocratiques.

N??mero de p??ginas: 221 p.

Administra????o P??blica

Texto publicado no DVD: EPPGG 25 anos a servi??o da cidadania - 30 textos fundamentais sobre a Carreira EPPGG.

Tese apresentada ao Departamento de Sociologia da Universidade de Bras??lia/UnB como parte dos requisitos para a obten????o do t??tulo de Doutor.