O processo de institucionalização da participação na Câmara Municipal de São Paulo: uma análise das audiências públicas do orçamento (1990-2010)

• Ano de defesa: 2012
• Autor(a) principal: Brelàz, Gabriela de
• Orientador(a): Alves, Mário Aquino
• Tipo de documento: Tese
• Tipo de acesso: Acesso aberto
• Idioma: por
• Palavras-chave em Português: Participação; Institucionalização; Sociedade civil; Poder legislativo; Poder executivo
• Palavras-chave em Inglês: Participation; Institutionalization; Civil society; Legislative power; Executive power
• Link de acesso: http://hdl.handle.net/10438/9436

The purpose of this research is to analyze the process of institutionalization of civil society participation at São Paulo city council through the analysis of the budget public hearings between 1990 and 2010. This research took into account the discussions regarding the limits of representative democracy and the importance of civil society participation as a mechanism to complement but not replace representative democracy. In terms of methodology, it is a qualitative analysis focused on the characteristics of the entities, processes and purposes. The case study methodology – largely used in topics with limited previous studies, as is the case of the civil society participation in the legislative branch - was applied together with the longitudinal field work. Regarding theoretical frame, this research was based on organizational studies institutionalism, with emphasis on micro foundations, focusing on cultural and cognitive explanations, very useful in the study of participation. In the review of the various participants involved in the institutionalization process and the different mechanics of participation, the contribution of Niklas Luhmann autopoietic system theory was of seminal importance. The study identifies four subsystems: legislative power, executive power, civil society, and the bureaucracy of the city council. The dynamics of each subsystem during the 20 year period reviewed in this research enables us to analyze the set of regulatory, normative and cultural-cognitive variables that influences the process of civil society participation institutionalization. This research concludes that, despite of being institutionalized, the participation at the legislative house faces limitations to be effectively exercised due to normative and cultural-cognitive constraints that exceeds each of the individual subsystem, specially the Legislative Power. It is problematical to institutionalize the participation at the São Paulo city council because the city representatives belong to an autopoietic subsystem with particular norms and values that poses challenges to the entrance of the civil society subsystem in the discussion of the annual budget. There is some opportunity for participation, but such participation is shaped by the existent behavior in the relationship between representatives and its constituents, including a strong clientelism, sedimenting what this research names as budgetary clientelism, a type of participation focused on supplying very specific demands of civil society that are fulfilled through amendments to the annual budget, and not a participation focused in discussing public policies and exercising a true social control over the annual budget.