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Trata-se de pesquisa teórica, de natureza histórica e conceitual, que analisa a configuração das instituições políticas municipais e federativas, a forma de assimilação dessas instituições políticas no Brasil e como se articularam à organização da educação nacional. Busca-se analisar como as idéias de município e de federação e a organização da educação foram se configurando no cenário político e institucional brasileiro e como ganharam materialidade a partir da promulgação da Constituição Federal de 1988, que representou o ponto de convergência entre essas instituições políticas e a organização do ensino brasileiro. Com base no aporte teórico da Ciência Política, o trabalho discute os fundamentos conceituais e históricos da relação entre federalismo, poder local e educação, a partir da idéia original de federação concebida pelos fundadores do federalismo norte-americano – James Madison, Alexander Hamilton e John Jay -, dos conceitos de democracia de Alexis de Tocqueville e da idéia de federação total de Pierre- Joseph Proudhom, indicando a inadequação da associação direta que geralmente é feita entre regime federativo, descentralização e democratização. Partindo dessa constatação, o trabalho analisa a instituição municipal desde as suas origens em Roma -passando por seu funcionamento em Portugal- até a sua implantação em terras brasileiras, para comprovar que as instituições políticas municipais, transplantadas para o Brasil, não tinham o princípio basilar da autonomia local presente nas comunas européias, como no caso do self-governement anglosaxônico. Com essas evidências históricas, discutimos a organização do ensino, no que se refere à oferta de instrução elementar, em sua relação com as instituições políticas municipais e federativas, indicando a construção puramente ideológica – e também idealista – do discurso municipalista brasileiro desde a década de 1940, que foi retomado com vigor por ocasião do debate constituinte da década de 1980. Nesse debate, foi completamente desconsiderada toda uma tradição de pensamento político sobre a organização do Estado brasileiro que remonta à tradição liberal e descentralizadora de Tavares Bastos e Rui Barbosa, ao separatismo como solução dos conflitos entre centralização e descentralização política e à tradição autoritária e nacionalista do pensamento de Alberto Torres e de Oliveira Vianna, analisadas nesse trabalho para mostrar que o debate considerado pioneiro sobre a municipalização do ensino, entre Anísio Teixeira e Carlos Correa Mascaro, omitia essas tradições como se a organização do ensino em bases municipais estivesse descolada do debate sobre a organização do Estado brasileiro, omissão esta que marcará também o debate sobre a temática da década de 1980 até os nossos dias. As conclusões apontam para a necessidade de situar a descentralização municipalista atual no quadro mais amplo das contradições e complexidade do federalismo brasileiro. / This is a theoretical research, of historical and conceptual nature, which analyzes the configuration of municipal and federative political institutions, the way these political institutions were assimilated in Brazil and how they were articulated to the organization of national education. The text analyzes how the municipal and federative ideas and the organization of education have been formed in the Brazilian political and institutional scenario and how they have gained materiality since the enactment of the Federal Constitution of 1988, that represented the convergence point between these political institutions and the organization of Brazilian education. Based on the theoretical contribution of Political Science, this paper discusses the conceptual and historical basis of the relation between federalism, local power and education, based on the original idea of federation conceived by the founders of North-American federalism – James Madison, Alexander Hamilton and John Jay –, on the concepts of democracy of Alexis de Tocqueville and on the idea of total federation of Pierre-Joseph Proudhom, indicating the inadequacy of direct association which is generally made between the federative system, decentralization and democratization. Based on this verification, this paper analyzes the municipal institution beginning at its origins in Rome – passing through its application in Portugal – until its implantation in Brazilian lands, to prove that the municipal political institutions, transplanted to Brazil, didn’t have the essential principle of local autonomy present in the European communes, as in the case of Anglo-Saxon selfgovernment. Based on these historical evidences, we discuss the organization of education, regarding the offer of elementary schooling, in its relationship with the municipal and federative political institutions, indicating the purely ideological – and also idealistic – construction of Brazilian municipalist speech in the 40’s, which was vigorously retaken at the time of the constituent debate in the 80’s. The tradition of political thought regarding the organization of the Brazilian State was completely disregarded during the mentioned debate, which goes back to the liberal and decentralizing tradition of Tavares Bastos and Rui Barbosa, to the separatism as a solution for the conflicts between political centralization and decentralization and to the authoritarian and nationalistic tradition of Alberto Torres and Oliveira Vianna. The above was analyzed in this paper to show that the debate, between Anísio Teixeira and Carlos Correa Mascaro, which is considered as a pioneer in the municipalization of teaching, has omitted these traditions as if the organization of teaching in municipal areas was disconnected from the debate on the organization of the Brazilian State – this omission will also mark the debate on this theme during the 80’s up to the present date. The conclusions point towards the need to place the current municipal decentralization within the larger picture of contradictions and complexity of the Brazilian federalism.

Trata-se de pesquisa teórica, de natureza histórica e conceitual, que analisa a configuração das instituições políticas municipais e federativas, a forma de assimilação dessas instituições políticas no Brasil e como se articularam à organização da educação nacional. Busca-se analisar como as idéias de município e de federação e a organização da educação foram se configurando no cenário político e institucional brasileiro e como ganharam materialidade a partir da promulgação da Constituição Federal de 1988, que representou o ponto de convergência entre essas instituições políticas e a organização do ensino brasileiro. Com base no aporte teórico da Ciência Política, o trabalho discute os fundamentos conceituais e históricos da relação entre federalismo, poder local e educação, a partir da idéia original de federação concebida pelos fundadores do federalismo norte-americano – James Madison, Alexander Hamilton e John Jay -, dos conceitos de democracia de Alexis de Tocqueville e da idéia de federação total de Pierre- Joseph Proudhom, indicando a inadequação da associação direta que geralmente é feita entre regime federativo, descentralização e democratização. Partindo dessa constatação, o trabalho analisa a instituição municipal desde as suas origens em Roma -passando por seu funcionamento em Portugal- até a sua implantação em terras brasileiras, para comprovar que as instituições políticas municipais, transplantadas para o Brasil, não tinham o princípio basilar da autonomia local presente nas comunas européias, como no caso do self-governement anglosaxônico. Com essas evidências históricas, discutimos a organização do ensino, no que se refere à oferta de instrução elementar, em sua relação com as instituições políticas municipais e federativas, indicando a construção puramente ideológica – e também idealista – do discurso municipalista brasileiro desde a década de 1940, que foi retomado com vigor por ocasião do debate constituinte da década de 1980. Nesse debate, foi completamente desconsiderada toda uma tradição de pensamento político sobre a organização do Estado brasileiro que remonta à tradição liberal e descentralizadora de Tavares Bastos e Rui Barbosa, ao separatismo como solução dos conflitos entre centralização e descentralização política e à tradição autoritária e nacionalista do pensamento de Alberto Torres e de Oliveira Vianna, analisadas nesse trabalho para mostrar que o debate considerado pioneiro sobre a municipalização do ensino, entre Anísio Teixeira e Carlos Correa Mascaro, omitia essas tradições como se a organização do ensino em bases municipais estivesse descolada do debate sobre a organização do Estado brasileiro, omissão esta que marcará também o debate sobre a temática da década de 1980 até os nossos dias. As conclusões apontam para a necessidade de situar a descentralização municipalista atual no quadro mais amplo das contradições e complexidade do federalismo brasileiro. / This is a theoretical research, of historical and conceptual nature, which analyzes the configuration of municipal and federative political institutions, the way these political institutions were assimilated in Brazil and how they were articulated to the organization of national education. The text analyzes how the municipal and federative ideas and the organization of education have been formed in the Brazilian political and institutional scenario and how they have gained materiality since the enactment of the Federal Constitution of 1988, that represented the convergence point between these political institutions and the organization of Brazilian education. Based on the theoretical contribution of Political Science, this paper discusses the conceptual and historical basis of the relation between federalism, local power and education, based on the original idea of federation conceived by the founders of North-American federalism – James Madison, Alexander Hamilton and John Jay –, on the concepts of democracy of Alexis de Tocqueville and on the idea of total federation of Pierre-Joseph Proudhom, indicating the inadequacy of direct association which is generally made between the federative system, decentralization and democratization. Based on this verification, this paper analyzes the municipal institution beginning at its origins in Rome – passing through its application in Portugal – until its implantation in Brazilian lands, to prove that the municipal political institutions, transplanted to Brazil, didn’t have the essential principle of local autonomy present in the European communes, as in the case of Anglo-Saxon selfgovernment. Based on these historical evidences, we discuss the organization of education, regarding the offer of elementary schooling, in its relationship with the municipal and federative political institutions, indicating the purely ideological – and also idealistic – construction of Brazilian municipalist speech in the 40’s, which was vigorously retaken at the time of the constituent debate in the 80’s. The tradition of political thought regarding the organization of the Brazilian State was completely disregarded during the mentioned debate, which goes back to the liberal and decentralizing tradition of Tavares Bastos and Rui Barbosa, to the separatism as a solution for the conflicts between political centralization and decentralization and to the authoritarian and nationalistic tradition of Alberto Torres and Oliveira Vianna. The above was analyzed in this paper to show that the debate, between Anísio Teixeira and Carlos Correa Mascaro, which is considered as a pioneer in the municipalization of teaching, has omitted these traditions as if the organization of teaching in municipal areas was disconnected from the debate on the organization of the Brazilian State – this omission will also mark the debate on this theme during the 80’s up to the present date. The conclusions point towards the need to place the current municipal decentralization within the larger picture of contradictions and complexity of the Brazilian federalism.

O objetivo deste trabalho é o de identificar as razões que levaram o sistema estadual de educação no Rio de Janeiro a uma permanente crise, seja no (des) controle das ações de governo, seja no não cumprimento de suas responsabilidades no que se refere à oferta do ensino médio para a população estudantil fluminense. O estudo da formação do federalismo no país, a partir da inauguração da República, demarcará a definição do cenário histórico e político concebendo como tal processo desenvolveu-se nas relações entre o Estado e a sociedade. Caracterizar o federalismo brasileiro servirá de apoio para a discussão principal deste trabalho. Buscando historicamente as evidências da crise sistêmica da educação no estado, a análise deste tema parte de se reconhecer que os processos de centralização descentralização do ensino desencadearão um movimento descontínuo das ações governamentais, no isolamento dos planos educacionais, entre os anos de 1975 (início da fusão entre os estados da Guanabara e o Rio de Janeiro) a 1998. Partindo das articulações de centralização descentralização do ensino no Brasil e no estado do Rio de Janeiro, o exemplo do município de Paracambi será apresentado como possibilidade de se observar a experiência das municipalizações (prefeiturizações) ocorridas na cidade e como se estabeleceram as relações institucionais entre as esferas de governo, estadual e municipal. / The aim of this work is to identify the reasons that led the state educational system in Rio de Janeiro to a permanent crisis. Such crisis was observed either in the (lack of)control of the government acts or in the failure to accomplish its responsibilities to offer high school education to the student population of the state. The study of the formation of federalism in Brazil, since the beginning of the Republic, will point out the definition of the historical and political scene showing how this process developed in the relations between the State and the society. The characterization of the Brazilian federalism will support the main discussion of this work.In the historical search for the evidences of the state educational systemic crisis, the analysis of this theme starts from the recognition that the processes of centralization decentralization of education will cause a discontinuous movement of governamental acts, isolating the educational plans, between the years 1975 ( the beginning of the political union between the states of Guanabara and Rio de Janeiro ) and 1998. Starting from the articulations of centralization decentralization of education in Brazil and in the state of Rio de Janeiro, the example of the city of Paracambi will be presented as a possibility of observing the experience of education managed by the municipality found in this city. It will also show how the institutional relations among the federal, state and municipal levels were established.

Thesis (PhD (Education Policy Studies))--University of Stellenbosch, 2010. / ENGLISH ABSTRACT: The decentralisation of power in education is part of a global process that has become part of the education reform policies of most countries. Decentralisation, which is typified by the redistribution of power to local levels, is claimed to serve a variety of ends from democratization to efficiency, empowerment of stakeholders to improved quality of education. It is, however, a complex process that is difficult to capture as power is seen to manifest in multiple ways. During the nineties Zimbabwe, against the background of a massive increase in enrolments, for a variety of reasons including the improvement of the quality of education, embarked on the re-distribution of administrative and financial power in the Ministry of Education, Sport and Culture. The implementation of this policy revealed major discrepancies between the intentions of government and the way it translated in educational sites. The aim of this study is to explore how the intentions of decentralisation in education as a policy aimed that the improvement of the quality of education is experienced by school principals. An interpretative methodology with in depth interviews, focus groups, some observations and document analysis were employed to engage in the debates about decentralisation. Although this was a small study the findings concurred with studies of decentralisation in other countries where it was found that the re-distribution of power in education manifests differently in different contexts in the same country. In countries such as Zimbabwe where resource limitations and restructuring concomitantly took place the experience of principals revealed that conditions arose that could not be seen to be conducive to the improvement of the quality of education such as the ambiguity of the meaning of who is responsible for what, the power struggles as government was seen to recentralise crucial roles, increased workloads of principals due to the devolving of administrative and supervisory functions to school level, loss of teachers and other specialist functionaries conducive to a drop in standards and the challenge to parents who had to contribute increasingly to enable schooling of their children. These findings are indicative of the claims from studies in other countries that decentralisation as a policy for whatever reason is seldom more than political rhetoric to decentralise conflict. Exploring the intersection between the literature on decentralisation and parental involvement of education, however, revealed the opening up of other spaces that enabled local power relations to develop in creative ways as parents got increasingly involved in schools. Apart from the challenges related to the redistribution of power as authority delegated, devolved or deconcentrated from government, this study revealed that power manifests in relations and interactions not necessarily ascribed to the intentions of policy, neither as a substance or function only. / AFRIKAANSE OPSOMMING: Die desentralisering van mag in die onderwys maak deel uit van ʼn wêreldwye proses van onderwyshervorming. Desentralisasie, wat deur die herverspreiding van mag na plaaslike vlakke gekenmerk word, is veronderstel om aan ʼn verskeidenheid doele te beantwoord – van demokratisering tot die verhoging van doeltreffendheid, die bemagtiging van belanghebbendes, en die verbetering van onderwysgehalte. Desentralisasie is egter ‘n komplekse proses waaraan moeilik uitvoering gegee kan word, aangesien mag in verskeie gedaantes voorkom. In die negentigerjare het Zimbabwe, teen die agtergrond van ʼn drastiese toename in inskrywings, die herverspreiding van administratiewe en finansiële mag in die Ministerie van Onderwys, Sport en Kultuur onderneem. Dié stap is aan verskillende redes toegeskryf, waaronder die verbetering van onderwysgehalte. Die toepassing van die beleid het egter groot teenstrydighede aan die lig gebring tussen die regering se voornemens, en hoe dié voornemens uiteindelik prakties in onderwysinstellings ten uitvoer gebring is. Die doel van hierdie studie is om skoolhoofde se ervaring van onderwysdesentralisasie as beleid te ondersoek. Die studie is vanuit ‘n interpreterende benadering gedoen met diepte-onderhoude, fokusgroepe, ʼn paar waarnemings sowel as dokumentontleding. Ongeag die beperkte omvang van die studie, stem die bevindinge ooreen met dié van navorsing oor desentralisasie in ander lande, waar bevind is dat herverspreiding van mag in dieselfde land in verskillende kontekste verskillend realiseer. In lande soos Zimbabwe, waar herstrukturering te midde van hulpbronbeperkinge plaasgevind het, het skoolhoofde bepaalde omstandighede ervaar wat nié die verbetering van onderwysgehalte sou kon bevorder het nie. Dít sluit in onsekerheid oor die onderskeie partye se verantwoordelikhede; die magstryd toe die regering kernrolle sentraal beheer; swaarder werklaste vir skoolhoofde nadat administratiewe en toesigfunksies na skoolvlak afgewentel is; ʼn verlies aan onderwysers en ander spesialisamptenare, wat op sy beurt standaarde laat daal het, en ouers se groter verantwoordelikheid om al hoe meer by te dra ten einde hulle kinders se opvoeding te verseker. Hierdie bevindinge strook ook met dié van studies in ander lande, naamlik dat desentralisering as ʼn beleid om watter rede ook al selde meer is as politieke retoriek ten einde konflik te desentraliseer. Nadere ondersoek van die verband tussen navorsing oor desentralisasie, en dié oor ouerbetrokkenheid by onderwys het egter daarop gedui dat desentralisering wel nuwe moontlikhede kan ontsluit vir die skeppende ontwikkeling van plaaslike magsverhoudinge namate ouers al hoe meer by skole betrokke raak. Buiten die uitdagings met betrekking tot die herverspreiding van mag namate regeringsgesag gedelegeer, afgewentel of gedekonsentreer word, dui dié studie daarop dat mag soms ook in verhoudinge en wisselwerkings geopenbaar word wat nie noodwendig met die voornemens van die beleid verband hou nie, en dit mag voorts nie as net substansie of net funksie tot uiting kom nie.

[pt] A política educacional brasileira tem propiciado a descentralização da educação entre as diferentes instâncias político-administrativas do Estado, e esta descentralização está sendo concretizada por meio de reformas em nível do sistema educacional e da escola. A descentralização administrativa, pedagógica e financeira da educação fundamental pública e a concessão de uma maior autonomia à escola trazem à tona o papel dos diretores de escola, responsáveis diretos pela condução da gestão escolar neste novo contexto. É nesse cenário que este estudo visa a contribuir para o conhecimento do perfil dos diretores da escola fundamental e dos estilos de gestão escolar prevalecentes no Brasil e no Estado do Rio de Janeiro, a partir de dados apresentados pelo Saeb 2001. Para tanto, a pesquisa levou em conta as principais contribuições da literatura nacional e internacional, atual sobre o tema, à luz das quais procurou compreender como os questionários do diretor e do professor do Saeb 2001 consideram esta literatura para captar as características dos diretores deste grau de ensino. A caracterização dos estilos de gestão e do perfil dos diretores dos alunos matriculados na 4ª série do Ensino Fundamental foi traçado com base nas informações coletadas por estes questionários, utilizando- se parcela da literatura educacional para abordar questões que se revelaram relevantes. / [en] Brazilian educational politics propitiates the decentralization of education among different political- administrative instances. This decentralization is being accomplished through reforms in the educational system and at school level. The administrative, pedagogic and financial decentralization in public fundamental education and the concession of greater autonomy to schools lead to a discussion about the role of directors, who are nowadays the persons directly responsible for school administration. In this new scenery the present study intends to contribute to the comprehension of the characteristics of fundamental school directors and of predominant administrative styles in Brasil and specifically in Rio de Janeiro state. The research is based on information presented in Saeb 2001. In order to achieve this objective the research considered the main contributions of current national and international literature about the subject. The aim was to understand how the director and the teacher questionnaires in Saeb 2001 take into consideration this literature in order to identify the characteristics of fundamental school directors. Part of educational literature was used to examine important aspects of the information collected through the questionnaires, leading to important conclusions about administrative styles and the characteristics of fourth grade directors.