Implicações da regulação pós-burocrática para o trabalho docente no Distrito Federal no âmbito do Pacto Nacional pela Alfabetização na Idade Certa (2013-2015)

Abstract

The research object of this thesis is the Pacto Nacional pela Alfabetização na Idade Certa [National Pact for Literacy at the Right Age] (PNAIC), which is understood as a program of the Brazilian educational policy, derived from the set of actions carried out in the context of the State counter-reformation that has been implemented in the country since the 1990s. The general purpose of this thesis was to analyze how PNAIC, instituted by the federal government in 2012, is constituted as an instrument of the education post-bureaucratic regulation model and its implications to the teaching work in the first grades of elementary school, within the purview of the Secretaria de Estado de Educação do Distrito Federal [Federal District Department of Education] (SEEDF). Considering the study object as a constitutive part of a broader social context, which involves production and reproduction of the material life, historical-dialectical materialism was chosen as the research method. The qualitative approach was the prevailing research approach, with the use of documental and bibliographical analysis, semi-structured interviews, and questionnaires to collect data from the subjects that enable the materialization of PNAIC. The interviews were carried out with the following subjects: managers from the Ministry of Education (MEC) and Instituto Nacional de Estudos e Pesquisas Educacionais Anísio Teixeira [National Institute for Educational Studies and Researches Anísio Teixeira] (INEP), who work in the national management of PNAIC; central-level managers of SEEDF, in charge of the coordination and planning of works regarding the first grades of elementary school and performance evaluations; teachers working in the intermediate level of SEEDF as Study Counselors of PNAIC; and coordinators of Coordenação de Formação Continuada de Professores [Continuous Teacher Training Coordination] (CFORM), within the scope of Universidade de Brasília [University of Brasília] (UnB). The questionnaire, which contained open and closed questions based on a five-point Likert scale, was applied to 273 teachers who took the literacy teacher training course within the scope of PNAIC, from four Regional Teaching Coordination Offices of SEEDF. Data analysis software programs Web Qualitative Data Analysis (WebQDA) and Statistical Package for Social Sciences (SPSS) were used to systematize the collected data. These data were handled according to the content analysis perspective, in order to discuss five specific objectives: to analyze the federal government perception of PNAIC purposes and how the training is connected with external evaluations; to check how SEEDF has been implementing and monitoring PNAIC; to identify the role of UnB, through CFORM, as a partner training agency; to examine SEEDF managers and teachers’ perception of PNAIC; and to verify how actions taken under PNAIC interfere with the work of literacy teachers of SEEDF. The results reveal that PNAIC is one of the post-bureaucratic regulation instruments employed in education, with the purpose of reorganizing, controlling and directly holding the teaching work accountable for quality results imposed by the government. The institutional arrangement of PNAIC is based on managerial administration, and it consolidates result-based management in the education network. To this end, it coordinates management, didactic materials, teacher training and external evaluation to accommodate the teaching work to the logic of marketing, competitiveness and productivity related to quality goals. By focusing on results, the government subjectively exploits teachers, pressuring, constraining and making them accountable for the quality results obtained. Thus, the teaching work is disqualified and massified, being reduced to the instrumental rationality aspects of know-how, which pulls it away from its purpose. Consequently, the foundations that will enable the implementation of the quasi-market in education are strengthened.