A institucionalização da política de assistência estudantil no cenário das universidades federais brasileiras (2005 - 2020)

Abstract

Universities, previously seen as exclusive spaces for the elite, underwent processes of expanding admission, especially after the 1990s, due to public policies aimed at expanding access to higher education. This has resulted in a more inclusive education system. In this context, programs such as the National Student Assistance Program (Pnaes), established in 2007 and instituted in 2010, emerged to promote the retention of all students. However, since 2016, with the approval of Constitutional Amendment No. 95, education policies have suffered budget cuts, impacting the development of federal public measures. The thesis aims to analyze the processes of institutionalization of student assistance policies, focusing on Pnaes, in federal universities. The research investigates the stages of the processes of mobilization, implementation and institutionalization of policies, according to Kezar (2007). The central questions are: a) how is the institutionalization process of the Student Assistance Policy in federal universities designed from 2005 to 2020? b) what structures are being developed for the management of student assistance? c) how has the federal budget been available to maintain these policies? The qualitative research, with documentary support and semi-structured interviews with institutional managers, covers universities in the five regions of Brazil, such as the University of Brasília (UnB), the Federal University of Goiás (UFG), the Federal University of Vales do Jequitinhonha and Mucuri (UFVJM), the University of Recôncavo da Bahia (UFRB), the Federal University of Pampa (UNIPAMPA) and the Federal University of Amazonas (UFAM). For field research, managers responsible for the Dean of Student Assistance or equivalent at the following universities were interviewed: UnB, UFG, UFRB and UNIPAMPA. Analysis of PDIs and budgetary and financial data indicates that universities are advancing in the implementation of student assistance policies, with internal structures and regulations that reflect similarities in assistance actions, in addition to specific local initiatives. Pnaes has been fundamental, especially during the COVID-19 pandemic, despite budget cuts. The student assistance policy, since its creation, has remained effective even under different government management, sometimes requiring additional external resources or adjustments to the planned measures. Student assistance is central in the context of the higher education expansion policy, which has diversified the profile of entrants. However, there are difficulties in budget execution, with dependence on budgets from previous years, the so-called 'remains to be paid', which introduce uncertainty into financial management. The thesis concludes that the student assistance policy, materialized by Pnaes, is essential to guarantee student permanence in federal institutions. Despite fluctuations and resource constraints, it is incorporated into the institutional context and its closure would be unfeasible due to the negative impacts it would cause on the Brazilian higher education system.