Coordination or Cooperation Policies? An Analysis of the Forms of State-Municipal Collaboration in Educational Policies Based on Brazilian Academic Production
Coordination; Cooperation; Collaboration; State governments; Educational policies; Elementary education.
This study seeks to explore the forms of collaboration that states have developed with municipalities within the framework of fundamental education policy following the Federal Constitution of 1988 (CF/88), which mandates that different levels of government organize their educational systems in a collaborative manner. This inquiry contributes to the field of intergovernmental relations research, particularly focusing on interactions between states and municipalities as subnational entities. Theoretical concepts of intergovernmental cooperation and coordination are employed to underpin the analysis. Given the absence of systematic, organized, and accessible data, the research undertook a comprehensive mapping of existing academic literature on the subject. This preliminary effort aims to enhance understanding of the various types of collaborations that states have implemented to support municipalities in education. Methodologically, a scoping review of the literature was conducted, providing a reproducible and reliable means of assessing what has been documented academically regarding the topic. The analysis utilized a logical framework that correlates the type of collaboration—whether cooperation or coordination—with the area of educational policy—whether inputs or outcomes. The framework identified the following types of state-municipality collaborations: cooperation in targeted policies focusing on inputs; cooperation in targeted policies focusing on outcomes; coordination of programs focusing on inputs; and coordination of programs focusing on outcomes. The study's findings are based on 41 texts that constitute the final dataset. Since a single text may address multiple states, a total of 51 cases were analyzed, encompassing 19 of the 26 Brazilian states. These cases revealed 73 state-level policies of collaboration with municipalities, categorized as follows: 39 instances of cooperation in targeted policies focusing on inputs; 23 instances of coordination of programs focusing on inputs; 11 instances of coordination of programs focusing on outcomes; and no instances of cooperation in targeted policies focusing on outcomes. This indicates that initiatives involving effective coordination of comprehensive, articulated actions led by states in conjunction with municipalities, aimed at improving educational outcomes, are relatively scarce and nascent. The limited presence of collaboration focused on outcomes may partially account for the persistence of one of the most significant challenges facing Brazilian public education today: the quality of education.