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TESE Wladimir PONTIFÍCIA UNIVERSIDADE CATÓLICA DE MINAS GERAIS Programa de Pós-Graduação em Direito FUNDAMENTOS PARA UM DIREITO DAS POLÍTICAS PÚBLICAS Wladimir Rodrigues Dias Belo Horizonte 2011 Wladimir Rodrigues Dias FUNDAMENTOS PARA UM DIREITO DAS POLÍTICAS PÚBLICAS Tese apresentada ao Programa de Pós- Graduação em Direito da Pontifícia Universidade Católica de Minas Gerais, como requisito parcial para a obtenção do título de Doutor em Direito Público Orientador: Prof. Dr. Edimur Ferreira de Faria Belo Horizonte 2011 FICHA CATALOGRÁFICA Elaborada pela Biblioteca da Pontifícia Universidade Católica de Minas Gerais Dias, Wladimir Rodrigues D541f Fundamentos para um direito das políticas públicas. / Wladimir Rodrigues Dias. Belo Horizonte, 2011. 355f. Orientador: Edimur Ferreira de Faria Tese (Doutorado) – Pontifícia Universidade Católica de Minas Gerais. Programa de Pós-Graduação em Direito. 1. Direito Público. 2. Políticas Públicas. 3. Pragmatismo. 4. Estado de direito. 5. Brasil. I. Faria, Edimur Ferreira de. II. Pontifícia Universidade Católica de Minas Gerais. Programa de Pós-Graduação em Direito. III. Título. CDU: 342(81) Wladimir Rodrigues Dias Fundamentos para um direito das políticas públicas Trabalho apresentado ao Programa de Pós- Graduação em Direito da Pontifícia Universidade Católica de Minas Gerais, como requisito parcial para a obtenção do título de Doutor em Direito Público. _____________________________________________________________ Edmur Ferreira de Faria (Orientador) – PUC Minas _____________________________________________________________ José Alfredo de Oliveira Baracho Júnior – PUC Minas _____________________________________________________________ José Adércio Leite Sampaio – PUC Minas _____________________________________________________________ Luciano de Araújo Ferraz - UFMG _____________________________________________________________ Élcio Reis – Faculdade de Direito Milton Campos _____________________________________________________________ Giovani Clark – (suplente) – PUC Minas _____________________________________________________________ Marciano Seabra de Godói – (suplente) – PUC Minas Belo Horizonte, 29 de abril de 2011 RESUMO Este trabalho trata de fundamentos do direito das políticas públicas. Parte de uma constatação da presença da matéria no sistema jurídico, da experiência brasileira recente de manejo da juridicidade das políticas públicas, com os problemas a ela inerentes, e de certa insuficiência da teoria jurídica para lidar com essas questões, ainda que sejam crescentes os trabalhos científicos sobre o tema. A primeira parte do trabalho está concentrada em uma tarefa de fundamentação geral, que é ponto distintivo desta tese. Começa por discutir a questão epistemológica, assumindo como base o neopragmatismo filosófico, na versão de Richard Rorty. A assunção desse referencial impõe, na sequência, o desenvolvimento do tema sob bases sociológicas, com ênfase nas obras de Anthony Giddens, Niklas Luhmann e Boaventura de Sousa Santos. Os conceitos de modernidade reflexiva, sociedade de risco e modernidade líquida são, então, trabalhados, assim como a teoria dos sistemas e a perspectiva do direito como emancipação social. Também são discutidas, nessa parte, as relações entre Estado, direito e políticas públicas. Na sequência, são exploradas questões acerca do direito, tais como as noções de norma, juridicidade e decisão jurídica, assim como o problema dos princípios. Discute-se, ainda, o constitucionalismo sob o Estado Democrático de Direito, com destaque para a trajetória do direito administrativo, e a presença de um direito das políticas públicas sob o regime juspublicista. Trata-se, ao final, das políticas públicas no direito brasileiro, com referências a sua base constitucional, seu padrão de procedimentalização via legislação, planejamento, definição de recursos e concretização, bem como se discute a judicialização das políticas públicas, fenômeno que marca o direito brasileiro nas duas últimas décadas. Conclui-se pelo reconhecimento da juridicidade das políticas públicas no direito brasileiro, a demandar decisões dotadas de argumentação consistente, consoante o código específico do sistema jurídico, e legitimação em função de suas consequências, levando em consideração a complexidade de suas relações, sua macrojuridicidade, a gramática universalista que deve observar, e seu sentido em um contexto de democratização e pluralismo. Palavras-chave : Políticas públicas, sistema jurídico, pragmatismo jurídico, judicialização da política, macrojuridicidade. ABSTRACT This work deals with the foundations of the public policies law. Part of a verification of the matter of the juridical system, about the recent Brazilian experience of management of the public politics legality, with the problems connected with it, and also some insufficiency of the juridical theory to manage these questions, although the scientific works about the theme are growing up. The first part of the work focuses in one task about the general substantiation, that is the distinctive point of this thesis. It starts discussing the epistemological question, assuming as base the philosophical neopragmatism, in the version by Richard Rorty. The assumption of this referential imposes, in the sequence, the development of the theme based on sociology, with emphasis in the work made by Anthony Giddens, Niklas Luhmann and Boaventura de Sousa Santos. The concepts about reflexive modernity, risk society and liquid modernity are, then, treated, as the systems theory and the perspective of the rights like the social emancipation. Are also discussed, in this part, the relationship between the State, rights and public politics. In sequence, questions about the rights are explored, like notions of norms, legality and juridical decisions, as the principle problems. Discusses, therefore, the constitutionalism under the Democratic State of Rights, with emphasis on the trajectory about the administrative right, and in the presence of one public politics right under the juspublicist regime. In the end the public politics in Brazilian right are treated with the conditional base references , their proceduralization model by way of legislation, planning, defining resources and concretization, as well as making discussions about the public politics judicialization, phenomenon that mark the Brazilian rights in the last two decades. Recognizing the legality of the public politics in Brazilian rights we conclude, demanding decisions gifted of consistent argumentation, according the juridical system specific code, and legitmation in function of it consequences, considering the complexity of it relationships, it macrojuridicty, the universalistic grammar that needs to take notice, and it meaning in a context of democratization and pluralism. Keywords: Public Politics, juridical system, juridical pragmatism, judicialization of politics, macrojuridicity. SUMÁRIO 1. INTRODUÇÃO 1.1. Aspectos gerais do trabalho....................................................................... 07 1.2. Elementos para uma abordagem pragmatista do direito das políticas públicas................................................................................................................ 12 2. FUNDAMENTOS EPISTEMOLÓGICOS 2.1. O pragmatismo filosófico............................................................................ 16 2.2. Pragmatismo, direito e normatividade....................................................... 20 2.3. O conceito de paradigma aplicado ao direito............................................ 33 3. O DIREITO NA SOCIEDADE CONTEMPORÂNEA 3.1. Introdução..................................................................................................... 37 3.2. A sociedade moderna.................................................................................. 40 3.3. A modernidade reflexiva.............................................................................. 47 3.4. Individualismo, valores e o direito na modernidade................................. 51 3.5. Valores e normatividade social na modernidade líquida......................... 63 3.6. Normatividade e risco social....................................................................... 70 4. O SISTEMA JURÍDICO 4.1. Introdução..................................................................................................... 75 4.2. Sistemas sociais........................................................................................... 75 4.3. O direito como sistema................................................................................ 81 4.4. Código e função do direito.......................................................................... 83 4.5. A reprodução do sistema............................................................................ 86 4.6. Direito e política............................................................................................ 88 4.7. Direito, contingência e risco....................................................................... 91 5. DIREITO E EMANCIPAÇÃO SOCIAL 5.1. Emancipação e regulação no direito moderno......................................... 95 5.2. O direito na modernidade periférica......................................................... 100 5.3. Direito estatal e emancipação social........................................................ 120 6. ESTADO E POLÍTICAS PÚBLICAS 6.1. Introdução................................................................................................... 123 6.2. O estado moderno.....................................................................................
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