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Economia Política Da Descentralização Em Moçambique

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Economia Política Da Descentralização Em Moçambique A Economia Política da Descentralização Política A Economia em Moçambique O IESE é uma instituição Aparecendo na mão do leitor no momento mais oportuno, como contribuição comprometida com investigação ao debate da trajectória do desenvolvimento de Moçambique, o livro Análise AUTORES social e económica pluralista, da Economia Política da Descentralização em Moçambique aborda a Bernhard Weimer questão da descentralização da administração pública como um elemento interdisciplinar e heterodoxa, João Carrilho com enfoque no rigor e qualidade da reforma do Estado e da consolidação da paz. Argumentando em favor de responsar à politica de descentralização dos últimos 20 anos, o livro oferece académica e na relevância e ao leitor, na base de evidências, uma análise crítica dos determinantes compromisso social do seu trabalho, A Economia Política políticos, económicos, administrativos, fiscais e institucionais da abordagem aberta à colaboração e cooperação moçambicana à descentralização. e dedicada a contribuir para o desenvolvimento de redes de Os autores analisam quatro factores considerados crucias para a compreensão da Descentralização investigadores e organizações de da economia política da descentralização em Moçambique. Primeiro, examinam Factores Estruturantes, nomeadamente históricos, que explicam a economia investigação associadas sobre política caracterizada pela exportação de matéria-prima e recursos naturais, em Moçambique Moçambique e o seu enquadramento bem como a prática política e económica de rent seeking num sistema político- na África Austral e no mundo. administrativo clientelista associado com o partido dominante que produz regularmente crises e violência. Segundo, os autores discutem as Regras de Dinâmicas, Efeitos, Desafios www.iese.ac.mz Jogo da descentralização, formais e informais, com enfoque nos aspectos legais e institucionais da desconcentração, devolução e descentralização fiscal, nos níveis macro, meso e micro do sistema político-administrativo. Terceiro, o livro oferece uma análise económica e política profunda do Aqui e Agora, olhando os assuntos e desafios mais pertinentes actualmente: as negociações de paz e a gestão da crise económica e fiscal causada pela convergência de constrangimentos domésticos e internacionais. A última parte se dedica a uma análise das partes interessadas, em que as forças motrizes bem como constrangedoras da descentralização são identificadas. Concluindo a análise, a última parte do livro aborda cenários e considerações Desafios Efeitos, Dinâmicas, concepcionais que ilustram a possível contribuição da descentralização na mitigação da fragilidade do Estado, e a tensão político-militar, no aumento a eficácia da provisão de serviços públicos ao nível local e no melhoramento da governação local – pré-condições para um Moçambique mais estável, democrático e inclusivo. O livro será do interesse de analistas e académicos, fazedores de politicas públicas e políticos, bem como o público em geral. Bernhard Weimer com João Carrilho ISBN 978-989-8464-41-5 IESE www.iese.ac.mz IESE A Economia Política da Descentralização em Moçambique Dinâmicas, Efeitos, Desafios Bernhard Weimer com João Carrilho www.iese.ac.mz Título: A Economia Política da Descentralização em Moçambique: Dinâmicas, Efeitos, Desafios Autores: Bernhard Weimer com João Carrilho Edição: IESE Copyright © IESE, 2017 Institute for Social and Economic Studies (IESE) Endereço do editor: Av. Tomas Nduda 1375 Maputo, Mozambique Tel: +258 21 486043 [email protected] | www.iese.ac.mz É proibida a reprodução desta publicação, no todo ou em parte, para fins comerciais. Design gráfico e paginação: COMPRESS.dsl | www.compressdsl.com Impressão: Capitilpress Tiragem: 200 Fotografias de capa: AIM, Ozias Chimunuane, Eurico Nhacale, André Uandela and Bernhard Weimer Número de registo: 9163/RLINLD/2017 ISBN: 978-989-8464-41-5 Maputo, Dezembro 2017 Reconhecimentos O IESE agradece o apoio de: Agência Suíça para o Desenvolvimento e a Cooperação (SDC) Embaixada Real da Dinamarca Ministério dos Negócios Estrangeiros da Finlândia Ministério dos Negócios Estrangeiros da Irlanda (Cooperação Irlandesa) IBIS Moçambique Índice Siglas e acrónimos viii Mapa, Figuras and Tabelas xv Prefácio xviii Agradecimentos, Fontes e Aviso xx PARTE I: Introdução 1 1 Abordagem e Metodologia da Pesquisa 3 1.1 Abordagem da Pesquisa: Análise de Poder e Mudança 3 1.2 Métodos de Pesquisa e Trabalho de Campo 6 1.3 Limitações 7 2 Enquadramento Conceptual e Terminologia 8 2.1 Descentralização – uma Tendência Secular para Consolidar o Poder? 8 2.2 Descentralização – uma Forma de Resolver Conflitos e Fortalecer Estados Frágeis? 12 2.3 Terminologia 17 PARTE II: Análise de Poder e Mudança 25 A Factores Estruturantes 27 1 Território e Terra 27 1.1 Divisão Territorial 27 1.2 Terra 29 2 Economia 34 3 Sistema Político-Administrativo 39 3.1 Administração Pública 39 3.2 Governo Local e Comunidades 43 3.3 O Estado 44 4 Frelimo 47 4.1 Frelimo – um Movimento Estruturante Transformado em Partido Político 47 4.2 Política, Economia e Poder 50 5 Conclusões 52 B Descentralização – As Regras do Jogo 57 1 Introdução 57 2 Descentralização: Enquadramento Legislativo e Político – um Resumo 60 2.1 Enquadramento Institucional e Formas de Descentralização 60 2.2 Estratégia de Descentralização e Gradualismo 62 2.3 Principais Acontecimentos e Cronologia 63 2.4 Redefinição do âmbito – Legislação Adicional 64 2.5 Redefinição dos Limites Municipais? 66 2.6 Efeitos 67 3 Devolução ou Descentralização Democrática: Municípios 68 3.1 Introdução 68 3.2 Eleições municipais 69 3.3 Funções e Recursos 69 3.4 Apoio Internacional 71 4 Desconcentração/Descentralização Administrativa: OLEs 72 4.1 Quadro institucional 72 4.2 Mudanças Observadas 74 4.3 Apoio Internacional 77 5 Descentralização Fiscal 80 5.1 Introdução 80 5.2 Recursos Fiscais dos OLEs (1) – um Enfoque nos Distritos 82 5.3 O Fundo Distrital de Desenvolvimento (FDD) 84 5.4 Recursos Fiscais dos OLEs (2): Enfoque nas Províncias 87 5.5 Finanças Municipais 91 5.6 Rumo a um Sistema Fiscal Intergovernamental Integrado que inclua a Receita do Uso da Terra e da Extracção Mineral? 103 6 As Regras Informais do Jogo: a Presidência Aberta e Inclusiva (PAI) 105 7 Conclusões 107 7.1 Factores que Desencadearam a Descentralização 107 7.2 Momento Crucial e Dependência Histórica 108 7.3 Coexistência Conflituosa de Devolução e Desconcentração 109 7.4 Descentralização Fiscal com Limitada Transferência de Recursos 110 7.5 Pouca Capacidade Local de Prestação de Serviços 111 7.6 Necessidade de Nova Iniciativa de Reforma? 112 C Aqui e Agora – O Contexto Actual 115 1. Contexto Económico e Perspectiva 115 1.1 Dívida Odiosa e o Peso de Dívida Insustentável 115 1.2 Consequências Fiscais e Económicas 118 1.3 Impacto nos Municípios 119 1.4 Crise Económica e Crise Fiscal – um Momento Crucial 120 2. Contexto Político – Uma “Segunda Guerra Civil” ou um Acordo Político Falhado? 125 2.1 Acordo de Paz Interno Negociado em 2014 – e Violado em 2015 125 2.2 Acordos de Paz Falhados 131 2.3 Proposta de Províncias Autónomas 135 2.4 2016 e 2017: Negociações de Paz Retomadas 136 2.5 Conclusões 141 PARTE III: Partes Interessadas na Descentralização 145 1 Introdução 145 2 Nível Macro – Principais Instituições Nacionais 146 2.1 Ministério da Administração Estatal e Função Pública (MAEFP) 146 2.2 Ministério da Economia e Finanças (MEF) 149 2.3 Ministério da Terra, Ambiente e Desenvolvimento Rural (MITADER) 155 2.4 Ministérios Sectoriais 157 2.5 Instituições de Supervisão, Inspecções e Controlo Interno e Externo 173 2.6 Assembleia da República (AR) 178 2.7 ANAMM 183 3 Nível Médio: As Províncias 185 3.1 Governos Provinciais 186 3.2 Assembleias Provinciais 186 3.3 Sociedade Civil e Plataformas Provinciais de ONGs 188 4 Nível Local 191 4.1 Administrações dos distritos 191 4.2 Municípios 193 4.3 Líderes comunitários 193 5 Parceiros de Desenvolvimento Internacional (PDIs) Temáticos 194 6 Sector Privado e Descentralização 196 6.1 Associações do Sector Privado 197 6.2 Investimento Directo Estrangeiro e Governos Locais – Estudos de Caso da Província de Cabo Delgado 199 7 Desenvolvimento Económico Local, Captura pela Elite e Externalidades 208 8 Factores Propulsadores e Factores Constrangedores da Descentralização 210 8.1 Um Exercício de Classificação 210 8.2 Incentivos e Desincentivos 213 PARTE IV: Ideias e Conclusões 215 1 Dinâmicas e Efeitos 215 2 Cenários de Descentralização 218 3 Observações Finais: Consolidação da Paz e Consolidação do Estado através da Descentralização? 222 Anexos 227 Bibliografia 228 Siglas e acrónimos A&S Água e Saneamento ABC Antibranqueamento de Capitais ACIS Associação de Comércio, Indústria e Serviços ACVC Avaliação de Capacidade e Vulnerabilidade ao Clima ADE Apoio Directo à Escola AdM Aeroportos de Moçambique AEP Análise de Economia Política AFC Acordo de Financiamento Conjunto AGIR Programa de Acções para uma Governação Inclusiva e Responsável AGP Acordo Geral de Paz (Roma 1992) AIPC Acesso à Informação e Participação dos Cidadãos AM Assembleia Municipal ANAMM Associação Nacional dos Municípios de Moçambique ANE Actor Não Estatal AOG Apoio Orçamental Geral AOS Apoio Orçamental Sectorial AP Assembleia Provincial APE Agente Polivalente Elementar APM Análise de Poder e Mudança AR Assembleia da República ASDI Agência Sueca de Desenvolvimento Internacional ASec Abordagem Sectorial AT Assistência Técnica ATM Autoridade Tributária de Moçambique ATSN Assistência Técnica Subnacional BAU Balcão de Atendimento Único BGF Boa Governação Financeira BIG Basel Institute on Governance, Instituto
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