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1 Governance and Governmentality: Relation and Relevance of Two Governança e governamentalidade: relação e relevância de dois conceitos científico-sociais proeminentes na educação comparada Karin Amos Universität Tübingen Resumo Contrapondo-se ao retrospecto da existência de uma relação volátil entre o Estado e “seu” sistema educacional, este trabalho enfoca dois conceitos que podem ser empregados como ferramentas de análise para estudar as transformações em curso. O termo “governança” está mais relacionado a aspectos técnicos: tratam-se de instrumentos e modos, procedimentos e atores, além de suas constelações e formas de cooperação. Ele concentra a pesquisa em questões como: quem oferece serviços educacionais, qual é a rela- ção entre ensino público e privado etc. Ele também é extremamen- te útil na investigação da relação entre os diversos níveis de análise e provou-se particularmente importante para a compreensão teóri- ca adequada do papel das organizações internacionais na formula- ção de políticas educacionais. A sociologia e a ciência política são duas disciplinas cuja associação se mostra mais notável na elabora- ção do conceito sob diversas perspectivas. “Governamentalidade”, por sua vez, apesar de compartilhar muitas características com governança, é um termo foucautiano dedicado à geração de sub- jetividades distintas por meio de técnicas e modos de regulação e conduta em sentido lato. Assim, governamentalidade inclui inves- tigações do nexo tipicamente foucautiano conhecimento/poder. Consideramos ambas as perspectivas em conjunto para discutir suas implicações para a educação comparada. Palavras-chave Governança — Governamentalidade — Política educacional — Foucault — Governança educacional. Correspondência: Prof. Dr. Karin Amos Institut für Erziehungswissenschaft Allgemeine Pädagogik Münzgasse 22-30 72070 Tübingen - Alemanha e-mail: [email protected] Educação e Pesquisa, São Paulo, v.36, n. especial, p. 023-038, 2010 23 Governance and governmentality: relation and relevance of two prominent social scientific concepts for comparative education Karin Amos Universität Tübingen Abstract Against the background of a changing relation between the state and “its" education system, the present contribution focuses on two concepts that can be used as analytical tools in order to analyze the current transformations. “Governance" is more concerned with technical issues: with instruments and modes, procedures and actors, with their constellations and forms of cooperation. It focuses research on questions such as: who provides educational services, what is the relation between public and private education etc. It is also very useful in investigating the relation between the various levels of analysis and has proven particularly useful for an adequate theoretical understanding of the role of international organizations in shaping educational po- licies. Sociology and political science are the two disciplines most prominently associated with elaborating the concept under various perspectives. Governmentality, on the other hand, although sharing many characteristics with governance, is a Foucauldian term concerned with the generation of different subjectivities through techniques and modes of ruling and guiding in an encompassing sense. Governmentality thus includes investiga- tions of the typical Foucauldian knowledge/power nexus. Both perspectives are brought together to discuss the implications for comparative education. Keywords Governance — Governmentality — Education policy — Foucault — Educational governance. Contact: Prof. Dr. Karin Amos Universität Tübingen Institut für Erziehungswissenschaft Allgemeine Pädagogik Münzgasse 22-30 72070 Tübingen - Alemanha e-mail: karin.amos@uni- tuebingen.de 24 Educação e Pesquisa, São Paulo, v.36, n. especial, p. 023-038, 2010 Governança e governamentalidade deno- a Teoria do Regime Internacional deve ser men- tam dois conceitos originados em tradições dis- cionada (Rittberger 1993; Hasenclever et al., ciplinares e intelectuais distintas que comparti- 1997), assim como suas apropriações pela edu- lham uma questão central: a problemática de cação comparada (Parreira do Amaral, 2007; direcionar, regulamentar, governar, conduzir etc. Radtke, 2006). na sociedade moderna – tendo em vista os in- Assim como é possível esboçar uma defi- divíduos, as organizações, os sistemas, o Estado nição geral de governança, também podemos e a própria sociedade como um todo. estabelecer uma distinção entre seu sentido am- O debate sobre governança é provenien- plo e seu sentido estrito. Em sentido amplo, te da ciência política e das ciências sociais e governança refere-se aos diferentes mecanismos foca as mudanças ligadas às novas constela- empregados para conferir ordem à população de ções das relações do Estado com os interesses atores, por adaptação, negociação, ordem e obe- sociais no sentido mais amplo possível. Sob diência; em sentido estrito, governança refere-se essa perspectiva, governança adquiriu o status às diferentes formas de ação resoluta voltada a de novo termo para analisar essas mudanças preocupações coletivas (Mayntz, 2009, p. 8). As tanto no contexto interno de um Estado-na- estruturas em forma de rede da governança e a ção como no âmbito das relações internacio- área movente das constelações específicas de nais. atores na política social e educacional levaram ao Uma explicação sucinta da origem e do levantamento de diversas questões voltadas, por desenvolvimento do termo nas respectivas dis- exemplo, a aspectos da legitimidade e autorida- ciplinas acadêmicas, i.e., na sociologia e na de (veja também Radtke nesta edição). ciência política, foi oferecida em um curto ar- A razão que levou governança a se tor- tigo por Renate Mayntz (2004; 2009). Nele, a nar um termo importante na política e na pes- autora esboça cada perspectiva e caracteriza os quisa educacional está ligada a mudanças pro- distintos contextos disciplinares refletidos nas fundas na área da educação. Essas mudanças diferenças entre os sentidos centrados no ator envolvem especificamente os instrumentos e os e aqueles centrados na instituição; ela enfatiza, meios de direcionamento, as novas formas de ainda, que “governança” e “direcionamento” proporcionar e organizar os serviços educa- não são conceitos idênticos. A autora reitera cionais e o surgimento de novos atores na po- que a governança é mais ampla, englobando lítica educacional. não só questões estritamente de Em um contexto extremamente diferente, direcionamento, mas também questões mais posicionado nos interstícios de diversas disciplinas complexas de regulamentação. A discussão so- típicas de sua obra, o termo “governamentalidade” bre governança também está ligada às voláteis foi cunhado por Michel Foucault (1991) e poste- relações entre os níveis nacional e internacional, riormente assumiu um campo interdisciplinar que porém a adoção do termo governança nas re- se tornaria conhecido como estudos de gover- lações internacionais segue tradições disciplina- namentalidade, um rico e ramificado empenho in- res próprias. Um marco do emprego de telectual internacional de teorização e pesquisa governança nesse contexto é, sem dúvida, (para uma panorâmica crítica, veja Lemke 2007, p. Governance without government: order and 47-64; para uma panorâmica descritiva, veja change in world politics (Governança sem go- Fimyar, 2008). verno: ordem e transformação na politica mun- Esse termo denota uma preocupação dial, Brasília, Editora UnB, 2000), obra de com a problemática geral de regulamentar, Rosenau e Czempiel publicada em 1992; ela direcionar e governar nas sociedades modernas gerou uma preocupação generalizada com as em todas as principais áreas do Estado, o que questões de governança global. Nesse cenário, inclui a economia, o oykos, isto é, a família e Educação e Pesquisa, São Paulo, v.36, n. especial, p. 023-038, 2010 25 as crianças – tendo em vista tanto a coletivi- cias, ficou bem claro que Foucault não havia dade como cada indivíduo, que pode ser sub- feito apenas algumas poucas e esparsas refe- metido a técnicas autoaplicáveis. Sua origem rências ao elaborar seu neologismo como termo foucaultiano já indica que “gover- gouvernementalité, mas delineou sistematica- nabilidade” possui raízes filosóficas e históri- mente um campo de investigação. É caracte- as muito amplas e ricas; esse é um termo de rístico da abordagem de Foucault uma concep- meta-análise que pode ser empregado para ção da sociedade e de suas instituições que refletir criticamente sobre os resultados da relaciona o domínio político ao subjetivo. O pesquisa sobre governança. termo governamentalidade é o elo perdido Foucault nos oferece uma definição entre os dois principais projetos de Foucault sucinta de governamentalidade: após Vigiar e punir: o primeiro é a genealogia do Estado moderno, e o segundo envolve 1. O conjunto formado pelas instituições, questões éticas, uma genealogia do sujeito. procedimentos, análises e reflexões, os cálcu- Com esse projeto, ele alcança o cerne da rela- los e as táticas que possibilitam o exercício ção entre pedagogia e política. de sua forma assaz específica, embora com- Como primeiro passo, basta dizer que plexa, de poder, que tem por alvo a popula- tanto governança como governamentalidade ção, por principal forma de conhecimento a têm por denominador comum o Estado e a economia política e por meio técnico essen- “estati-cidade”, ainda que os termos estejam in- cial os aparatos de segurança. 2. A tendência seridos em tradições e áreas de enfoque distin- que, por um longo período e em todo o tas. Uma última, porém importante,
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