Revista Brasileira de Educação do Campo

Brazilian Journal of Rural Education

ARTIGO/ARTICLE/ARTÍCULO

DOI: http://dx.doi.org/10.20873/uft.rbec.e10675

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The public-private relationship in the expansion of the

care of early childhood education in the municipality of

Teresina-PI

Carmen Lucia de Sousa Lima

1

Universidade Federal do Piauí - UFPI. Departamento de Fundamentos da Educação. Avenida Universitária S/N., Bairro

Ininga. Teresina - PI. Brasil.

Author for correspondence: carmenlima5@yahoo.com.br

ABSTRACT. This article aims to analyze the progress of the

privatization process of Early Childhood Education in the

Municipal Education System of Teresina, through the

convention with community institutions, confessional and

philanthropic non-profit. This is a bibliographic review study

that was based on theorists such as Adrião and Borghi (2009),

Alves and Silva (2014), Arelaro (2008), Bassi (2011), Gil

(2008), Montaño (2008), among others. It discusses Fundeb's

contributions to the expansion of Early Childhood Education

and the effects of this fund on the expansion of care to this

segment of education through the policy of agreements

concluded between the Secretaria Municipal de Educação de

Teresina (Semec) and the third sector through transfers of public

resources converted into social subsidies through current

transfers from the public authorities to public or private

institutions of care. In the end, it was concluded that Fundeb was

an important regulatory reference that induced the municipality

to expand the offer of early childhood education, as well as

contributed to the increase of the convention as a strategy to

expand the offer and comply with the legislation.

Keywords: Early Childhood Education, Convening, Expansion.

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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A relação público-privado na expansão do atendimento à

Educação Infantil no município de Teresina-PI

RESUMO. Este artigo objetiva analisar o avanço do processo

de privatização da Educação Infantil na Rede Municipal de

Educação de Teresina, pela via do conveniamento com

instituições comunitárias, confessionais e filantrópicas sem fins

lucrativos. Trata-se de um estudo de revisão bibliográfica de

base documental que se apoiou em teóricos como Adrião e

Borghi (2009), Alves e Silva (2014), Arelaro (2008), Bassi

(2011), Gil (2008), Montaño (2008), dentre outros. Coloca-se

em discussão as contribuições do Fundeb para a expansão da

Educação Infantil e os efeitos desse fundo na expansão do

atendimento a esse segmento da educação por meio da política

de convênios celebrados entre a Secretaria Municipal de

Educação de Teresina (Semec) e o terceiro setor através de

repasses de recursos públicos convertidos em subvenções sociais

por meio de transferências correntes do poder público para

instituições públicas ou privadas de caráter assistencial. Ao final

concluiu-se que o Fundeb foi um marco regulatório importante

que induziu o município a ampliar a oferta de Educação infantil,

bem como, contribuiu com o aumento do conveniamento como

estratégia para se ampliar a oferta e cumprir o que determina a

legislação.

Palavras-chave: Educação Infantil, Conveniamento, Expansão.

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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La relación público-privada en la expansión del cuidado de

la educación en la primera infancia en el municipio de

Teresina-PI

RESUMEN. Este artículo tiene como objetivo analizar el

progreso del proceso de privatización de la Educación Infantil

en la Red de Educación Municipal de Teresina, a través de la

convención con instituciones comunitarias, confesionales y

filantrópicas sin fines de lucro. Se trata de un estudio de revisión

bibliográfica basado en documentales que se basó en teóricos

como Adrião e Borghi (2009), Alves e Silva (2014), Arelaro

(2008), Bassi (2011), Gil (2008), Montaño (2008), entre otros.

Se examinan las contribuciones de Fundeb a la expansión de la

Educación Infantil y los efectos de este fondo en la ampliación

de la atención a este segmento de la educación a través de la

política de acuerdos celebrados entre la Secretaria Municipal de

Educação de Teresina (Semec) y el tercer sector a través de

transferencias de recursos públicos convertidos en subvenciones

sociales a través de transferencias actuales de las autoridades

públicas a instituciones públicas o privadas de atención. Al final,

se concluyó que Fundeb fue un importante marco regulatorio

que indujo al municipio a ampliar la oferta de educación en la

primera infancia, así como contribuyó al aumento de la

convención como estrategia para ampliar la oferta y cumplir con

la legislación.

Palabras clave: Educación Infantil, Convocación, Expansión.

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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Introduction

The changes that have occurred in

education since the promulgation of the

Federal Constitution of 1988 represented,

for early childhood education, an important

achievement, representing a gain of

legitimacy of this segment, once the early

childhood education is recognized as the

first stage of basic education.

For Campos (1999), this recognition

occurred with a certain delay, since already

in the mid-1970s, Brazil was the scene of a

significant expansion of care to children

under 7 years through the most varied

modalities of services, whether private,

governmental and community. Thus, the

early childhood education segment was the

one that underwent one of the deepest

reforms.

This environment contributed to the

emergence of multiple municipal schools

systems, mostly devoid of the necessary

supplies to provide schools with minimum

operating conditions that justify their

autonomy. It is, therefore, with this

precarious profile of the offer of early

childhood education that the technical and

political dependence of schools and

systems is reinforced, exposing

municipalities to a lot of difficulties both

from the organic and technical point of

view, which make them unable to elaborate

consistent educational policies, forcing

them to a political-pedagogical dependence

from other private education systems.

With the increase in educational

supply by municipalities, induced by the

implementation of the Fundo de

Manutenção e Desenvolvimento da

Educação Básica e de Valorização dos

Profissionais da Educação (Fundeb) [Fund

for Maintenance and Development of

Elementary Education and Valorization of

Education Professionals], which

contributed to the redefinition of the

standard of compulsory education offering,

initially in these federated entities, the

demand for education grew substantially,

thus falling on the municipalities the

responsibilities for improving the

performance in schools, thus attracting a

boom of private companies that offer

educational products, point out to focus on

the absence of objective conditions for the

elaboration, implementation and evaluation

of educational policies, becoming actively

involved in the management of municipal

education.

From this viewpoint, we raised the

following problem: How did the private

sector participate in the management of

public policies for the early childhood

education in the municipality of Teresina

and what forms of public subsidies to the

private sector are used by the municipality

to expand the offer of early childhood

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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education? Based on this issue, this text

has the purpose to undertake a discussion

about the privatization process of Early

Childhood Education through public-

private partnership between community,

confessional and philanthropic non-profit

entities in the municipality of Teresina,

through the Secretaria Municipal de

Educação (Semec) [Municipal Department

of Education].

For the development of this study,

consultations have taken places in

documental sources such as regulations,

standardizations and official publications

of the municipality of Teresina-PI. The

documents were also acquired on

government websites and in the Semec. At

first, the documents that support the

education policy were analyzed, from both

the macro and micro point of view. In the

second moment, the offer of early

childhood education in the municipality of

Teresina was discussed, through the

expenses incurred with early childhood

education, including the forms of social

subsidies and the public-private

partnership from the public-private

relationship.

For Gil (2008) the documentary

research, as a general rule, used as cursive

records, which are persistent and

continued. We have as classic examples of

this kind of record the documents prepared

by government agencies.

Next, a discussion was made about

the privatization process of early childhood

education in Brazil, at the time when an

analysis was carried out about the

evolution of care in nurseries and

preschools of the educational public-

private partnership (community,

confessional and philanthropic) with the

municipality of Teresina-PI, focusing on

the aspects related to the policy for early

childhood education, on the expansion of

offer in nurseries and preschools and what

strategies are used by the municipality to

ensure this expansion, considering the

historical series 2006 to 2016, which

corresponds to the year before the

implementation of Fundeb and the

universalization of care in preschool,

respectively. For this, the Instituto

Nacional de Estudos e Pesquisas

Educacionais Anísio Teixeira

(Inep) [National Institute of Educational

Studies and Research Anísio Teixeira]

website database was used to extract

microdata from the School Census from

2006 to 2016; after compiled into tables,

charts and graphs, it was possible to

describe them and proceed to the first

analyses and inferences.

Finally, we analyzed the data

extracted from the official publications of

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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the municipality of Teresina-PI, from

which the financial transfers distributed by

the municipality by means of social

subsidies to non-profit care institutions

were identified through public-private

partnership that resulted in actions pointed

out for the early childhood education, with

the purpose of expanding the offer and

improving care.

The Progress of the Privatization

Process of Early Childhood Education

The legal advances obtained by the

current legislation were not enough, since,

in addition to the traditional public-private

partnership of the municipal government

with non-profit institutions for the care in

nurseries, new arrangements are being

made. When analyzing the process of

municipalization of elementary school in

the state of São Paulo, Adrião and Borghi

(2008, pp. 99-100) consider that the

... tendency to consolidate

partnerships/agreements between São

Paulo municipalities and private

initiative has been induced by the

processes of decentralization of

public education in São Paulo, whose

main measure was the

municipalization of elementary

school introduced in the State of São

Paulo more emphatically since 1996.

It is important to point out that this

process was consolidated with the

implementation of the Fundo de

Manutenção e Desenvolvimento do Ensino

Fundamental e de Valorização do

Magistério (Fundef) [Fund for

Maintenance and Development of

Elementary School and Valorization of

Teaching], by prioritizing elementary

school, thus expanding the responsibilities

of the municipalities. In an analysis of the

consequences of decentralizing policies for

the offer of elementary school in Brazil,

Adrião and Borghi (2009) present

information that indicates changes in the

standard of offering on basic education in

public education in the state of São Paulo,

what made major changes both in the

problematized division of responsibilities

between states and municipalities as in the

strategies adopted for them to bear such

responsibility. In addition, the authors also

consider the low tax capacity of most

Brazilian municipalities, which, in view of

this, have a relationship of economic

dependence with other federated entities,

to the extent that they need transfers from

them to meet the demands related to the

educational offer.

Regarding this discussion, Cury

(2002) problematizes the privatization

policy in the field of basic education,

emphasizing that the transfer of

responsibilities among the levels of public

authorities without adequate financial

support implies a reduction in the capacity

to meet the demand and stresses that, in

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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this context, there are serious commitments

in relation to early childhood education

and the education of young people and

adults, because, for this author, such

commitments lead to an appropriation by

the private sector, especially through

partnerships, agreements or outsourcing of

spaces that, by duty, should be occupied by

the Public Power.

Arelaro (2008) considers that the

Fundeb regulation contributed to the

consolidation of the tradition of

agreements and partnerships between the

public and private sector in the offer of

early childhood education, to the little

commitment of the public spheres to build

alternatives of care different from those

that have been consecrated as the most

agile and viable for the emergency care of

young children, as well as to the significant

lack of responsibility of the State for direct

educational care.

In the field of early childhood

education, privatization processes have

been strengthened by the policy of

financing education. As Oliveira and

Borghi (2013) point out, in the period of

validity of Fundef there was a considerable

increase in the number of municipalities in

São Paulo that began to subsidize private

institutions for the supply of early

childhood education.

Adrião et al. (2009) pointed out to

the fragmenting of the offer of early

childhood education and characterizes it as

one of the consequences of the transfer of

responsibility and management of

education to the municipal spheres,

responsible for the emergence of numerous

arrangements that seek to respond to

educational demands (for access and

quality), being redirected to poorly

equipped structures and with insufficient

resources in the municipalities. Therefore,

the Ministério da Educação (MEC)

[Departament of Education], based on a

new regulatory effort, instituted in 2007 a

technical and financial support program for

municipalities with the worst performance,

if they adhered to the accountability

measures provided for the Termo de

Adesão ao Plano de Metas Compromisso

Todos pela Educação [Term of

Commitment to the Target Plan All for

Education Commitment]. Besides, the

technical unpreparedness of municipalities

and the laws that regulates public

management – such as Constitutional

Amendment n° 19, approved in june,

1998, and, in the case of municipalities, the

Lei de Responsabilidade Fiscal (LRF)

[Fiscal Responsibility Law],

Complementary Law n° 101/2000, which

delimited government spending by setting

in 60% of public budgets personnel

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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spending – serve as a stimulus to

municipalities by outsourcing services.

Contributing to this discussion,

Arelaro (2008) reminds of that the

financial education of young children

through public-private partnership,

especially children from 0 to 3 years, is the

result of an initiative proposed by

Constitutional Amendment n° 19/1998,

which reformed the Brazilian State, but

restricting its expansion, at the same time

as it introduced, for the first time in the

country's republican history, the concept of

"non-state public" as a synonymous

expression of public interests, legitimizing

and encouraging proposals for public-

private management contracts, thus

authorizing the transfer of responsibilities

that belongs to the state power to the

private sphere and with the investment of

public resources.

In this context of State Reform,

Peroni (2008) explains that the strategies

implemented in the country were mainly

productive restructuring, globalization,

neoliberalism and the third way pointed

out as a response of the hegemonic sectors

to the crisis of capitalism, as well as to a

supposed administrative inefficiency of the

State, considered by capitalists as

centralizing and intervening, when

presenting as a proposal the managerial

and market logic. Such reforms were

guided by changes in the pattern of

organization of capitalist society, adapted

to a set of reforms that involved the State,

development and social

policies. Therefore, the reforms,

implemented in more than a decade, did

not take place in isolation and not even

simultaneously.

Adrião and Borghi (2008), who

identify three strategies that have guided

the reforms of the Brazilian State, such as

privatization, outsourcing and publication,

also share this conception. All this

translates into the increasing expansion of

the privatization processes of the

management of public institutions, through

the commercialization of educational

services in various forms and modalities,

with the strengthening of the role of civil

society as a philanthropic space, composed

of national entrepreneurs and multinational

companies in Brazil (Silva and Peroni,

2013).

The sectorization of the social reality

serves to conceal the contradictory

character, still maintained by the State, that

is, the socialization of the production and

private appropriation of the product, thus

reinforcing a State at the service of the

interests of capital and, also, the

transmutation of civil society into a third

sector, in which non-state public

organizations would voluntarily lead the

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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social and constitutional function of the

State, by means of philanthropy (Montaño,

2008).

Between the second and third

sectors, there is currently the pioneering

initiative of "2,5 Sector", a special and

efficient model of business management

(belonging to the Second Sector) to

generate social impact (purpose of the

Third Sector), creating an innovative

model, called "Social Enterprise". In this

perspective, such innovation seeks to

demonstrate that a company does not need

to have profit as its sole purpose. This

means that a company can be socially

responsible and focused on the third sector

as a business model, to the extent that its

goal may be to meet a special social

interest. Thus, "the social business requires

an activity whose productive and profitable

products and services are aligned with

social objectives. In other words, they are

focused on generating positive social

impact" (Grazzioli, 2015, pp. 1). Example

of “2,5 Sector” could be a Community

School that charges a symbolic fee per

student only for the cost related to the

maintenance of the school and the payment

of teachers' salaries, without, however,

pointing out at the exaggerated profit for

the sector.

In this context, it should be noted

that the expansion of the policy of public-

private partnership is a response to the

absence of the State in the direct supply of

early childhood education. According to

Adrião et al. (2009b), this format of offer

implies total absence of public power with

regard to the attendance to this stage of

education or in the coexistence of public

and private non-profit institutions

subsidized by public resources. This is

because, according to Corrêa and Adrião

(2010), the public-private partnership are

low-cost alternatives that have expanded,

caused, on the one hand, by the scarcity of

public resources directed to private

entities, even if non-profit, on the other

hand, by allocating more and more

resources to these institutions, but the

government is dodging its role of investing

and expanding its own system.

This trend is confirmed in a study

developed by Bassi (2011, pp. 122), on the

financing of early childhood education in

public nurseries, public preschools in

association in six Brazilian capitals, stating

that it was expected that:

... the municipalities, given the high

cost of maintaining public nurseries,

not covered by Fundeb, and the legal

obligation to meet the growing

demand of the population for Early

Childhood Education, are induced to

invest in the expansion of the

agreements – less costly for the

public coffers, but with the

counterpart of a precarious care.

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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In particular, it is important to

emphasize that the agreements is not

related to the quality of education, but to

the historical process of constitution of

early childhood education in Brazil, whose

conception was that, for the less favored

social classes, any type of care would be

enough. In fact, public education systems

make the choice to offer places in nurseries

and preschools by means of institutions in

association, because they consider

alternatives of lower cost.

According to Adrião et al. (2014),

the progress of the privatization process of

early childhood education in Brazil is a

trend that has been confirmed in several

Brazilian municipalities through the

transfer of public subsidies to private

institutions by the most diverse types of

arrangements and strategies, such as the

acquisition of Private Education Systems

for public system and the adoption of

private advisories for the management of

the school or public system. In this regard,

recent research, conducted by researchers

of the Grupo de Estudos e Pesquisas em

Políticas Educacionais (Greppe) [Group of

Studies and Research in Educational

Policies] linked to the Universidade

Federal de Campinas (Unicamp) [Federal

University of Campinas], points out that, at

the beginning of this century, studies on

the subject are accentuated, to the extent

that new arrangements are identified, in

which public subsidies are not restricted to

non-profit institutions, but cover private

for-profit institutions (Domitian,

2009; Adrion and Borghi, 2009; Adrião et

al., 2009; Adrião, Borghi and Garcia,

2011; Adrion, Borghi and Arelaro,

2009). As an example, the Programa Bolsa

Creche de Piracicaba [Piracicaba Nursery

Scholarship Program]

i

and the Programa

de Atendimento Especial à Educação

Infantil (PAEEI) [Special Care Program for

Early Childhood Education], popularly

known as the "Nave-Mãe” [Mothership

Program]

ii

, objects of study developed by

Domiciano (2009), respectively constitute

innovative models of partnerships, since

they include the public subsidy to private

for-profit institutions.

According to the census organized

by the Rede Grupo de Institutos,

Fundações e Empresas (Gife) [Group of

Institutes, Foundations and Companies]

iii

,

in the last ten years (2008-2017), the

presence of private sectors linked to large

corporations working in the educational

field was also identified, since education is

the main theme of the Gife, whose survey

shows growth of 11% in the period (Gife,

2016). Also, according to this census, the

actions implemented or financed by Gife

associates, despite being concentrated in

the southeast region, have a tendency of

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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territorial decentralization of the social

investment made. The main focus of the

existing initiatives involves, mostly, the

training of teachers, followed by the

adoption of teaching materials and books,

among other investments such as

construction, reform or maintenance of

schools (Adrião, 2017).

In the same way, Adrião et al. (2014,

pp. 132-133) alerts to the emergence of

recent research on the subject under study,

which

... identify new arrangements, in

which public subsidies are not

restricted to non-profit institutions,

but also cover private institutions for

profitable purposes. The Programa

Bolsa Creche de Piracicaba, for

example ... 'innovates' in the

traditional model of partnerships,

including public subsidy to private

for-profit institutions.

These new arrangements have

developed after the publishment, in 2009,

of the document “Orientações sobre

Convênios entre Secretarias Municipais de

Educação e Instituições Comunitárias,

Confessionais ou Filantrópicas sem Fins

Lucrativos para a Oferta da Educação

Infantil” [Guidelines on public-private

partnership between Municipal

Departments of Education and non-

profit community, confessional or

philanthropic institutions for the offer of

early childhood education]. This document

constitutes an instrument of

standardization, guidance and regulation of

the public-private partnership between the

municipalities and these organizations,

whose objective is:

Guide state and municipal education

departments and councils on issues

related to the care of children from

zero to five years of age, conducted

through a public-private partnership

of the Municipal

Government/Municipal Department

of Education with private, non-profit,

community, philanthropic and

confessional institutions (SEB,

2009b).

In this way, the legal parameters

for the transfer of public resources in the

educational area, defining the obligations

of the institutions in association, in relation

to the service to be provided to the

population, were decisive in the regulation

of the policy of public-private

partnership. This is certainly due to the

recognition of the relevant presence of

agreements in the management of the

public-private partnership of municipalities

and the need for regulation by national

policy (Lima e Silva, 2017). These policies

are been implemented in Brazil, through

the use of a series of arrangements or

strategies such as the public-private

partnership between the government and

the with-profit and non-profit entities,

classified as: Community, Confessional

and Philanthropic, according to Table 1

below:

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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Table 1 - Enrollment in early childhood education social institutions (nurseries and preschools) of the

private system in Brazil (2006-2016).

Community

Confessional

Philanthropic

2006

115.620

10.786

453.423

2007

127.063

17.898

486.840

2008

166.200

26.576

483.192

2009

173.492

22.903

463.299

2010

148.113

24.526

468.827

2011

175,466

27.793

460.260

2012

125.747

10.418

433.292

2013

177.460

18.506

549.915

2014

175.441

16.856

570.236

2015

176.512

17.672

572.582

2016

173.522

18.452

577.920

Source: author's elaboration based on microdata from Inep (2006, 2007, 2008, 2009, 2010, 2011, 2012, 2013,

2014, 2015, 2016).

Table 1 shows that, during the

historical series in the research (2006-

2016), there was a tendency to maintain

the policy of agreements at the national

level with progressive growth in

community and philanthropic institutions,

and this increase was more significant

from 2013, after the implementation of the

Programa Brasil Carinhoso (BC)

[Affectionate Brazil Program], with the

creation of intersectoral actions to combat

poverty that impact nurseries and provides

for the use of Fundeb resources by 50% for

municipalities that enroll children in the

Programa Bolsa Família (PBF) [Family

Allowance Program], according to

Provisional Measure nº 570/2012.

The research entitled - "A

Implementação da Política de Creches nos

Municípios Brasileiros após 1988:

avanços e desafios nas relações

intergovernamentais e intersetoriais” [The

Implementation of the Policy of Nurseries

in Brazilian Municipalities after 1988:

advances and challenges in

intergovernmental and intersectoral

relations], developed by Maria do Carmo

Meirelles Toledo Cruz, in 2017, in 6

Brazilian municipalities – Farias Brito-CE,

Horizonte-CE, Sobral-CE, Tarumã-SP,

Votuporanga-SP and Osasco-SP – notes

that in 2012, 2.246 municipalities joined

this initiative (40% of Brazilian

municipalities with 261.890 children

attended , with the receipt of R$

151.074.00,27 related to the

supplementation of 50% of Fundeb). In

2015, there were 5.419 municipalities

(97%), with 636.711 children and the

transfer was R$ 405.749.012,69.

Enrollment of children from BC represents

10%, 17%, 20% and 21% of the total

enrollment of the School Census in Brazil,

in 2012 to 2015, respectively, indicating an

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increase in the access of poor children due

to the municipalities' participation in the

differentiated BC in the states. Also,

according to the study, Piauí was the state

where municipalities proportionally

increased the number of children enrolled

in BC from 2012 to 2015 (409%) and

Tocantins had the lowest growth (27%)

(Cruz, 2017).

Table 2 shows enrollment in early

childhood education (Nurseries and

Preschools) in institutions in association,

distributed in Community, Confessional

and Philanthropic institutions between

2006 and 2016, in the municipality of

Teresina-PI.

Table 2 – Enrollment in early childhood education institutions in association (nurseries and preschool) from

private system of municipality of Teresina.

Year

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

Community

83

838

805

874

850

579

348

162

518

247

208

Confessional

115

128

205

193

152

0

Philanthropic

4.280

4.315

4.403

3.195

3.199

2.826

2.621

2.745

12.763

17.577

11.701

Total

4.478

5.281

5.413

4.262

4.201

3.405

2.969

2.907

13.281

17.824

11.909

Source: author's elaboration based on microdata from Inep (2006, 2007, 2008, 2009, 2010, 2011, 2012, 2013,

2014, 2015, 2016).

It was verified that there was a

regression in the care of the social

institutions of Teresina, especially in the

community and confessional institutions,

thus attesting a significant loss in these

spaces, especially in the period between

2011 and 2016, reducing by 178,36% the

number of enrollments in nurseries and

preschools, respectively. In philanthropic

institutions, on the other hand, there were

fluctuations in enrollment with increasing

increase in the period between 2014 and

2015 equivalent to 37,71% meaning a

substantial increase in enrollment, which

may be related to the expansion of

agreements supported by Law nº

12.722/2012, which provides for the

financial support of the Union to

municipalities and the Federal District to

expand the offer of early childhood

education, thus contributing to the

expansion of this care.

In this sense, Alves e Silva (2014,

pp. 153) analyze the context of the

implementation of the neoliberal project in

the 1990s and its effects on State Reform,

which implied the introduction of

privatization processes of services

supported by the discourse of the need to

improve the efficiency and effectiveness of

public institutions. Thus, in the field of

early childhood education, these processes

“have assumed a peculiar systematic of

operationalization. This fact occurred

mainly due to its materialization through

the adoption of agreements concluded

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between the public authorities and

philanthropic companies/ institutions”. For

these authors, what we see today is a new

modality that is characterized by a

structured school model in the public, but

with the paradigm of management of the

private company.

Transfers, Social Grants and Financing

The distribution of public resources

by Fundeb, through transfers to the States,

the Federal District and municipalities

constitute a transfer of federal funds by the

Union to these federal entities, which

transfer to educational institutions.

Therefore, the public authorities will

redistribute the resources, according to

specific criteria to each agreement, to

community, confessional and philanthropic

non-profit institutions, which have entered

into an agreement with the public

authorities.

With the approval of Constitutional

Amendment nº 53 (EC/53/06), which

created Fundeb, covering early childhood

education and allowing the financing of the

private sector with public subsidies, this

process intensified, since this amendment

also admitted the inclusion of the nursery

segment (children up to 3 years of age) in

the calculation of enrollments effected in

the municipalities, through agreement with

community, confessional and philanthropic

institutions (Arelaro, 2008).

In this sense, we stand out an aspect

considered relevant, which was the passage

of the national coordination of the policy

of social assistance agreements for

education (SEB, 2009a), as well as the

financing of the early childhood education

including nurseries, which impacted the

offer of this stage of basic education

through the social organizations.

Regarding the financing of the early

childhood education, it is worth

mentioning that the percentage of transfer

from Fundeb resources, transferred by the

States, Federal District and Municipalities

to the institutions in association to be

applied by the municipality, in the form of

the agreements signed, refers to the 40%

portion of Fundeb.

It is important to note that as

provided for in article 3 of Decree nº 6.253

of november 13, 2007, among the criteria

established, there are those of a general

order, such as the number of enrollments.

Thus, the transfer of resources, referring to

enrollment in institutions in association, is

carried out for the States, Federal District

and Municipalities based on the number of

children in the segments of nursery,

preschool and special education, reported

in the last School Census, as follows:

Municipality - enrollments in nursery,

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preschool and special education; State -

enrollment in special education; Federal

District - enrollment in nursery, preschool

and special education (Alves, 2012).

The institutions municipalized by

agreements are characterized as institutions

of the third sector (entities in association

with the government), involving 14 entities

that maintain partnership with the

municipality of Teresina, through various

agreements, benefiting from social grants,

according to the following table. Table 3

shows the financial investment through

social grants for the municipality of

Teresina to these institutions in association

(nurseries).

Table 3 - Social Grants.

Year

Category

Value

Variable

Institutions in Association

2011

CONV

4.200,00

SUBVSOC

Associação Beneficente das Senhoras da Cidade Satélite

2011

CONV

3.105,40

SUBVSOC

Centro Social Satélite (CSS)

2010

CONV

2.250,00

SUBVSOC

Centro Social Satélite (CSS)

2010

CONV

2.250,00

SUBVSOC

Associação Beneficente das Senhoras da Cidade Satélite

2011

CONV

1.728,65

SUBVSOC

Associação dos Cegos do Piauí (ACEP)

2010

CONV

1.620,56

SUBVSOC

Associação dos Cegos do Piauí (ACEP)

2012

CONV

500,00

SUBVSOC

Associação Comunitária dos Moradores do Bairro São

Pedro

Source: author's elaboration based on official publications of the municipality of Teresina-PI. (Teresina, 2010;

2011; 2012; 2013; 2014; 2015; 2016).

As can be seen in the table above, it

is clear that, only with the schools in

association the expenditure was R$

9.833.452.58 between 2010 and 2016,

during which time the transfers were made.

Regarding the amounts received through

the social grants, the one who benefited the

most was the Fundação Nossa Senhora da

Paz, a non-profit philanthropic institution

that, through the agreement signed with

Prefeitura Municipal de Teresina (PMT)

[Municipal Government of Teresina],

received during the period from 2010 to

2016 the amount corresponding to R$

5.270.640, 24. However, this institution

offers early childhood education and

elementary school. It is important to

mention that during this period there was a

substantial transfer of resources,

suggesting that after the completion of

Fundeb in 2010, the implementation of the

mandatory 4 and 5 year stage and the

approval of the Plano Municipal de

Educação (PME) [Municipal Education

Plan] in 2015, the municipality has

expanded the agreements with

philanthropic non-profit institutions,

aiming at fulfilling what determines the EC

n. 59/09 and the PME that establishes

goals of universalization of the preschool

stage until 2016 and the attendance of 50%

until the 5th year of the plan and 80% until

the end of the plan.

In this context, when analyzing the

conditions of public nurseries, Oliveira

(2016) presents data from School

Censuses, between 2007 and 2014, about

early childhood public schools and

institutions in association with the public

authorities located in urban and rural areas,

considering variables such as type of

building, dependencies and equipment,

based on the official parameters that guide

the functioning of these institutions, which

are: “Parâmetros Nacionais de Qualidade

para a Educação Infantil (SEB , 2006)”

[National Quality Parameters for Early

Childhood Education] and the

“Indicadores da Qualidade na Educação

Infantil (SEB, 2009a)” [Quality Indicators

in Early Childhood Education], both

developed with the support of the

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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Coordenação da Educação Infantil

(Coedi) [Coordination of Early Childhood

Education], the Secretaria de Educação

Básica (SEB) [Basic Education

Department] of MEC. After analyzing the

data, the author found, in both 2007 and

2014, a more precarious situation among

rural units, especially municipal units. In

relation to the urban institutions in

association, the study presents higher

percentages, when compared to those of

the municipal institutions, in relation to

playground, nursery and bathroom suitable

for young children; however, on the other

hand, just over a fifth of its establishments

do not provide school feeding.

Oliveira (2016) adds that this set of

information, especially those of the School

Censuses, indicates that, in a way, the

material conditions of Brazilian nurseries

public in association with the public

authorities have improved in recent years.

However, the available data are quite

limited, thus making it impossible to

evaluate the guidelines of the MEC

parameters and a follow-up of the

expansion of access to public early

childhood education that has been

occurring more rapidly.

Conclusions

The present study undertook a

discussion and analysis on the process of

agreements between the Secretaria

Municipal de Educação de Teresina

[Municipal Department of Education of

Teresina] and the third sector, composed

for community institutions, confessional

and philanthropic non-profit institutions.

For this, the methodology for data

collection and analysis was the documental

research, which was based on consultations

with documentary sources such as:

regulations, standardizations, and in the

official publications of the municipality of

Teresina-PI, as well as microdata from the

School Census from 2006 to 2016,

extracted from the Database of the Inep

Website.

In order to understand public policies

focused on early childhood education,

considering it as a result of multiple social,

political and historical influences, it was

necessary to carry out a brief history of

early childhood education in Brazil. Thus,

it was possible to perceive the strong care

character that remained until 1988, with

the promulgation of the Federal

Constitution, since it began to recognize

early childhood education as a universal

right for children from 0 to 6 years old,

consolidating from there an innovative

context, with the participation of social

movements in the struggle for the right of

working men and women to have their

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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children small care and educated in

nurseries and preschools.

It was also pointed out, the fund

policy that began to be operated from 1997

with Fundef, and later with Fundeb in

2007, to the extent that the early childhood

education was configured for the first time

in the scene of the educational financing

policy, with the linking of resources

constitutionally assured. This fact

announced the possibility of bringing to

this educational stage numerous

contributions: the increase of resources, the

expansion of care, the improvement of

quality, the strengthening of the

educational character and, above all,

highlighted it, on the one hand. On the

other hand, it induced an increase in

educational offer by municipalities,

overloading them and blaming them for

improving the performance of schools.

Particularly, about the

implementation of Fundeb in 2007 and the

inclusion of early childhood education in

this fund, municipalities attracted a boom

of private companies that offer educational

products, aiming to focus on the absence of

objective conditions for the elaboration,

implementation and evaluation of

educational policies, in addition to the

conclusion of several agreements with

confessional, community and philanthropic

non-profit institutions for the expansion of

the offer of early childhood education,

including intervening in the management

of municipal education (Arelaro, 2008).

In addition to the implications of

Fundeb, other changes were present in the

early childhood education in the

municipality of Teresina during the period

under analysis. The process of

municipalization of this stage of basic

education deepened, with an important

growth in enrollment in nurseries and

preschools and the incorporation, by the

Secretaria Municipal de Educação

[Municipal Department of Education], of

almost all philanthropic and community

preschools, which were in association with

the extinct Secretaria Municipal da

Criança e do Adolescente (Semcad)

[Municipal Department of Children and

Adolescents]. Certainly, this process was

reinforced with the changes introduced by

Constitutional Amendment nº 59/09, which

made part of early childhood education

mandatory (4 and 5 years), by the Plano

Nacional de Educação [National

Education Plan] and, by unfolding, by the

Plano Municipal de Educação [Municipal

Education Plan].

In turn, these new regulatory reforms

around early childhood education also help

to understand some of the factors that

would induce municipalities to agreements

as a strategy to expand offer and comply

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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with what determines the legislation. In the

municipality of Teresina, this reality was

no different.

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Diário Oficial Municipal, Teresina-PI 15

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Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

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Secretaria Municipal de Educação de

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Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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de fev. 2015. Recuperado de:

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Dante Civiero-Funaci, a título de

transferências de Subvenções Sociais.

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Reino - CINCACRE, a título de

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i

Program consisting of the public social grant to

private for-profit institutions with a funding format

adopted to expand the offer of vacancies to early

childhood education, stricto sensu and, although it

receives the name of “Bolsa Creche”, finances both

nursery and preschool (Domiciano, 2016, p. 21).

ii

This is the materialization of the transfer of the

management of public early childhood education

equipment to the private sector, with public

subsidy, in the city of Campinas (Domiciano, 2016,

p. 22).

iii

Group that brings together the largest number of

private investors in social investment in Brazil

(Adrião, 2017, p. 25).

Lima, C. L. de S. (2020). The public-private relationship in the expansion of the care of early childhood education in the municipality

of Teresina-PI...

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Article Information

Received on October 07th, 2020

Accepted on November 03th, 2020

Published on December, 04th, 2020

Author Contributions: The author was responsible for the

designing, delineating, analyzing and interpreting the data,

production of the manuscript, critical revision of the content

and approval of the final version published.

Conflict of Interest: None reported.

Orcid

Carmen Lucia de Sousa Lima

http://orcid.org/0000-0001-9384-5704

How to cite this article

APA

Lima, C. L. de S. (2020). The public-private relationship in

the expansion of the care of early childhood education in

the municipality of Teresina-PI. Rev. Bras. Educ. Camp., 5,

e10675. http://dx.doi.org/10.20873/uft.rbec.e10675

ABNT

LIMA, C. L. de S. The public-private relationship in the

expansion of the care of early childhood education in the

municipality of Teresina-PI. Rev. Bras. Educ. Camp.,

Tocantinópolis, v. 5, e10675, 2020.

http://dx.doi.org/10.20873/uft.rbec.e10675