Densidade macroestratégica na gestão pública municipal no Brasil: uma abordagem analítico-metodológica de PPAS e de variáveis político-administrativas

This paper proposed a methodological and analytical approach to comprehend the strategic process in municipal governments in Brazil under two complementary levels of studies. The first one refers to longitudinal studies to verify, in compared perspective of different governments and political terms, in what extent “Pluriannual Plans (PPAs)” are complied to the annual budgetary construction and execution, as well as the quality of its strategic elements, such as general and specific objectives, justifications, goals, and management and policy indicators. It is an analytical proposal in an area of studies lacking in systematization, and in taxonomic and analytical categories. The second level – in depth case studies – engages into the analysis of institutional learning, conflict and cooperation between administrative and political agencies, rooting, adaptive and transformative organizational strategic practices, and frequent strategic movements versus PPA’s rigid processes accommodation. This second level of appreciation offers studies on dimensions such as: government actions/nuances, institutional leadership and institutional memory, organizational permeability to citizens, political cycles, resources and needs measurements, efforts on financing designed policies, and tactical-operational and project oriented mechanisms of management. The main intended contribution is to create a research agenda related to strategic management in the Brazilian subnational governments, filling gaps in the academic production about PPAs and establishing understandable and comprehensive variables of political-administrative outlines, and elements of municipal strategic empowerment. Neste artigo objetivou-se propor uma abordagem analítico-metodológica para se compreender o processo da estratégia em governos municipais no Brasil sob dois níveis que se complementam. O primeiro nível corresponde a estudos longitudinais para a apuração em termos comparados entre governos e em distintos períodos quanto ao grau de compliance dos Planos Plurianuais (PPAs) na estruturação e na execução orçamentárias e à qualidade dos seus elementos estratégicos no que se refere a objetivos, justificativas, metas físicas e financeiras e a indicadores de políticas públicas e de gestão. Trata-se de uma proposta analítica sobre um tema cuja produção acadêmica nacional carece de sistematização, categorias analíticas ou taxonômicas. O segundo nível – estudos de caso em profundidade – direciona-se para a aná