POLÍTICAS DE AVALIAÇÃO E ACCOUNTABILITY EDUCACIONAL NO BRASIL E NO MÉXICO: CONSIDERAÇÕES ANALÍTICAS EM CONTEXTO COMPARADOPOLÍTICAS DE EVALUACIÓN EDUCATIVA Y RENDICIÓN DE CUENTAS EN BRASIL Y MÉXICO: CONSIDERACIONES ANALÍTICAS EN UN CONTEXTO COMPARATIVOEDUCATIONAL ASSESSMENT AND ACCOUNTABILITY POLICIES IN BRAZIL AND MEXICO: ANALYTICAL CONSIDERATIONS IN COMPARATIVE CONTEXTPOLITIQUES D’ÉVALUATION ET DE RESPONSABILITÉ ÉDUCATIVE AU BRÉSIL ET AU MEXIQUE: CONSIDÉRATIONS ANALYTIQUES DANS UN CONTEXTE COMPARATIF038862000Vanessa Rosana Peluchen Camargo: https://orcid.org/0000-0002-7784-3693 Mary Angela Teixeira Brandalise: https://orcid.org/0000-0003-3674-5314. INTRODUÇÃOAs reformas por que passaram Brasil e México nos anos de 1980 a 1990 foram orientadas para o mercado. A despeito das particularidades dos modelos econômicos adotados em cada país antes de tais reformas, fatores externos e internos às economias nacionais fizeram com que irrompessem mudanças de corte econômico liberal. Os encaminhamentos, contudo, foram distintos. Em parte, tal diferença pode ser atribuída às peculiaridades de cada sociedade, no que diz respeito à sua composição de classes, aos pactos estabelecidos entre os diversos segmentos sociais e ao maior ou menor enraizamento das estruturas estatais a serem reformadas. Mas, além disso, boa parte das diferenças se deve ao fato de que ambos os países possuem sistemas político-institucionais distintos que, primeiro, proporcionam mecanismos mais ou menos eficazes para a tomada de decisões – conferindo maior ou menor lentidão ao encaminhamento das reformas – e, segundo, reagem de forma diversa às tentativas de levar adiante iniciativas de maior impacto (COUTO, 2001).Considerando a presença da lógica neoliberalista, percebemos uma aproximação entre Brasil e México no sentido de que se intensificam os processos avaliativos e mecanismos de accountability em contextos com fins muito similares com a finalidade de melhoria da qualidade na educação. Os documentos em vigência, sobre os seus sistemas de avaliação permitem-nos compreender essa intensificação como demostrado no quadro 2 que integra este texto.Tal amplitude ocorre em um contexto de Estado neoliberalista (de ambos os países), cuja bandeira remete a uma redução do aparelho do Estado, liberdade de comércio (mão livre do mercado) objetivando crescimento econômico nos Estados. Entretanto, é importante observar que a despeito de nas décadas dos anos de 1980 a 1990, no Brasil e no México, os governos terem sido de direita, a ampliação da utilização de mecanismos de accountability, nomeadamente no caso brasileiro, ocorre a partir de um governo de esquerda, governo esse voltado às chamadas políticas neodesenvolvimentistas, que reuniu não somente a burguesia interna brasileira, mas também a baixa classe média, operários, desempregados, o campesinato, autônomos, classe baixa, situação de pobreza, entre outros.Para Souza e Hoff (2019), as políticas neodesenvolvimentistas adotadas foram no sentido de buscar o crescimento econômico e social brasileiro e o fortalecimento do capitalismo no país, contando com programas de transferência de renda e atendendo a interesses das classes dominadas, em vez de romper radicalmente com a política neoliberalista do bloco político que estava até então no poder.Na direção de tais reflexões, entendemos que a atuação do Estado é primordial, visto que o mesmo é um lugar de concentração e do exercício do poder. É o Estado que dispõe dos meios para impor e incultar princípios de acordo com suas próprias estruturas. Nessa direção, tanto o Brasil quanto o México baseiam-se nesses elementos para efetivar políticas, nomeadamente as de avaliação que, de maneira implícita, atendem interesses de seus próprios países, interesses esses mercadológicos e capitalistas (BOURDIEU, 2014).Além disso, o Estado também regula o campo da educação e da avaliação educacional, dada a concentração de capital que detém. Por exemplo, no campo econômico, os recursos financeiros, no campo educacional, os agentes formuladores das políticas (não raras vezes, cargos políticos ou comissionados) e que, logicamente, são espelhos do próprio Estado. Importante mencionar que o Estado segue uma diretriz governamental que vigora dentro do Estado por determinado período e o transforma em um campo de lutas conforme seus próprios interesses. Isso ficou indiciado a partir dos documentos analisados e dos contextos políticos nos quais foram implantados, tanto no Brasil quanto no México.É nesse contexto que a accountability adentra e ganha amplitude no contexto educacional no final do século passado, momento em que os Estados brasileiro e mexicano ensejam redefinições, passando a terem papel de regulador e avaliador das políticas educacionais, mormente os de avaliação da educação básica, papel esse ensejado em um contexto de Estado capitalista e orientados também por influências de Organismos Internacionais tais como a Organização para a Cooperação e Desenvolvimento Econômico (OCDE), Fundo Monetário Internacional (FMI), Organização das Nações Unidas para a Educação, Ciência e Cultura (Unesco), entre outras.A partir disso, nossas pesquisas demonstram que nas últimas três décadas, as avaliações em larga escala/externas figuram como objeto de investigações de muitos trabalhos acadêmicos, em diferentes áreas de conhecimento, especialmente em razão de o tema constituir foco de reformas educacionais em muitos países, dentre eles o Brasil e o México. Nesse contexto, dispositivos de accountability começam a ser discutidos no âmbito da educação, entretanto, assumindo uma perspectiva gerencial sem grandes delimitações conceituais, circundada a polissemia que perpassa o conceito no campo da educação, aspectos esses que discutiremos a seguir.No Brasil, as reflexões realizadas sobre o tema accountability na educação por pesquisadores, em muitos momentos, têm sido servidas das contribuições do Almerindo Janela Afonso, entretanto importante mencionar que no plano da política pública, não há contribuições dele, mas, principalmente, de autores americanos. Já no México, nossos estudos apontam um direcionamento às conceitualizações com heranças no campo da administração, em que a prestação de contas, em muitos momentos, é tratada como sinônimo de accountability.Em conta dessas premissas, nosso objetivo geral é comparar especificidades encontradas nas políticas educacionais de avaliação educacional e accountability que regulamentam a educação básica do Brasil e do México. Trata-se de um estudo bibliográfico e documental, em que primeiramente destacamos alguns elementos pertinentes a polissemia conceitual da accountability educacional nos dois países, destacamos aproximações e contrastes direcionados a organização e estruturação dos sistemas nacionais de educação dos dois países, destacamos as políticas de avaliação e accountability considerando alguns apontamentos, encerrando com breves análises acerca do papel dos agentes formuladores das políticas educacionais mencionadas no contexto brasileiro e mexicano.ACCOUNTABILITY EDUCACIONAL PRESENTES NO BRASIL E NO MÉXICO: A POLISSEMIA DE UM CONCEITOAo nos referirmos às questões conceituais da terminologia da accountability, percebemos que Brasil e México utilizam e traduzem o conceito de forma diferenciada. Enquanto no Brasil os estudos e pesquisas acadêmicas e as políticas de avaliação da educação básica trabalham com a responsabilização e a prestação de contas, no México, singularmente, há um direcionamento para a prestação de contas, inclusive, não raras vezes entendido como sinônimo dela.Hipoteticamente, dada a existência de diferenças conceituais e de variadas ferramentas e mecanismos, é que a accountability não possui uma clareza conceitual nas políticas de avaliação observadas em ambos os países, embora no Brasil, o entendimento de accountability, a partir dos pilares da responsabilização e da prestação de contas, comece, atualmente, a se fazer presente nos documentos oficiais. No entanto, é importante mencionar que é algo muito recente para que possamos realizar discussões analíticas profundas quanto à repercussão e resultados dessa inserção clara no sistema educacional.A accountability educacional tanto no contexto brasileiro quanto mexicano, parece carecer de uma unicidade conceitual e, consequentemente, de uma teoria solidificada para, então, ser caracterizada enquanto um campo científico.Entender accountability em uma perspectiva integradora e completa caracteriza uma discussão aprofundada de suas nuances e a sua sistematização efetiva nos sistemas nacionais de avaliação, o que nos documentos oficiais não está claro. Menciona-se de forma esporádica, sem direcionamentos conceituais, ou ainda, por meio de palavras correlacionadas, como, por exemplo, transparência, bonificação, entre outras.Esses elementos nos fazem perceber a necessidade de aprofundamento teórico epistemológico para que dentro dos sistemas educacionais de avaliação (nomeadamente, no âmbito da educação básica), considere-se uma accountability que vá além de apenas menções, que seja integradora no processo educacional e que propicie a geração de elementos capazes de serem transformadores da realidade da educação.AS POLÍTICAS EDUCACIONAIS QUE REGULAMENTAM OS SISTEMAS EDUCACIONAIS DO BRASIL E DO MÉXICO: APROXIMAÇÕES E CONTRASTESO exame dos documentos regulatórios do sistema nacional de educação em vigência nos dois Estados nos possibilitou percebermos algumas aproximações e também contrastes. Quanto aos aspectos similares, ambos os sistemas contêm níveis e modalidades que envolvem a educação básica e educação superior com idades de ingresso e conclusão muito similares, que vão de zero a 17 (dezessete) anos na escolaridade obrigatória (educação básica no Brasil e educação básica e média superior no México). O Quadro 1 ilustra os documentos orientadores de nossa pesquisa, no condizente com as políticas educacionais em vigência nos dois Estados.Quadro 1 – Documentos regulatórios do sistema nacional de educação brasileiro e mexicanoBRASILMÉXICOConstituição Federal de 1988Constitución Política de los Estados Unidos Mexicanos de 05 de Fevereiro de 1917.Lei nº 9.394, de 20 de dezembro de 1996 (inclui alterações)Ley General De Educación, de 2019Decreto nº 5.154, de 23 de julho de 2004Ley General del Servicio Profesional Docente de 11 de septiembre de 2013Lei nº 13.005, de 25 de junho de 2014Plan Nacional de Desarrollo 2013-2018, de 20 de Mayo De 2013.Portaria nº 1.570, de 20 de dezembro de 2017Fonte: Elaborado pelas autoras com base em GEPPAYA (2022). Conforme nossas análises vinculadas ao quadro 1, as diferenças quanto a estruturação e organização dos sistemas educacionais são perceptíveis quanto a nomenclaturas, como, por exemplo, no Brasil, ensino médio, no México, educación media superior, mas que possuem as mesmas idades de ingresso e conclusão: 15 a 17 anos. Também, quanto a algumas modalidades, por exemplo, no México não há uma modalidade destinada à linguagem surda, como no Brasil. Ao menos por enquanto, os distanciamentos são perceptíveis, uma vez que o México apresenta maiores possibilidades e opções de formação aos alunos antes de seu ingresso na universidade, citamos, por exemplo, a educação técnica e profissional. Entretanto, com a sistematização do novo ensino médio no Brasil, ambos os sistemas se aproximam, dadas as opções apresentadas aos estudantes, de formações voltadas ao meio tecnológico (ensino superior), técnicos (nível médio), entre outros.Importante destacarmos que ambos os países são regidos por uma legislação magna em matéria educacional: no Brasil, a Lei de Diretrizes e Bases da Educação Nacional, a LDBEN de 1996 e, no México, a Lei Geral da Educação, a LGE de 2019. Apesar de existir décadas de distanciamento em relação à entrada em vigor das duas leis, o contexto de estruturação e organização da educação dos dois países são similares. Em relação ao México, é difícil contextualizar elementos que possam nos dizer se ela está atingindo os objetivos propostos ou não, visto que é uma vivência do sistema muito recente, enquanto no caso brasileiro, apesar de vigorar desde 1996, a LDBEN praticamente já teve todo seu texto alterado; sofreu revogações e direcionamentos de impacto, como o ensino de nove anos e, mais recentemente, o novo ensino médio. Antes da LGE, em vigor desde 2019 no México, as políticas educacionais estabeleciam uma educação de caráter gerencial, com políticas de autonomia para as escolas, e fomentava alianças público-privadas, bem como mudanças no sistema de governança. Costumava-se dizer que era uma espécie de “choque” em relação à tradição educativa mexicana. Atualmente, o que já é perceptível, é que são políticas que favorecem a privatização e o lucro na educação, em detrimento de sistemas educativos públicos e gratuitos (JARQUÍN, 2020, p. 2).O atual presidente mexicano, em atendimento às promessas de campanha e as fortes críticas da categoria em relação à política até então em vigor, foca particularmente no tema das políticas de prestação de contas na educação, e a constituição de um esquema de carreira docente menos meritocrático, um pouco menos padronizado. Esses são alguns elementos indicativos de mudanças, entretanto, permanecem os interesses direcionados ao mundo corporativo. Para exemplificar: na reforma de 2013, o conceito chave direcionado à questão da qualidade na educação e à definição de qualidade educativa era a máxima obtenção de aprendizagem pelos educandos. Atualmente, substituiu-se o conceito chave por excelência (alteração no art. 3º da Constituição Mexicana), de modo que o fundamento de toda a reforma é que a educação mexicana entende excelência como a melhoria integral, que promove o máximo nível de aprendizagem nos educandos para o fomento do pensamento crítico e o vínculo entre a escola e a comunidade. Parte do projeto do atual governo mexicano é gerar políticas de alocação direta de recursos. É um tanto questionável, já que se trata de um governo contra o período neoliberal. Quando observamos os vieses da política econômica mexicana, realmente não existe muita diferença em relação aos anos anteriores. Isso não nos causa surpresa, visto que no Brasil aconteceu algo muito semelhante, sob a liderança de governos de esquerda, em que foram implementadas políticas educacionais de avaliação por força e intermédio de um grupo de entidades, grande parte voltada ao empresariado, com interesses economicistas explícitos.Outro elemento fundamental em relação ao México e que merece destaque relaciona-se com a atuação da comunidade escolar como agente central em processos de accountability em educação (como nos Consejos de Participación Social en la Educación – CPSE) e que, com a nova reforma educativa, adquire centralidade. Tratam-se, portanto de políticas legitimadas, autorizadas, dotadas de autoridade, as quais são formuladas por agentes que detêm autoridade simbólica. Percebemos que, apesar da elaboração de inúmeras políticas educacionais de avaliação destinadas à educação básica, em muitas situações elas não se concretizam como políticas de Estado e sim de governo, visto que sofrem constantes reformulações e revogações para atender interesses próprios governamentais. Como exemplo, no contexto mexicano fica nítida essa prerrogativa com a revogação do Instituto Nacional para la Evaluación de la Educación (INEE) e, no contexto brasileiro, a renomeação de avaliações em larga escala, como a Prova Brasil, seguida da extinção dessa denominação em 5 de maio de 2020, através da Portaria nº 458, do Ministério da Educação. POLÍTICAS DE AVALIAÇÃO EDUCACIONAL E ACCOUNTABILITY NO BRASIL E NO MÉXICO: ALGUNS APONTAMENTOSEm relação aos sistemas nacionais de avaliação podemos dizer que o interesse pelo campo começa a se destacar, conforme já citamos, após os anos de 1980 a 1990, o que levou à criação de mecanismos institucionais, organismos e planos sistemáticos de avaliação, além da elaboração de indicadores nacionais de educação, em inúmeros países nas mais diversas regiões do mundo, inclusive no Brasil e no México, como demonstraram os contextos políticos e históricos da sistematização da política nacional de avaliação dos dois Estados.Concordamos com Freitas (2004), quando nos diz que esse interesse foi motivado, dentre outros fatores, pela pressão nas mudanças contextuais sobre os sistemas de ensino, sobretudo por Organismos Internacionais em relação a mudanças nos modos de administração e controle dos sistemas, demanda social de informação e prestação de contas, além de um novo modelo de gestão educacional. O Quadro 2 sistematiza os documentos regulatórios utilizados para as nossas análises e reflexões.Quadro 2 - Documentos regulatórios do sistema nacional de avaliação brasileiro e mexicanoBRASIL MÉXICODecreto nº 6.094, de 24 de abril de 2007Decreto por el que se expide la Ley del Instituto Nacional para la Evaluación de la Educación (INEE). Publicada en 11 de Septiembre de 2013.Decreto nº 9.432, de 29 de junho de 2018.Ley General de la Educación de 30 de Septiembre de 2019.Portaria nº 458, de 5 de maio de 2020Ley General del Servicio Profesional Docente, de 11 de Septiembre de 2013.Portaria nº 328, de 5 de maio de 2020 INEPMarco Referencial y Metodológico para la Evaluación de Contenidos y Métodos EducativosSistema de Avaliação da educação básica: documentos de referência – Versão Preliminar - 2020Derivado do Plan Nacional de Desenvolvimento 2019-2024Plan Nacional Para La Evaluación De Los Aprendizajes (Planea) - 2018Fonte: elaborado pelas autoras.Em relação ao sistema de avaliação mexicano, Rizo e Blanco (2010) comentam que um sistema de avaliação é essencial para o desenho de políticas e programas educacionais eficazes, bem como para a inovação escolar. Além disso, citam também a prestação de contas como fundamental para o controle social e institucional das decisões governamentais sobre educação. De acordo com os referidos autores, a avaliação torna possível: Tomada de decisão: a avaliação é essencial para o desenho de políticas e programas educacionais eficazes, bem como para a inovação escolar.• Prestação de contas: a avaliação é essencial para o controle social e institucional das decisões governamentais sobre educação.• Distribuição de incentivos: a avaliação pode ser usada para estabelecer um sistema de incentivos que premie as práticas eficazes e estimule sua disseminação no sistema.• Participação e escolha social: a avaliação é útil para estabelecer mecanismos de controle social direto sobre a educação, seja por meio da participação social ou da escolha das escolas a partir de seus resultados. (RIZO; BLANCO, 2010, p. 94, tradução nossa).Apesar da inegável importância, os autores alertam para uma avaliação que não se consolida integralmente no contexto mexicano. Para os referidos autores, a avaliação mexicana não é usada de forma sistemática no desenho de políticas ou na implementação de iniciativas de melhoria escolar. No que diz respeito à prestação de contas, a mera disponibilização de informações não tem sido suficiente para que a sociedade formule e canalize suas demandas de forma eficaz. A complexidade dos problemas e o fato de os resultados das reformas serem apenas visíveis em médio e longo prazo tornam esse processo particularmente difícil (RIZO; BLANCO, 2010).Mesmo que na atualidade o México disponha de novas diretrizes que regulamentam os processos avaliativos, as reflexões de Rizo e Blanco (2010) são ainda muito atuais, pois apesar da reformulação do sistema, que inclusive tem como centralidade a melhoria da qualidade, é proposta a realização de uma avaliação diagnóstica que não estabelece critérios claros e concisos para sua implementação. Em essência, o que é perceptível nessa reforma educativa é uma “privatização endógena, pois se recuperam mecanismos de administração e de gestão privada na educação pública. O que é mais evidente é o direcionamento para a geração de uma espécie de governança corporativa na educação. É uma privatização da política educativa.” (JARQUÍN, 2020, p. 2, tradução nossa). Em razão de o México atravessar momentos difíceis por conta da corrupção, o governo implementa um programa de autonomia de gestão para as escolas, que serão administradas pelos comitês de pais e mães, responsáveis por todos os gastos da escola em matéria de infraestrutura, material didático, manutenção das instalações e resolução dos problemas que surgirem. Por ser uma reforma recente, elementos para análises ainda são escassos, entretanto, percebemos, mesmo que implicitamente, a responsabilização como ferramenta de accountability. O pilar da responsabilização, até então, não possuía centralidade em relação às ferramentas de accountability nas políticas educacionais do México. Conforme mencionamos, existia/existe uma forte significação para a prestação de contas, presente em vários documentos. A inclusão mais clara da utilização da accountability na educação mexicana, que ultrapassa apenas questões relacionadas à prestação de contas, nos fornece um direcionamento da existência de uma expansão gradativa conceitual. Em contrapartida, o Brasil vem se utilizando de ferramentas de accountability há vários anos (notadamente a partir da introdução do IDEB), com enfoques muito maiores no pilar da responsabilização que no da prestação de contas, conforme também demonstrou a revisão de literatura. Além disso, importante mencionarmos que ambos os países se utilizam da accountability visando, sobretudo, à melhoria da qualidade. Apesar dos discursos, as formas de elaboração e implementação dos processos avaliativos, as consequentes prestações de contas, por meio da divulgação dos resultados e, ainda, em alguns casos, a responsabilização dos agentes educacionais pelos referidos resultados nos transparecem pouco repercussivas na melhoria da qualidade.Apesar dessas diferenciações, constantes revogações e regulamentação de novas políticas do sistema de avaliação voltado à educação básica de ambos os países, as palavras que prevalecem nos documentos regulatórios são similares: melhoria da qualidade. De certa forma, as ferramentas de accountability utilizadas pelos dois sistemas, seja rendición de cuentas, no México, seja prestação de contas/responsabilização no Brasil, são utilizadas com fins da elaboração de novas políticas que versem sobre uma melhoria da qualidade educacional. No âmbito brasileiro, a Figura 1 ilustra nossas considerações: Figura 1 – Nuvem de palavras – Iramuteq – Documentos regulatórios do sistema nacional de avaliação brasileiro Fonte: Relatório Iramuteq (2021).A nuvem de palavras gerada pelo software Iramuteq, a partir da utilização de todos os documentos em vigência no sistema nacional de avaliação no Brasil, demonstra a centralidade na “qualidade” educacional, visto se tratar de uma das formas ativas de maior destaque na Figura 1. Na perspectiva dos documentos, a qualidade referida, entre seus fatores, deve abranger os aspectos contextuais e os resultados de desempenho dos alunos nos testes cognitivos usualmente difundidos.A partir do exposto, é possível afirmar que apesar das constantes reformulações no sistema nacional de avaliação do Brasil (que procuram atender recomendações internacionais), ainda há muito para (re)pensar. Atrelar a melhoria da qualidade aos resultados dos alunos nos processos avaliativos é no mínimo inesperado. É de conhecimento comum que a avaliação, por si só, não traz melhoria, ela precisa ser, sobretudo, formativa e que objetive a construção do ser humano enquanto um ser social, atuante na sociedade. Para que isso ocorra, a própria política precisa ser (re) pensada, pois parece que a única questão relevante são os resultados puramente quantitativos que resultam dos processos avaliativos. Tem-se um sentido limitado, se não equivocado, da avaliação externa, à medida que torna os resultados um fim em si mesmos, sem que se processe, efetivamente, o que consideramos ser uma avaliação.No contexto mexicano, apesar de a “calidad” não ter uma grande centralidade nos documentos oficiais, também se faz presente, conjuntamente com outras formas ativas correlacionadas, como, por exemplo, “desarrollo” (desenvolvimento). Figura 2 – Nuvem de palavras – Iramuteq – Documentos regulatórios do sistema nacional de avaliação mexicano Fonte: relatório Iramuteq (2021).Conforme a Figura 2, “desarrollo”, também sinônimo de aperfeiçoamento e melhoria, é uma das formas ativas em destaque nas políticas de avaliação mexicana. De certa forma, focaliza a qualidade a partir do desenvolvimento.Os direcionamentos em relação à accountability nos documentos regulatórios mexicanos, e as formas ativas dispostas, corroboram o discutido anteriormente, sobre as múltiplas variantes que definem o conceito na perspectiva mexicana (CÁRDENAS, 2017).Em relação aos dois sistemas nacionais de avaliação, alguns elementos merecem destaque. Considerando o contexto histórico de criação do Sistema Nacional de Avaliação Educativa (SNEE) do governo anterior no México, percebemos uma aproximação considerável com a estruturação do Sistema de Avaliação da Educação Básica - SAEB brasileiro. Além disso, tal qual o Brasil com Instituto Nacional de Estudos e Pesquisas Educacionais - INEP), o México também dispunha de um instituto (INEE) responsável pela realização dos processos avaliativos, elaboração de documentos e diretrizes voltadas à publicização dos resultados, diagnóstico do sistema educacional, entre outros.Apesar do recente fechamento do INEE, optamos por considerá-lo no texto em razão de ser um marco no sistema de avaliação mexicano, além de possibilitar a análise do contexto de sua revogação e a aprovação das novas políticas que orientam o sistema.A revogação do sistema de avaliação e o fechamento do instituto de avaliação do México ocorrem em um momento de mudança governamental, em que assume um governo de esquerda, que procura atender às demandas da classe educacional, terminantemente contrária às questões meritocráticas e constantes processos avaliativos aos quais era submetida no governo anterior. É nesse contexto que ocorrem as revogações e entram em vigor as novas regulações, como a LGE, o novo sistema, mencionado na lei que regulamenta o art. 3º da Constituição mexicana, com a nomenclatura de sistema de melhora contínua na educação, a princípio, envolvendo somente uma modalidade de avaliação: a avaliação diagnóstica.No âmbito brasileiro ocorre um processo inverso em relação à dinâmica de ascensão ao poder. Sai um governo de esquerda para assumir um governo de direita, ultraconservador. Nesse contexto, permanece o sistema nacional de avaliação, entretanto com reformulações significativas, como a inclusão de uma avaliação a ser realizada na educação infantil, além de passar a englobar todos os processos avaliativos realizados em larga escala na educação básica brasileira, como o Exame Nacional do Ensino Médio - ENEM e o Exame Nacional para Certificação de Competências de Jovens e Adultos - ENCCEJA. Enquanto estruturação e organização do sistema, a nova lei propõe uma ordenação com maior clareza, entretanto, seus processos permanecem inalterados.No âmbito dos dois sistemas nacionais de avaliação, conforme descrevemos e analisamos, transparecem-nos muitas similaridades, que vão desde a estruturação do sistema, contexto político de elaboração e implementação das políticas, até nos planos nacionais (no Brasil Plano Nacional de Educação - PNE, no México, Programa Sectorial de Educación - PSE). Também há similaridades na matriz que orienta a realização dos processos avaliativos.Em suma, podemos perceber, tanto no Brasil quanto no México, a construção de um sistema avaliativo complexo, com informações relevantes acerca do desempenho estudantil e do contexto intra e extraescolares. Entretanto, a utilização e o uso que ambos fazem dos resultados carecem de reflexões aprofundadas, uma vez que podem ser utilizados tanto como norteadores no aprimoramento das políticas educacionais, rumo à universalização da qualidade do ensino enquanto direito subjetivo dos cidadãos, quanto para uma simplificação da concepção de qualidade, pendendo para uma lógica meritocrática e competitiva entre as unidades e redes de ensino. Os casos brasileiro e mexicano nos apresentam características bastante distintas no seu passado recente sob certos aspectos, mas um futuro talvez semelhante, de aproximação em relação à accountability educacional.AGENTES FORMULADORES DAS POLÍTICAS EDUCACIONAIS DE AVALIAÇÃO E ACCOUNTABILITY: ANÁLISES A PARTIR DO CAMPO E CAPITAL CIENTÍFICO DE PIERRE BOURDIEUA análise relacional do mundo social de Pierre Bourdieu conceitualiza os indivíduos como “agentes”, uma vez que parte do princípio de que esses produzem e, ao mesmo tempo, são produzidos pelos espaços sociais – as estruturas sociais – das quais fazem parte. Estes indivíduos (os agentes) agem em espaços relacionais entendidos não como instituições, mas como “campos”.Dentro do campo científico (campo de forças e de lutas) a posição ocupada pelos agentes (que podem ser tanto indivíduos quanto instituições) é determinante para suas decisões no sentido do que podem ou não fazer o que é de seu interesse e, consequentemente, interesse do grupo que está em um lugar de poder, de tomada de decisões, além do que será publicado, o que é relevante segundo seus princípios éticos e políticos.Em suma, significa dizer que somente compreendemos o discurso e as premissas de um agente quando conseguimos vislumbrar a posição que ele ocupa no campo, isto é, “de onde ele fala”. As possibilidades que um agente tem de submeter as forças do campo às suas vontades são proporcionais à quantidade de capital científico que ele detém, ou à sua posição na estrutura de distribuição do capital.A partir dessas considerações, destacamos que a elaboração da política e sua implementação, tanto por parte do Estado brasileiro quanto do mexicano, apesar de sofrerem influências e direcionamentos internacionais para sua elaboração, um dos fatores determinantes no seu encaminhamento diz respeito aos agentes e à consequente ideologia política defendida pelo grupo que assume o governo dos Estados.A partir do exposto, observamos o conjunto de agentes formuladores da política de avaliação educacional do Brasil e do México e percebemos uma tendência, tanto por parte do governo de esquerda (no México) quando do de direita (no Brasil) em nomear, para cargos públicos centrais no âmbito educacional, agentes com formações superiores que não são da área da educação, sendo perceptível o predomínio de agentes com formações na área da economia ou afins. No cenário mexicano, o Secretário da Educação Pública foi presidente da Fundação Azteca durante 27 anos. A Fundação Azteca tem sido a organização que tem impulsionado debates sobre o voucher educativo e tem investimentos em educação, o que nos faz perceber o sentido empresarial que é adotado pelo governo no âmbito da educação. Historicamente, percebemos que ambos os países privilegiaram agentes com formação em direito, gestão, economia, finanças, entre outros. Tais elementos nos auxiliam a pensar no direcionamento dado às políticas educacionais, sobretudo as voltadas à avaliação educacional e às ferramentas de accountability das quais os sistemas fazem uso. Percebemos rumos voltados a um quase mercado na educação, em que o fator econômico é preponderante nas decisões.CONSIDERAÇÕES FINAISAs políticas de avaliações implementadas por meio dos seus sistemas nacionais demonstram que a tendência não é diminuição, ou desconsideração com o campo da avaliação educacional, pois as políticas podem sofrer revogações, mas logo se efetivam “novas”, no sentido de serem parecidas, alinhada com os parâmetros do governo que estiver exercendo o poder.No entanto, não podemos deixar de mencionar alguns perigos para o sistema nacional dos dois países, caso a forma de implementação e, principalmente, o uso dos resultados a que a comunidade escolar é submetida, se continuar a ser sistematizada da forma como vem sendo nos últimos anos. Um desses perigos se refere a um estreitamento curricular, com valorização de áreas e tópicos que abrangem a avaliação padronizada, levando os professores a atuarem com vistas à realização dos exames, desconsiderando o processo formativo que a avaliação educacional possibilita.Além disso, as avaliações em larga escala, padronizadas, podem ter consequências sociais, intensificando a desigualdade existente. Isso pode acontecer em razão do ranqueamento a que as escolas são submetidas, não raras vezes, “rotulando-as” apenas com base nos resultados obtidos nos processos avaliativos realizados pelo Estado. Trata-se, portanto, de um mecanismo de responsabilização, tendo a accountability um viés negativo e podemos dizer punitivo para a comunidade escolar.Concordamos com Silva (2010), quando destaca alguns elementos que necessitam ser repensados em relação aos documentos regulatórios brasileiros: descentralização administrativa e financeira, quando são celebrados convênios que induzem cada ente federado a resolver seus problemas nas suas redes de ensino, por meio da elaboração do Plano de Ações Articuladas - PAR, o que pode gerar uma diferenciação entre os sistemas, em vez da equidade proclamada no documento; reprodução dos objetivos já expressos na legislação educacional brasileira (LDBEN, PNE), como o estabelecimento de um padrão mínimo de qualidade, que carece urgentemente de discussão em torno de sua real significância, além de estratégias claras para a superação de seu caráter polissêmico, realizando questionamentos, como: que entendimento se tem e como obter a melhoria do padrão de qualidade do ensino? A democratização da gestão está pautada em que grau e instâncias de participação? Quais as estratégias mais eficazes para a busca da equidade? Em relação ao contexto mexicano, as análises feitas por pesquisadores demonstram a urgência em repensar as políticas educativas relacionadas à avaliação educacional. Da mesma forma que ocorre no Brasil, a padronização e o ranqueamento são fatores determinantes nas questões relacionadas às desigualdades e a uma “padronização do currículo”. O México vem utilizando com intensidade os vocábulos qualidade, melhoria, transparência, como demonstrou os documentos analisados (quadros 1 e 2). Entretanto, que concepção de qualidade está sendo considerada? Que estratégias são mais eficazes para melhorar a qualidade? Tal qual no Brasil, são questionamentos cujos documentos ainda nos deixam sem resposta.No Brasil, o pilar da responsabilização é preponderante nos estudos e nas discussões sobre essa temática, entretanto, percebemos indícios de uma caracterização mais consistente, conceitualmente falando, visto que os próprios documentos já trazem a nomenclatura accountability e sua significação como prestação de contas e responsabilização. No México, a prestação de contas é muito presente nas políticas de avaliação e, apesar da não utilização da terminologia responsabilização, percebemos indícios de sua utilização por meio de ações e projetos que se voltam para este pilar da accountability.Na direção dessas discussões, Maroy (2013) alerta para a questão voltada ao profissionalismo e autonomia docente. De um lado, o profissionalismo poderia ser afetado à medida que a autonomia para tomada de decisões é influenciada (matérias a serem ensinadas ou práticas pedagógicas limitadas pelo Estado); de outro lado, a criação dessas ferramentas de accountability poderiam andar, lado a lado, com o aumento da suspeita de suas qualidades profissionais, isto é, suas qualidades profissionais se confirmam pelo desempenho dos seus alunos. Emerge uma suspeita de sua competência técnica e mesmo do compromisso com seu ofício.De maneira geral, o profissionalismo do professor é posto à prova, a partir dos resultados dos alunos de uma classe ou de um estabelecimento. “Se os resultados são bons sob a ótica dos padrões esperados, o profissionalismo não será questionado, mas, em caso contrário, serão interrogados.” (MAROY, 2013, p. 11).Em princípio, da forma que vem se desenvolvendo, a accountability está muito mais voltada para o “mal”, que para o “bem” dos sistemas educacionais. Quando nos referimos a isso, estamos destacando que ela é muito mais punitiva, pois responsabiliza quase que unicamente a comunidade escolar, uma vez que os Estados se auto isentam de qualquer responsabilidade.Com isso, não estamos dizendo que pensar accountability nos sistemas educacionais de avaliação, não seja necessário. É possível pensá-la “para o bem”, no sentido de utilizá-la para que realmente aconteça uma melhoria na qualidade educacional, mas que considere as heterogeneidades presentes nos ambientes escolares, as desigualdades, a utilização dos resultados de forma interna, com responsabilidades que vão além da comunidade escolar, que envolva também o Estado, este que, hierarquicamente, exerce poder sobre os agentes e é o maior responsável pela promoção da melhoria da qualidade educativa. Poucos são os momentos em que accountability é abordada a partir de concepções e abordagens que a delimitem conceitualmente, em sua maioria, são termos interligados e interfaceados que são mais destacados (como exemplo, citamos a transparência e a bonificação). Em suma, destacamos que estudos e pesquisas sobre políticas de avaliação com a integração de dispositivos de accountability, em âmbito nacional, como no Brasil e no México, carecem de aprofundamentos, considerando-se que a trajetória da temática nos sistemas nacionais de avaliação é generalizada. POLÍTICAS DE AVALIAÇÃO E ACCOUNTABILITY EDUCACIONAL NO BRASIL E NO MÉXICO: CONSIDERAÇÕES ANALÍTICAS EM CONTEXTO COMPARADOResumo: As políticas de avaliação refletem as iniciativas de accountability educacional nos sistemas nacionais de educação tanto do Brasil quanto do México, à medida que ambos os Estados se utilizam da prestação de contas e/ou da responsabilização a partir dos resultados obtidos nos processos avaliativos realizados em larga escala e externos à escola, para, em essência, (re)pensar políticas educacionais que possibilitem melhoria na qualidade educacional. Nessa direção, objetivamos comparar analiticamente as políticas educacionais (e de avaliação) dispostas nos Estados do Brasil e do México, destacando elementos centrais vinculados a accountability educacional nos dois países. Metodologicamente, nosso estudo é essencialmente documental, considerando a política regulamentada a partir da atuação do Estado enquanto um campo de poder e disputas. Em suma, os documentos legais analisados dos dois países apresentam similaridade na medida em que demonstram indícios de prestação de contas e responsabilização direcionadas para a escola e para os professores, principalmente com base em metas puramente quantitativas e classificatórias, vinculadas exclusivamente aos resultados das avaliações e com clara auto isenção do próprio Estado (tanto no contexto brasileiro quanto mexicano).Palavras-chave: Políticas de avaliação; accountability educacional; sistema de educação do Brasil; sistema de educação do México. POLÍTICAS DE EVALUACIÓN EDUCATIVA Y RENDICIÓN DE CUENTAS EN BRASIL Y MÉXICO: CONSIDERACIONES ANALÍTICAS EN UN CONTEXTO COMPARATIVOResumen: Las políticas de evaluación reflejan iniciativas de rendición de cuentas educativas en los sistemas educativos nacionales tanto de Brasil como de México, ya que ambos Estados utilizan la rendición de cuentas y/o la rendición de cuentas a partir de los resultados obtenidos en procesos de evaluación realizados en gran escala y fuera de la escuela, para, en esencia, (re)pensar políticas educativas que permitan mejorar la calidad educativa. En esta dirección, nuestro objetivo es comparar analíticamente las políticas educativas (y de evaluación) en los estados de Brasil y México, destacando elementos centrales vinculados a la rendición de cuentas educativa en ambos países. Metodológicamente, nuestro estudio es esencialmente documental, considerando la política regulada desde la actuación del Estado como campo de poder y disputas. En suma, los documentos legales analizados de los dos países son similares en cuanto muestran evidencias de rendición de cuentas y rendición de cuentas dirigida a la escuela y a los docentes, basadas principalmente en fines puramente cuantitativos y clasificatorios, vinculados exclusivamente a los resultados de las evaluaciones y con claras autoexención por parte del propio Estado (tanto en el contexto brasileño como en el mexicano).PALABRAS CLAVE: Políticas de evaluación; responsabilidad educativa; el sistema educativo de Brasil; el sistema educativo de México.EDUCATIONAL ASSESSMENT AND ACCOUNTABILITY POLICIES IN BRAZIL AND MEXICO: ANALYTICAL CONSIDERATIONS IN COMPARATIVE CONTEXTAbstract: Assessment policies reflect educational accountability initiatives in the national education systems of both Brazil and Mexico, as both states use accountability and/or accountability based on the results obtained in assessment processes carried out in large numbers. scale and external to the school, to, in essence, (re)think educational policies that enable improvement in educational quality. In this direction, we aim to analytically compare educational (and evaluation) policies in the states of Brazil and Mexico, highlighting central elements linked to educational accountability in both countries. Methodologically, our study is essentially documental, considering the regulated policy from the State's performance as a field of power and disputes. In short, the analyzed legal documents of the two countries are similar in that they show evidence of accountability and accountability directed towards the school and the teachers, mainly based on purely quantitative and classificatory goals, linked exclusively to the results of the evaluations and with clear self-exemption by the State itself (both in the Brazilian and Mexican contexts).Keywords: Evaluation policies; educational accountability; Brazil's education system; Mexico's education system.SOBRE AS AUTORASVANESSA ROSANA PELUCHEN CAMARGO Doutora em Educação pela Universidade Estadual de Ponta Grossa - UEPG. Mestre em educação pela Universidade do Oeste de Santa Catarina - Unoesc. Graduada em Pedagogia pela Uninter (2022). Graduada em Geografia (licenciatura) pela Faculdade Estadual de Filosofia, Ciências e Letras de União da Vitória (2011). Especialista em Geografia pela Faculdade Estadual de Filosofia Ciências e Letras de União da Vitória. Docente na rede pública de ensino do município de União da Vitória PR em Educação infantil e séries iniciais. Desenvolve estudos e pesquisas enfocando principalmente os seguintes temas: educação, políticas educacionais, políticas de avaliação, avaliação educacional, accountability na educação. Membro do grupo de estudos e pesquisas em política educacional e avaliação - GEPPEA/UEPG. Membro do grupo de pesquisas sobre políticas de avaliação e accountability em países da América Latina - GEPPAYA/UNOESC. E-mail: vanessapeluchen@hotmail.com. ORCID: https://orcid.org/0000-0002-7784-3693. MARY ANGELA TEIXEIRA BRANDALISE Graduada em Licenciatura em Ciências - Habilitação Matemática pela Universidade Estadual de Ponta Grossa (1979), Mestrado em Educação pela Universidade Estadual de Ponta Grossa (2002) e doutorado em Educação (Currículo) pela Pontifícia Universidade Católica de São Paulo (2007). Atualmente é avaliador do basis do Instituto Nacional de Estudos e Pesquisas Educacionais Anísio Teixeira, professora Sênior da Universidade Estadual de Ponta Grossa nos Programas de Pós-graduação em Educação e Ensino de Ciências e Educação Matemática. Coordena o Grupo de Estudos e Pesquisas em Política Educacional e Avaliação - GEPPEA cadastrado no CNPQ. Pesquisadora integrante da Rede Universtitas/BR. E-mail: marybrandalise@uol.com.br. ORCID: https://orcid.org/0000-0003-3674-5314. REFERÊNCIASAFONSO, Almerindo Janela. Políticas avaliativas e accountability em educação: subsídios para um debate ibero-americano. Revista de Ciências da Educação, Lisboa, n. 9, p. 57-69, maio/ago. 2009.BOURDIEU, Pierre. Sobre o Estado. Tradução de Rosa Freire D’Aguiar. São Paulo: Companhia das Letras, 2014.CÁRDENAS, Sergio. The State of Accountability in the Education Sector of Mexico. United Nations Educational, Scientific and Cultural Organization. Global Education Monitoring, 2017. Disponível em: https://www.researchgate.net/publication/331533447_The_State_of_Accountability_in_the_Education_Sector_of_Mexico. Acesso em: 10 ago. 2021.COUTO, Cláudio Gonçalves. Accountability e processo de governo no Brasil e no México: o encaminhamento das reformas orientadas para o mercado. 25º encontro anual da ANPOCS Caxambu, Minas Gerais, Anais [...]. 2001. Disponível em: https://www.anpocs.com/index.php/encontros/papers. Acesso em: 10 ago. 2021.FREITAS, Dirce Nei Teixeira de. Avaliação da Educação Básica e Ação Normativa Federal. Cadernos de Pesquisa, São Paulo, v. 34, n. 123, p. 663-689, set./dez. 2004. Disponível em: https://www.scielo.br/j/cp/a/zTgYMwR8wHwnsvkNzqXpjjj/?format=pdf&lang=pt. Acesso em: 10 jun. 2021.GEPPAYA. Grupo de pesquisa em política educacional e accountability em países da América Latina. Levantamento da legislação da educação brasileira – dados preliminares. Joaçaba, 2021.JARQUÍN, Mauro. Nova reforma educativa no México e o lucro na educação. Campanha Latinoamericana por el Derecho a la Educación (por Thais Lervolino), 2020. Disponível em: https://redclade.org/pt-br/noticias/nueva-reforma-educativa-en-mexico-lucro-y-privatizacion/. Acesso em: 10 jun. 2021. MAROY, Christian. Estado Avaliador, Accountability e Confiança na Instituição Escolar. Educação e Políticas em Debate, Uberlândia, v. 2, n. 2, p. 319-338, jul./dez. 2013. RIZO, Martínez Felipe; BLANCO, Emilio. La evaluación educativa: experiências, avances y desafios. Los grandes problemas de México. Educación, México, n. 5, p. 125-158, 2010. Disponível em: https://siteal.iiep.unesco.org/pt/investigacion/1673/evaluacion-educativa-experiencias-avances-desafios. Acesso em: 10 out. 2021.SILVA, Isabelle Fiorelli. O sistema nacional de avaliação: características, dispositivos legais e resultados. Estudos em Avaliação Educacional, São Paulo, v. 21, n. 47, p. 427- 448, set./dez. 2010. Disponível em: https://www.fcc.org.br/pesquisa/publicacoes/eae/arquivos. Acesso em: 10 mar. 2021. SOUZA, Mariana Barbosa de; HOFF, Tuize Silva Ravere. O governo Temer e a volta do neoliberalismo no Brasil: possíveis consequências na habitação popular. Revista Brasileira de Gestão Urbana, Curitiba, 2019. Disponível em: https://www.scielo.br/j/urbe/a/3MJh66qb4LrfjwrFLdyttrQ/?lang=pt. Acesso em: 20 mar. 2021.Recebido: fevereiro 2023Aceito: maio 2023 Universidade Estadual de Ponta Grossa. E-mail: vanessapeluchen@hotmail.com. Universidade Estadual de Ponta Grossa. E-mail: marybrandalise@uol.com.br. Almerindo Janela Afonso concebe uma accountability sustentada em três pilares: avaliação, prestação de contas e responsabilização (para mais informações, consultar Afonso [2009]). Dados de 2022. Documentos vigentes em 2022. “Toma de decisiones: la evaluación es indispensable para el diseño de políticas y programas educativos eficaces, así como para la innovación escolar.• Rendición de cuentas: la evaluación es fundamental para el control social e institucional de las decisiones gubernamentales sobre la educación.• Distribución de incentivos: la evaluación puede utilizarse para establecer un sistema de incentivos que premie las prácticas eficaces y fomente su difusión en el sistema.• Participación social y elección: la evaluación es útil para establecer mecanismos de control social directo sobre la educación, ya sea por médio de la participación social o de la elección de escuelas en función de sus resultados.” (RIZO; BLANCO, 2010, p. 94). “Lo que se ha fortalecido en esta nueva reforma educativa es la privatización endógena porque se recuperan mecanismos de administración y gerenciales privados en la educación pública. Lo que es más evidente es el lineamiento para la generación de una especie de gobernanza corporativa en la educación. Es una privatización de la política educativa.” (JARQUÍN, 2020, p. 2).PAGE \* MERGEFORMAT1iVBORw0KGgoAAAANSUhEUgAAAXwAAACFCAMAAABv07OdAAAArlBMVEUAAAATExMaGho5OzkhISEm JiYwMzE2NjYuLi5QUFBYXFhAREFFSEVPU09GRkZCQkJdXV1eXl5WVlZ4fnlkaWVuc290eXRobWhx cXFpaWl4eHiOlY+TmpSFi4aZmZmPj4+CgoKGhoadnZ2aoZupqamxurKtta6qsquwuLGmrqe3t7ev r6+/v7+jo6POzs7d3d3V1dXIyMjDw8Pc3Nz7+/vz8/Pi4uL5+fnt7e3////ufEGmAAAWX0lEQVR4 2u1daXfqOAwlLGUpS1lK2ZeGuGEtW4D8/z82EBJbtuXECbw3c86gDzOvLTj2tSxdybKTcl33OCum XvJXpTg7XoFPue7mhcW/IZsb+C/s/zX0U8fb/0v9wUv+ovRLN9SPqdn1v0OLvOSvijW8wj5LXX1t yfp5yV8W66r7Hs3pkxcYf1tI37f8gxf4fx/8wQv8F/gR3fTk+S3+u03+18EnxLZtYg76VxnM7dsP z2jSmpu3Fvvm3Lq2+HiToJPmj3aTD4N/m2vbk6dr0nVMxGyWMiAmMd5bw/kjE0Csef+znAVNZiuf /fkjLdq2OSy9w8gpU2qaRKPJR8C/gW4Ohu3PVukqra/P5sAklv2sGbDtfimLRYW51iAZWFfkm+9o oJlpJ8Sf2GYrh7VoVIbE/kPg3+f7TX5ottIekMdtw489/zLUUXmu/WPHx2lQDgn03/vxe22TZi6k yZYZ3mQi8K9T2i+FPbXcnFvkMehLUVmRrx8SD/r+W0SLuWE8+MnPZ1QnK6b9XPCJZbaMyIzRe/Sq 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