Dissertação Fundurb

UNIVERSIDADE DE SÃO PAULO
ESCOLA DE ARTES, CIÊNCIAS E HUMANIDADES

PROGRAMA DE PÓS-GRADUAÇÃO EM GESTÃO DE POLÍTICAS PÚBLICAS
DÉBORA GAMBETTA PAIM
A instrumentalização da política urbana no município de São Paulo: uma

análise do Fundo de Desenvolvimento Urbano
São Paulo
2019
DÉBORA GAMBETTA PAIM
A instrumentalização da política urbana no município de São Paulo: uma

Versão corrigida
Dissertação apresentada à Escola de

Artes, Ciências e Humanidades da
Universidade de São Paulo para obtenção
do título de Mestre em Ciências pelo
Programa de Pós-graduação em Gestão
de Políticas Públicas.
Versão corrigida contendo as alterações

solicitadas pela comissão julgadora em 30
de abril de 2019. A versão original
encontra-se em acervo reservado na
Biblioteca da EACH/USP e na Biblioteca
Digital de Teses e Dissertações da USP
(BDTD), de acordo com a Resolução
CoPGr 6018, de 13 de outubro de 2011.
Área de Concentração:
Análise de Políticas Públicas
Orientadora:
Profª. Drª. Úrsula Dias Peres
São Paulo
2019
Autorizo a reprodução e divulgação total ou parcial deste trabalho, por qualquer meio
convencional ou eletrônico, para fins de estudo e pesquisa, desde que citada a
fonte.
CATALOGAÇÃO-NA-PUBLICAÇÃO
(Universidade de São Paulo. Escola de Artes, Ciências e Humanidades. Biblioteca)
CRB 8 - 4936
Paim, Débora Gambetta

A instrumentalização da política urbana no município de São Paulo:
uma análise do Fundo de Desenvolvimento Urbano / Débora Gambetta
Paim ; orientadora, Úrsula Dias Peres. – 2019
128 f. : il.
Dissertação (Mestrado em Ciências) - Programa de Pós-

Graduação em Gestão de Políticas Públicas, Escola de Artes,
Ciências e Humanidades, Universidade de São Paulo, São Paulo.
Versão corrigida
1. Políticas públicas - São Paulo (SP). 2. Política urbana - São

Paulo (SP). 3. Fundo de desenvolvimento urbano - São Paulo
(SP). I. Peres, Úrsula Dias, orient. II.Título
CDD 22.ed. – 320.60981611

Nome: PAIM, Débora Gambetta
Título: A instrumentalização da política urbana no município de São Paulo: uma
Dissertação apresentada à Escola de

Artes, Ciências e Humanidades da
Universidade de São Paulo para obtenção
do título de Mestre em Ciências do
Programa de Pós-Graduação em Gestão
de Políticas Públicas.
Área de Concentração:
Análise de Políticas Públicas
Aprovado em: 30 / 04 / 2019
Banca Examinadora
Profa. Dra. Luciana de Oliveira Instituição: FAU-USP

Royer
Julgamento: ____________________ Assinatura: __________________
Prof. Dr. Fernando de Mello Instituição: Externo

Franco
Profa. Dra. Renata Mirandola Bichir Instituição: EACH-USP

Para meus pais, Leda e Carlos
Agradecimentos
Escrever é um ato solitário. Mas a realização de uma pesquisa não acontece

sem o apoio das pessoas queridas que nos acompanham. Ao longo desses quase
três anos de mestrado, recebi muito mais do que doei e sou muito grata aos que
fizeram parte dessa trajetória.
Primeiramente, queria agradecer a minha família, principalmente aos meus
pais, que sempre me ofereceram e oferecem o suporte mais fundamental e
verdadeiro. Obrigada pela confiança, acolhimento e o carinho tão essenciais em toda
a minha formação.
Agradeço a professora Úrsula Dias Peres pela paciência e orientação precisa
que me guiou pelo mundo da pesquisa e ajudou a sair da caixinha do Direito. Também
não poderia deixar de agradecer os outros professores do programa, em especial a
Renata Mirandola Bichir e a Cecília Olivieri pelas colocações bem-vindas.
Aos colegas, e amigos, do mestrado, muito obrigada! À Marina Carvalho
Marcelli Ruzzi, por me apresentar o caminho das políticas públicas. Ao Victor Bastos
Lima, pelos ouvidos atentos, pela parceria. À Marina Nascimento de Souza e ao
Douglas Vinicius Franco, pelas contribuições e incentivo. À Gabriela Jesus D’Amaral,
à Luz Myriam Camacho Molano, ao Diego Vargas e ao Wagner Luiz Taques Rocha
pela cumplicidade. Foram muitas manhãs e tardes na biblioteca, lutas contra prazos,
categorias analíticas e referenciais teóricos!
Gostaria de agradecer também os entrevistados, por encontrar um espaço na
agenda, muitas vezes apertada, e pela disposição em colaborar com a pesquisa.
Por fim, aos amigos, primos e irmãos que tiveram paciência com os
compromissos adiados por causa da dissertação, muito obrigada!
RESUMO
PAIM, Débora Gambetta Paim. A instrumentalização da política urbana no

município de São Paulo: uma análise do Fundo de Desenvolvimento Urbano. 2019.
128 f. Dissertação (Mestrado em Ciências) – Escola de Artes, Ciências e
Humanidades, Universidade de São Paulo, São Paulo, 2019. Versão Corrigida.
A presente pesquisa tem como objetivo compreender como as regras formais e

informais que determinam a decisão alocativa do Fundo de Desenvolvimento Urbano
do município de São Paulo são capazes de influenciar o conflito distributivo no âmbito
da política urbana municipal. Para isso, foram analisados os processos ou etapas
decisórias do fundo entre 2003 e 2016, afim de identificar os loci ou arenas decisórias
nas quais se deu a tomada de decisão, os atores envolvidos e seu papel no processo,
os critérios utilizados na priorização de secretarias e projetos, além de realizar uma
análise quantitativa da distribuição entre pastas e áreas da política. Para tanto,
procurou-se operar em uma lacuna teórica entre a ciência política e os estudos
urbanos ao se empregar a literatura neoinstitucionalista – em especial suas vertentes
histórica e sociológica, particularmente a sociologia da ação pública, com a
instrumentalização de políticas públicas – com o intuito de entender os reflexos de um
instrumento que se insere no contexto de instrumentos urbanísticos de recuperação
da valorização da terra urbana. O estudo demonstra que o FUNDURB, ao determinar
o processo de decisão sobre a alocação de recursos, limita parcialmente o
comportamento dos atores e, dessa forma, estabelece relações assimétricas de poder
entre diferentes demandas e interesses. Além disso, foram identificados efeitos
próprios da instrumentalização como previsto pela literatura, na medida em que a
vinculação e subvinculação de receitas produzem inércia e evitam questionamentos
sobre a problematização em torno de uma política de desenvolvimento urbano.
Ademais, os critérios utilizados para a alocação de recursos revelaram lógicas
dissimuladas pela adoção do instrumento e realçaram o caráter seu arrecadatório,
posicionando-o em um contexto mais amplo dentro do processo orçamentário da
prefeitura de São Paulo.
Palavras-chave: Política urbana. Desenvolvimento Urbano. Neoinstitucionalismo.

Instrumentalização de Políticas Públicas.
ABSTRACT
PAIM, Débora Gambetta. The instrumentalization of urban policy in the

municipality of São Paulo: an analysis of the Urban Development Fund. 2019. 128
p. Dissertation (Master of Science) – School of Arts, Sciences and Humanities,
University of São Paulo, São Paulo, 2019. Corrected Version.
This research aims to understand how formal and informal rules that determine the
allocation of resources of the Urban Development Fund (FUNDURB) of the
municipality of São Paulo are able to influence the distributive conflict within the
municipal urban policy. To that end, the decision-making processes or steps of the
fund between 2003 and 2016 were analysed, in order to identify the loci or arenas
where decisions were taken, along with the actors involved and their role in the
process, as well as the criteria used in the prioritization of departments and projects,
in addition to conducting a quantitative analysis of the distribution among departments
and policy areas. The research operates in a theoretical gap between political science
and urban studies and, therefore, it employs new institutionalist literature – particularly
its historical and sociological streams, particularly the sociology of public action, with
the instrumentalization of public policies – in order to understand the reflections of an
instrument that is inserted in the context of urban land value recovery. The study shows
that the FUNDURB, while determining the decision-making process on resource
allocation, partially limits the behaviour of the actors and thus establishes asymmetric
power relations of power among different demands and interests. Moreover, effects of
the instrumentalization were identified, as predicted by the literature, as public
earmarking produce inertia and avoids questioning over the problematization around
urban development. Furthermore, the criteria used in the allocation of resources
revealed a disguised logic in the adoption of the instrument, which lies within a broader
context of the budgetary process of the municipality of São Paulo.
Keywords: Urban policy. Urban Development. New Institutionalism. Public Policy

Instrumentalization.
LISTA DE FIGURAS
Figura 1 – Estrutura Simplificada do CG-FUNDURB ............................................ 58

LISTA DE TABELAS
Tabela 1 – Comparação dos gastos do FUNDURB por secretaria com os

respectivos orçamentos e execução orçamentária no ano de 2016....24
Tabela 2 – Valores totais destinados ao FUNDURB por ano entre 2007 e 2016
............................................................................................................71
Tabela 3 – Recursos do FUNDURB destinados à SEHAB entre 2007 e 2016....74
Tabela 4 – Recursos do FUNDURB destinados à SIURB entre 2007 e 2016 .....75
Tabela 5 – Recursos do FUNDURB destinados à SMSP entre 2007 e 2016 .....76
Tabela 6 – Recursos do FUNDURB destinados à SMC entre 2007 e 2016 ........77
Tabela 7 – Recursos do FUNDURB destinados à SVMA entre 2007 e 2016 .....78
Tabela 8 – Recursos do FUNDURB destinados à SMT entre 2007 e 2016 ........79
Tabela 9 – Recursos do FUNDURB destinados à SMDU entre 2007 e 2016 .....80
Tabela 10 – Distribuição de recursos destinados ao FUNDURB no orçamento
inicial e atualizado por função orçamentária por ano e totais entre 2007
e 2016 .................................................................................................85
LISTA DE GRÁFICOS
Gráfico 1 – Percentual de gastos do FUNDURB em relação ao total de

investimentos de São Paulo, 2005-2013 .............................................24
Gráfico 2 – Arrecadação da OODC no Município de São Paulo (2005-2013) .....70
Gráfico 3 – Valores totais destinados ao FUNDURB no orçamento inicial,
atualizado, valores empenhados e liquidados por ano entre 2007 e 2016
............................................................................................................72
Gráfico 4 – Saldos financeiros do FUNDURB ao final do exercício entre 2010 e
2016 ...................................................................................................73
LISTA DE QUADROS
Quadro 1 – Modelo Analítico da pesquisa ...........................................................49

Quadro 2 – Desenho de pesquisa .......................................................................50
Quadro 3 – Evolução da regulamentação do FUNDURB ....................................53
Quadro 4 – Qualificação dos entrevistados .........................................................54
Quadro 5 – Correspondência entre áreas de investimento do FUNDURB, funções
orçamentárias......................................................................................82
Quadro 6 – Correspondência entre Secretarias beneficiárias do FUNDURB e
funções orçamentárias ........................................................................83
LISTA DE ABREVIATURAS E SIGLAS
CADES Conselho Municipal de Meio Ambiente e Desenvolvimento

Sustentável
CEPAC Certificado de Potencial Adicional de Construção
CG-FUNDURB Conselho Gestor do Fundo de Desenvolvimento Urbano
CMH Conselho Municipal de Habitação
CMPU Conselho Municipal de Política Urbana
CMTT Conselho Municipal de Trânsito e Transporte
COHAB Companhia Metropolitana de Habitação de São Paulo
Dec. Decreto
EMURB Empresa Municipal de Urbanização
FEMA Fundo Especial de Meio Ambiente e Desenvolvimento
Sustentável
FUNDURB Fundo de Desenvolvimento Urbano
IPTU Imposto sobre a propriedade predial e territorial urbana
OODC Outorga Onerosa do Direito de Construir
OUC Operação Urbana Consorciada
PDE Plano Diretor Estratégico
SEHAB Secretaria Municipal de Habitação
SEMPLA Secretaria Municipal de Planejamento
SF Secretaria Municipal de Finanças
SIURB Secretaria Municipal de Infraestrutura Urbana e Obras
SMC Secretaria Municipal de Cultura
SMDU Secretaria Municipal de Desenvolvimento Urbano
SMP Secretaria Municipal de Planejamento
SMPU Secretaria Municipal de Planejamento Urbano
SMSP Secretaria Municipal de Coordenação de Subprefeituras
SMT Secretaria Municipal de Transportes
SMUL Secretaria Municipal de Urbanismo e Licenciamento
SMVA Secretaria Municipal do Verde e Meio Ambiente

SUMÁRIO

1 INTRODUÇÃO............................................................................... 16
2 DO OBJETO.................................................................................. 21

............................................................................................
3 ANÁLISE DA LITERATURA......................................................... 26

3.1.1 A teoria abrangente de Lowi....................................................... 27
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3.4.1 O institucionalismo histórico...................................................... 31
3.4.2 O institucionalismo sociológico.................................................33
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3.6.1 Política urbana e desenvolvimento urbano...............................39
3.6.2 Instrumentos da política urbana.................................................41
3.6.2.1 Outorga Onerosa do direito de construir................................... 42
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4 METODOLOGIA............................................................................ 47
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4.1.1 Hipóteses...................................................................................... 47
4.1.2 Objetivos.......................................................................................#+
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4.4.1 Das fontes de dados.................................................................... 52
5 ARENAS DECISÓRIAS, ATORES E QUESTÕES EM DISPUTA..56

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5.3.1 Das áreas prioritárias da política................................................ 62
5.3.2 Dos critérios de priorização........................................................ 62
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6 ETAPAS DECISÓRIAS E A ALOCAÇÃO DE RECURSOS.......... 69
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6.2.1 SEHAB........................................................................................... 73
6.2.2 SIURB............................................................................................ 75
6.2.3 SMSP............................................................................................. 76
6.2.4 SMC............................................................................................... 77
6.2.5 SVMA............................................................................................. 78
6.2.6 SMT................................................................................................ 79
6.2.7 SMDU............................................................................................. 80
6.2.8 Síntese da distribuição por secretaria........................................81
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7 CONSIDERAÇÕES FINAIS........................................................... 87
REFERÊNCIAS.............................................................................. 95
APÊNDICE A – ROTEIRO DE ENTREVISTAS............................. 103
APÊNDICE B – SISTEMATIZAÇÃO DA PREVISÃO DA
COMPETÊNCIA DO CG-FUNDURB............................................. 104
APÊNDICE C – SISTEMATIZAÇÃO DA REGULAMENTAÇÃO
DO PROCESSO DE TOMADA DE DECISÃO DO CG-
FUNDURB...................................................................................... 106
APÊNDICE D – SISTEMATIZAÇÃO DA COMPOSIÇÃO DO CG-
FUNDURB...................................................................................... 108

APÊNDICE E – SISTEMATIZAÇÃO DA DISCIPLINA DA

ORGANIZAÇÃO DO CG-FUNDURB............................................. 113
APÊNDICE F – SISTEMATIZAÇÃO DAS REGRAS SOBRE O
INVESTIMENTO DOS RECURSOS...............................................122

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CATEGORIAS ANALÍTICAS FONTES DE DADOS
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a) Arenas decisórias: 101 6342A6E6510 4 51015A406>10 : locus := 10421
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b) Atores: 6342A6E651?9:3:.1A:04.<10A656<12A4.31.36E4042A4.10421.@=4
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4QA01S31.3184/6.81?9:3:.04/6.A0:.31.04=26O4.3:!X431.
42A04N6.A1.
c) Questões em disputa: 84N12A1;42A:31.@=4.AO4.4;36.<=A1A1;7M;
E:604186>13:1<10A6034313:.31.;4.;1.E:2A4. 1812K86.4.471.4:=
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b) Reuniões do Conselho Gestor: 10142A423401362J;65131.04=26O4.3:

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Entrevistado Órgão/ Universidade
Nº 1 4504A1061=2656<18348124P1;42A:
Nº 2 4504A1061=2656<18342E014.A0=A=014701.
Nº 3 4504A1061=2656<18344.42N:8N6;42A:0712:
Nº 4 4504A1061=2656<1834'176A1?9:
Nº 5 4504A1061=2656<18342E014.A0=A=014701.
Nº 6 4504A1061=2656<1834'176A1?9:W
Nº 7 4504A1061=2656<18344/I56:.)=0S365:.W
Nº 8 4504A1061=2656<18344.42N:8N6;42A:0712:
Nº 9 4504A1061=2656<18344.42N:8N6;42A:0712:
Nº 10 4504A1061=2656<18348124P1;42A:
Nº 11 4504A1061=2656<1834'176A1?9:
Nº 12 26N40.63134349:1=8:
Nº 13 4504A1061=2656<18344.42N:8N6;42A:0712:W4504A1061=2656<1834!:N402:
Nº 14 4504A1061=2656<18344.42N:8N6;42A:0712:

817:01?9:<0I<061
d) Execução Orçamentária: . 313:. 31 4Q45=?9: :0?1;42AK061 3:

;=265S<6: 34 9: 1=8: E:01; 154..13:. 2: :0A18 31 012.<10U2561
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e) Demonstrativos contábeis: E8=Q:E62125460:3:E:612186.13:

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@=12A6A1A6N1 3:. 313:. E:6 E46A1 1 <10A60 31 5:;<101?9: 42A04G BD :. N18:04.
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Ano Orçado Atualizado Empenhado Liquidado
$$ ++&%&"%" $+&+ % %" $$+ % $%#$"+
$$+ # $"$%$$ #+&"& % $ "%+ &"& +
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1 <04N6.9: 34 10045131?9: 36;62=6= 34 54051 34 #" ;68HO4. 34 0416. <101 54051 34 #$ ;68HO4.
BN18:04. 1A=186>13:. X P12 $+D 12A4. 31 1<0:N1?9: 31 846 :0?1;42AK061 : @=4 151004A:= 1
36;62=6?9: 34 A:31. 1. 3:A1?O4. 04E4042A4. 1: 4..1 E:0;1 :. N18:04. 1<0:N13:. 4;
04=269: 4 21 846 :0?1;42AK061 21@=484 4Q405S56: .9: 36.504<12A4. 6231 1..6; 29: .4 18A40:=
.6/26E651A6N1;42A4 : <4.: 0481A6N: 34 5131 .4504A1061 7424E656131 4; 0481?9: 1: A:A18 :0?13: <101 :
<:6. 1. N1061?O4. E:01; 34 2: ;KQ6;: c <101 ;16. := <101 ;42:. 4..1 E:0;1
P=.A6E651X.4 1 ;12=A42?9: 31 12K86.4 3: :0?1;42A: 6265618 71.4131 1<421. 2:. N18:04. 31 846
:0?1;42AK061
+ ;<:0A1 04..18A10 @=4 1 12K86.4 3:. 313:. 31 4Q45=?9: :0?1;42AK061 <40;6A6= : 1<:2A1;42A: 34
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51<SA=8:3436513:1@=4.AO4.;4A:3:8I/651.<K/621%&
" 4.5:8H13112K86.434N18:04.4;<42H13:.486@=6313:.A1;7M;<:34.40;48H:05:;<04423631
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$ $ #"$$ "$ +$#%&+ ++$"%%%""# &#$&& +
$ $+& %$$$$ $" %"+ +###&+"%$ #&$ "#
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TOTAL 3.551.768.681,83 3.831.992.847,74 2.924.226.767,42 2.398.273.754,39
:2A4G1.434313:.314Q45=?9::0?1;42AK061b

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m;68HO4.1A=186>13:.<48: <101$+D

650
600
550
500
450
400
350
300
250
200
150
100
50
0
2007 2008 2009 2010 2011 2012 2013 2014 2015 2016
ORÇADO ATUALIZADO EMPENHADO LIQUIDADO

:2A4G1.434313:.314Q45=?9::0?1;42AK061b

<10A60 3: /0KE65: M <:..SN48 :7.40N10 =;1 <0:Q6;63134 42A04 1. 5=0N1.
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4; @=4 3=012A4 1 4Q45=?9: :. 86;6A4. :0?1;42AK06:. E:01; ;1P:013:.
5:2.63401N48;42A4*=123:5:2.634013:.:.N18:04.4;<42H13:.<405474X.4=;1
A423U2561 34 1<0:Q6;1?9: /0131A6N1 34 N18:04. :0?13:. A12A: 6265618;42A4 5:;:
1A=186>13:.4<:.A406:036.A12561;42A:2:E62183:<40S:3:@=4342:A1504.56;42A:4
86/4601@=431214Q45=?9: 5:;<101?9:34N18:04.4;<42H13:.486@=6313:.29:
<40;6A4 1E60;10 1 4Q6.AU2561 34 =; <1309: :0 :=A0: 813: 1: .4 12186.10 : E8=Q:

E62125460:34045=0.:.3:E=23:1<10A603:.313:.36.<:2SN46..:704:.183:1:E6218
34 5131 4Q405S56: 42A04 $$ 4 $& B $E $/ $H $/ $#4
$%E $&6D <405474X.4 =;1 /01234 :.5681?9: .4/=631 <:0 =;1 A423U2561 34
36;62=6?9:3:..183:.1<10A6034$5:;:M<:..SN48:7.40N102:!0KE65:#G

!0KE65:#b183:.E62125460:.3:1:E62183:4Q405S56:42A04$$4$&
B4;m$$1A=186>13:<48: <101$+D

R$400.000.000,00
R$350.000.000,00
R$300.000.000,00
R$250.000.000,00
R$200.000.000,00
R$150.000.000,00
R$100.000.000,00
R$50.000.000,00
R$-
2010 2011 2012 2013 2014 2015 2016
:2A4G181254A4.62125460:.3:=23:344.42N:8N6;42A:0712:b

;7:0129:H1P1=;1A423U2561;105131429:.4P1<:..SN48E1>40=;112K86.4
3:<40S:3:A:3:A1;7M;M<:..SN48:7.40N10:.5681?O4.34=;12:<101::=A0:@=4
623651;E:0A486/1?9:5:;:1@=456;42A:434.1@=456;42A:3:;40513:6;:7686K06:
4..4.42A63:12:.4;@=4:.183:E:6;16:0$$4$5:625634;5:;<40S:3:.
341=;42A:3110045131?9:42@=12A::.12:.4;@=4:.183:E:6;42:0$434
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:<4.:0481A6N:34A16.N18:04.4;E1543:.A:A16.:0?13:.1A=186>13:.4;<42H13:.
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Ano Orçado - A Atualizado - B Empenhado - C % (C/B) Liquidado - D % (D/B)
2007 &"%$$ &"%$$ $$$ $ $$$ $

2008 +%#&+$%$$ $%" &+$ & $%$$ & %#++%$ %
2009 +&$#% +&$#% +%"$#%" $$ +#%+#"%% "+
2010 %$$+%" & # &&$#$ # &&$#" $$ #$&%#++% +&
2011 #%&$ $#$"%$"$ $$%" "$+ "& + +% %" &
2012 #+%"$$ +"$ +$ $& $$ %%%%$# "
2013 "&&$$$$ $%%#&+$ $%#&# $$ +++% $% +#
2014 +%& + +$$ #$"" #$ $%% + "$ "##+ %# +$
2015 $#% ##& # %%$$% &% %## &%&& %
2016 #&+$$+ % #&+$$+ % "#$% # &# "#$% # &#
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1:8:2/:34A:3::<40S:3:
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REFERÊNCIAS

)O financiamento do desenvolvimento urbano no BrasilX51.:31K041;4A0:<:86A121
349:1=8:4N6.A134 3;626.A01?9:L78651N+2<"X%""+#

Constituição Federal"++

lllllllLei Federal 10.527/01.
.A1A=A:31.63134.$$

lllllll626.AM06:3:8124P1;42A:4.42N:8N6;42A:4!4.A9:4504A1061340?1;42A:434018
Manual Técnico de Orçamento - MTO
36?9:$+01.S861$

A questão urbana6:34)12460:G1>4 4001" %

lllllllVers une théorie sociologique de la planification urbaine.2G:56:8:/643= 01N168#W&"
106."&"

R 4A18A Outorga Onerosa do Direito de Construir após o Estatuto da Cidade: um
panorama de implementação nos municípios brasileiros4N6.A101.68460134
.A=3:.0712:.4
4/6:216.e8fN"2< 2:N$$

R C A outorga onerosa do direito de construir no Brasil: entre a
regulação e a arrecadação2GR B5::03D:8SA651E=236K061;=2656<184/4.A9:.:5618
31 N18:06>1?9: 31 A4001 9: 1=8:G 2.A6A=A: I86.W625:82 2.A6A=A4 :E 123 :865YW=231?9: !4AL86:
10/1.$$&

'Who governs? Democracy and power in an American City4d'1N42GR18404.."&

!! g h
h Introduction 2G 6;1//6: 4 h :d488 B
3.D H4 24d
62.A6A=A6:2186.;62:0/126>1A6:218 218Y.6.H651/:G26N40.6AY:EH651/:04..""

') Políticas urbanas: notas aproximativas para a pesquisa avaliativa4N6.A1
34 N1861?9:34:8SA651.L78651.N<<%%X&"$

Parceiros da exclusão: duas histórias da construção de uma “nova cidade” em São
Paulo: Faria Lima e Água Espraiada9:1=8:G:6A4;<:
36A:0618$$

! )Orçamento público
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APÊNDICE A - ROTEIRO DE ENTREVISTAS

A. Aprovação de projetos
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C. Liberação e execução de recursos

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APÊNDICE B - SISTEMATIZAÇÃO DA PREVISÃO DA COMPETÊNCIA DO CG-

FUNDURB

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APÊNDICE C - SISTEMATIZAÇÃO DA REGULAMENTAÇÃO DO PROCESSO DE

TOMADA DE DECISÃO DO CG-FUNDURB

0A % k a X <812: 34 1<8651?9: 34 045=0.:. E62125460:. 3:
PDE de 2002 34N40K .40 3471A63: <48: 4 4251;62H13: 12=18;42A4
124Q:V846:0?1;42AK061<1011<0:N1?9:31J;101=2656<18
0A &a k #o . 3456.O4. 3: :2.48H: .409: A:;131. <:0 ;16:061
.6;<84. 3:. ;4;70:. <04.42A4. 517423: 1: 04.6342A4 : N:A: 34
34.4;<1A4
0A a k o <812: 34 1<8651?9: 3:. 045=0.:. E62125460:. 3: =23: 34
Dec. nº43.231/03
4.42N:8N6;42A: 0712: X .40K 1<04.42A13: 1: :2.48H:
=2656<18 34 :8SA651 07121 <101 3471A4 5:; N6.A1. 1: .4=
4251;62H1;42A:12=18P=2A1;42A45:;:<0:P4A:31846:0?1;42AK061<101
1<0:N1?9:31J;101=2656<18
Dec. nº 43.811/03 9:17:031:A4;1
Lei nº 13.885/04 9:17:031:A4;1
0A &a k #a . 3456.O4. 3: :2.48H: .409: A:;131. <:0 ;16:061
.6;<84. 3:. ;4;70:. <04.42A4. 517423: 1: 04.6342A4 : N:A: 34
34.4;<1A4

Dec. nº 47.661/06
0A a k a <812: 34 1<8651?9: 3:. 045=0.:. E62125460:. 3:
.40K 1<04.42A13: 1: :2.48H: =2656<18 34 :8SA651 07121
<04N61;42A41:.4=4251;62H1;42A:12=18P=2A1;42A45:;:<0:P4A:31846
:0?1;42AK061<1011<0:N1?9:31J;101=2656<18
0A a k #a . 3456.O4. 3: :2.48H: .409: A:;131. <:0 ;16:061
.6;<84. 3:. ;4;70:. <04.42A4. 517423: 1: 04.6342A4 : N:A: 34
Decreto nº 50.101/08
34.4;<1A4

k#a . 3456.O4.3::2.48H:.409:A:;131.<:0;16:061.6;<84.
3:.;4;70:.<04.42A4.517423:1:04.6342A4:N:A:3434.4;<1A4
0A6/:a10K/01E:aX<812:341<8651?9:3:.045=0.:.E62125460:.
3: =23: 34 4.42N:8N6;42A: 0712: b .40K 1<04.42A13: 1:
:2.48H: =2656<18 34 :8SA651 07121 <101 3471A4 5:; N6.A1. 1: .4=
4251;62H1;42A:12=18P=2A1;42A45:;:<0:P4A:31846:0?1;42AK061<101
Resolução 002/11 1<0:N1?9:31J;101=2656<18

0A6/:ak#a .3456.O4.3::2.48H:.409:A:;131.<:0;16:061
.6;<84. 3:. ;4;70:. <04.42A4. 517423: 1: 04.6342A4 : N:A: 34
34.4;<1A4
$

0A6/: b . 3456.O4. 3: :2.48H: .409: A:;131. <:0 ;16:061
.6;<84. 3:. ;4;70:. <04.42A4. 517423: 1: 04.6342A4 : N:A: 34
34.4;<1A4

0A6/:$b .34867401?O4.3::2.48H:!4.A:0.409:A:;131.<:0
;16:06134N:A:.3:.<04.42A4.

0A6/:bN:A:N42563:5:2.A10K341A1@=123:E:0.:8656A13:<:0
.4=<0:81A:04.40K<:04.A40436/63:
0A # k a : 51.: 34 4;<1A4 21. 34867401?O4. 51740K 1:
04.6342A43::2.48H:!4.A:03::N:A:34@=1863134

PDE de 2014
0A#<812:341<8651?9:34045=0.:.E62125460:.3:
34N40K .40 1<0:N13: <48: :2.48H: !4.A:0 3: =23: 4 4251;62H13:
12=18;42A4124Q:V846:0?1;42AK061<1011<0:N1?9:31J;101=2656<18
Dec. nº 57.547/16 9:17:031:A4;1
:2A4G

$+

APÊNDICE D - SISTEMATIZAÇÃO DA COMPOSIÇÃO DO CG-FUNDURB

PDE de 2002 9:17:031:A4;1
0A&o:2.48H:!4.A:03:=23:344.42N:8N6;42A:0712:X
.40K<04.6363:<48:4504AK06:=2656<18348124P1;42A:0712:
4A40K1.4/=62A45:;<:.6?9:G
X B=;D 04<04.42A12A4 31 4504A1061 34 6212?1. 4
4.42N:8N6;42A:
5:2F;65:C
XB=;D04<04.42A12A4314504A1061=2656<183:403443:46:
;7642A4C
X B=;D 04<04.42A12A4 31 4504A1061 31 '176A1?9: 4
4.42N:8N6;42A:0712:C
XB=;D04<04.42A12A4314504A1061342E01X
.A0=A=0107121C
XB=;D04<04.42A12A4314504A10613:!:N402:=2656<18C
XB=;D04<04.42A12A4314504A1061=2656<1831.=7<04E46A=01.C
B 504.542A16256.:X <48:#+W$D
X+B:6A:D04<04.42A12A4.31.=7<04E46A=01..423:=;345131
=;131.150:004/6O4.:0A4:0A44.A442A0:4.A44.A4=8
4=82:.A40;:.3:36.<:.A:3:k a34.A410A6/:C
Dec. nº43.231/03
XB=;D04<04.42A12A431
;<04.1=2656<183407126>1?9:X

C
XB=;D04<04.42A12A431:;<12H614A0:<:86A12134'176A1?9:
349:1=8:X' C
XB=;D04<04.42A12A43::2.48H:=2656<1834:8SA65107121C
X+B:6A:D04<04.42A12A4.3442A63134.31.:564313456N68.423:=;
34 5131 =;1 31. 150:004/6O4. :0A4 :0A4 4.A4 42A0: 4.A4
4.A4=84=82:.A40;:.3:36.<:.A:2:k a34.A410A6/:
k o <10A656<1?9: 2: :2.48H: 29: .40K 04;=240131 .423:
<:0M;5:2.6340131340484N12A462A404..4<L7865:
ko.;4;70:.1@=418=34;:.6256.:.13:p51<=Ap34.A4
10A6/: 4 04.<45A6N:. .=<842A4. .409: 34.6/213:. <481 04E46A1 ;43612A4
623651?9:3:.I0/9:.442A63134.;4256:213:.
ko;1231A:3:.;4;70:.3::2.48H:!4.A:0.40K343:6.12:.
13;6A631045:23=?9:<:0=;1L2651N4>A423:<:0A40;:E62182:;KQ6;::
AM0;62:3:;1231A:3:H4E43:
Q45=A6N:
0Aap51<=Ap3:10A6/:&a3:4504A:2a#3434;16:34
$$<1..11N6/:0101504.563:3:6256.:X 5:;1.4/=62A40431?9:G
Dec. nº 43.811/03 p 0A &aX X B=;D 04<04.42A12A4 31 4504A1061 =2656<18 34
012.<:0A4.Cp BD
0A a
.A4 34504A: 42A010K 4; N6/:0 21 31A1 34 .=1 <=78651?9:
$"

1:. 34 .4A4;70: 34
$$ #%$a 31 E=231?9: 34 9:
1=8:
Lei nº 13.885/04 9:17:031:A4;1
0A &a :2.48H: !4.A:0 3: .40K 5:;<:.A: <48:.
.4/=62A4.;4;70:.G
4504AK06:=2656<18348124P1;42A:@=4:<04.6360KC
4504AK06:=2656<18346212?1.C
4504AK06:=2656<183:403443:46: ;7642A4C
4504AK06:=2656<1834'176A1?9:C
4504AK06:=2656<18342E01X
.A0=A=01071214701.C
4504AK06:3:!:N402:=2656<18C
4504AK06:=2656<1834::03421?9:31.=7<04E46A=01.C
4504AK06:=2656<1834 012.<:0A4.C
Dec. nº 47.661/06 B3:6.D04<04.42A12A4.3::2.48H:=2656<1834:8SA65107121
X
ka101:51.:346;<:..676863134345:;<10456;42A:V.04=26O4.
3::2.48H:!4.A:03::.4504AK06:.=2656<16.;4256:213:.
2:. 6256.:. 1 3: p51<=Ap 34.A4 10A6/: <:3409: 34.6/210 : 04.<45A6N:
.=<842A45=P1623651?9:34N40K045160.:704:4504AK06:X 3P=2A::=:H4E4
34!17624A4311.A1
k a <10A656<1?9: 2: :2.48H: 29: .40K 04;=240131 .423:
<:0M;5:2.6340131340484N12A462A404..4<L7865:
ka;1231A:3:.;4;70:.1@=418=34:6256.:3::2.48H:
!4.A:0.40K34=;12:13;6A6311045:23=?9:<:0=;1L2651N4>
0Aa10A6/:&a3:4504A:2a# &&34&34.4A4;70:34$$&
@=404/=81;42A1:=23:344.42N:8N6;42A:0712:X18A4013:
<48:4504A:2a# &++34#34.4A4;70:34$$&<1..11N6/:0105:;1
.4/=62A4 0431?9:G
p 0A &a :2.48H: !4.A:0 3: .40K 5:;<:.A: <48:. .4/=62A4.
;4;70:.G
X4504AK06:=2656<18348124P1;42A:@=4:<04.6360KC
Decreto nº 50.101/08 X4504AK06:=2656<18346212?1.C
X4504AK06:=2656<183:403443:46: ;7642A4C
X4504AK06:=2656<1834'176A1?9:C
X4504AK06:=2656<18342E01X
.A0=A=01071214701.C
X4504AK06:3:!:N402:=2656<18C
X4504AK06:=2656<1834::03421?9:31.=7<04E46A=01.C
X4504AK06:=2656<1834 012.<:0A4.C
X4504AK06:=2656<1834=8A=01C
$

XBA0U.D04<04.42A12A4.3::2.48H:=2656<1834:8SA65107121
X
ka
;51.:346;<:..676863134345:;<10456;42A:V.04=26O4.3:
:2.48H:!4.A:03::.4504AK06:.=2656<16.;4256:213:.2:.
6256.:.13:p51<=Ap34.A410A6/:<:3409:34.6/210:04.<45A6N:.=<842A4
5=P1 623651?9: 34N40K 045160 .:704 : 4504AK06:X 3P=2A: := : H4E4 34
!17624A4311.A1
ka <10A656<1?9:2::2.48H:29:.40K04;=240131.423:<:0M;
5:2.6340131340484N12A462A404..4<L7865:
ka;1231A:3:.;4;70:.1@=418=34:6256.:3::2.48H:
!4.A:0.40K34B3:6.D12:.13;6A6311045:23=?9:<:0=;1L2651N4>

0Aa.10A6/:.a4&a3:4504A:2a# &&34&34.4A4;70:34
$$&@=404/=81;42A1:=23:344.42N:8N6;42A:0712: X
<1..1;1N6/:0105:;1.4/=62A40431?9:GBD
0A &a :2.48H: !4.A:0 3: .40K 5:;<:.A: <48:.
.4/=62A4.;4;70:.G
X4504AK06:=2656<18344.42N:8N6;42A:0712:@=4:<04.6360KC
X4504AK06:=2656<18348124P1;42A:C
X4504AK06:=2656<18346212?1.C
X4504AK06:=2656<183:403443:46: ;7642A4C
X4504AK06:=2656<1834'176A1?9:C
X4504AK06:=2656<18342E014.A0=A=01071214701.C
X4504AK06:3:!:N402:=2656<18C
X4504AK06:=2656<1834::03421?9:31.=7<04E46A=01.C
X4504AK06:=2656<1834 012.<:0A4.C
X4504AK06:=2656<1834=8A=01C
XBA0U.D04<04.42A12A4.3::2.48H:=2656<1834:8SA65107121
X
ka
;51.:346;<:..676863134345:;<10456;42A:V.04=26O4.3:
:2.48H:!4.A:03::.4504AK06:.=2656<16.;4256:213:.2:.
6256.:.13:p51<=Ap34.A410A6/:<:3409:34.6/210:04.<45A6N:.=<842A4
5=P1 623651?9: 34N40K 045160 .:704 : 4504AK06:X 3P=2A: := : H4E4 34
!17624A4311.A1
k a <10A656<1?9: 2: :2.48H: 29: .40K 04;=240131 .423:
<:0M;5:2.6340131340484N12A462A404..4<L7865:
k a ;1231A: 3:. ;4;70:. 1 @=4 18=34 : 6256.: 3: ]51<=A^
34.A410A6/:.40K34B3:6.D12:.13;6A6311045:23=?9:<:0=;1L2651N4>
0A6/:aX:2.48H:!4.A:03:=23:344.42N:8N6;42A:0712:
Resolução 002/11
bA40K1.4/=62A45:;<:.6?9:G

X4504AK06:=2656<18344.42N:8N6;42A:0712:@=4:<04.6360KC
X4504AK06:=2656<18348124P1;42A:0?1;42A:4!4.A9:C
X4504AK06:=2656<18346212?1.C
X4504AK06:=2656<183:403443:46: ;7642A4C
X4504AK06:=2656<1834'176A1?9:C
X4504AK06:=2656<18342E014.A0=A=01071214701.C
X4504AK06:3:!:N402:=2656<18C
X4504AK06:=2656<1834::03421?9:31.=7<04E46A=01.C
X4504AK06:=2656<1834 012.<:0A4.C
X4504AK06:=2656<1834=8A=01C
XBA0U.D04<04.42A12A4.3::2.48H:=2656<1834:8SA65107121
bBD
ka
;51.:346;<:..676863134345:;<10456;42A:V.04=26O4.3:
:2.48H:!4.A:03::.4504AK06:.=2656<16.;4256:213:.2:.
6256.:.13:]51<=A^34.A410A6/:<:3409:34.6/210:04.<45A6N:.=<842A4
5=P1 623651?9: 34N40K045160 .:704 : 4504AK06:X 3P=2A: := : H4E4 34
!17624A4311.A1
k a <10A656<1?9: 2: :2.48H: 29: .40K 04;=240131 .423:
<:0M;5:2.6340131340484N12A462A404..4<L7865:
k a ;1231A: 3:. ;4;70:. 1 @=4 18=34 : 6256.: 3: ]51<=A^
34.A410A6/:.40K34B3:6.D12:.13;6A6311045:23=?9:<:0=;1L2651N4>
0A # =23: 34 4.42N:8N6;42A: 0712: X .40K
13;626.A013: <:0 =; :2.48H: !4.A:0 <106AK06: 5:;<:.A: <:0 $ B34>D
;4;70:. A6A=8104. 4 04.<45A6N:. .=<842A4. 1..6; 34E6263:.G X % B5625:D
04<04.42A12A4.34I0/9:.3::340L7865:CX%B5625:D04<04.42A12A4.31
.:5643134 56N68 :06=23:. 3:. .4/=62A4. :2.48H:. =2656<16.G 1D B3:6.D
04<04.42A12A4.3::2.48H:=2656<1834:8SA65107121XC7DB=;D
04<04.42A12A4 3: :2.48H: =2656<18 34 '176A1?9: X 'C 5D B=;D
PDE de 2014 04<04.42A12A43::2.48H:=2656<1834 0J2.6A:4 012.<:0A4X C3D
B=;D 04<04.42A12A4 3: :2.48H: =2656<18 34 46: ;7642A4 4
4.42N:8N6;42A:=.A42AKN48X

k a 04E46A: 6236510K 1 04.63U2561 3: :2.48H: !4.A:0 3:

0A # k a ;1231A: 3:. 5:2.48H460:. 4846A:. .40K 34 B3:6.D
12:..423:<40;6A6311<421.=;1045:23=?9:
0A #a 04.63U2561 .40K 4Q405631 <48: 4504AK06: =2656<18 34
4.42N:8N6;42A:0712:
Dec. nº 57.547/16
10K/01E:L265:
;51.:346;<:..676863134345:;<10456;42A:V.
04=26O4. : 4504AK06: =2656<18 34 4.42N:8N6;42A: 0712: <:340K

34.6/210 5:;: .=<842A4 : 4504AK06:X 3P=2A: := : H4E4 34 !17624A4 31
1.A1

0A &a 842K06: .40K 5:;<:.A: 34 E:0;1 <106AK061 <:0 $ B34>D
;4;70:.5:;6/=182L;40:34.=<842A4.21.4/=62A45:2E:0;63134G
X%B5625:D04<04.42A12A4.3::340L7865:1..6;34E6263:.G
1D:4504AK06:=2656<18344.42N:8N6;42A:0712:C
7D:4504AK06:3:!:N402:=2656<18C
5D : 4504AK06: =2656<18 34 6212?1. 4 4.42N:8N6;42A:

5:2F;65:C
3D:4504AK06:=2656<18342E014.A0=A=01071214701.C
4D:4504AK06:=2656<1834'176A1?9:C
X % B5625:D 04<04.42A12A4. 31 .:5643134 56N68 :06=23:. 3:.
.4/=62A4.5:84/613:.G
1DB3:6.D3::2.48H:=2656<1834:8SA65107121C
7DB=;D3::2.48H:=2656<1834'176A1?9:C
5DB=;D3::2.48H:=2656<1834 0J2.6A:4 012.<:0A4C
3D B=;D 3: :2.48H: 3: 46: ;7642A4 4 4.42N:8N6;42A:
=.A42AKN48
ka 34E626?9:3:.04<04.42A12A4.5:2.A12A4.3:6256.:3:]51<=A^
34.A410A6/::7.40N10K1.2:0;1.34<106313434/U240:<04N6.A1.<48146
2a%"#&343434>4;70:34$4<48:4504A:2a%&$3434
;10?:34$%
k a <10A656<1?9: 2: :2.48H: .40K 5:2.6340131 34 0484N12A4
62A404..4<L7865:N43131<:0M;.=104;=2401?9:1@=18@=40ASA=8:
k a 1.: :. 4504AK06:. =2656<16. 29: <:..1; 5:;<104540 V.
04=26O4. 34N409: 34.6/2105:;:.4=..=<842A4.: 04.<45A6N: 4504AK06:X
3P=2A::=H4E434!17624A4

0A+a:2.6340123::36.<:.A:2:10A6/: 6256.:18S241]3^
31462a% &#34 34;16:34$42:10A6/:+3:4504A:2a%&&+
34 34 P=8H: 34 $% 1 4504A1061
Q45=A6N1 3: :2.48H: !4.A:0 .40K
4Q405631 <481 4504A1061
Q45=A6N1 3:. :0/9:. :84/613:. X
31
4504A1061=2656<18344.42N:8N6;42A:=0712:bBD
:2A4G

APÊNDICE E - SISTEMATIZAÇÃO DA DISCIPLINA DA ORGANIZAÇÃO DO CG-

FUNDURB

PDE de 2002 9:17:031:A4;1
0A &a k %o :2.48H: 04=260X.4XK :03621061;42A4 1 5131 .46.
;4.4.44QA01:03621061;42A4.4;<04@=45:2N:513:<48:.4=04.6342A4
k&oE=256:21;42A:31.04=26O4.3::2.48H:.40K36.56<86213:
<48:4/6;42A:2A402:1.401<0:N13:<:0.4=.;4;70:.

0A "o .4504A1061 4Q45=A6N1 3: :2.48H: !4.A:0 3: =23: 34
4.42N:8N6;42A: 0712: .40K 4Q405631 <481 4504A1061 =2656<18 34
8124P1;42A: 0712: @=4 E:024540K : 1<:6: AM5265: 4 13;626.A01A6N:
2454..K06:517423:X8H4G
Dec. nº43.231/03
X4Q45=A101.E=2?O4.341<:6:AM5265:413;626.A01A6N:1::2.48H:
!4.A:0C
X 1 4817:01?9: 31 <0:<:.A1 3: <812: 34 1<8651?9: 34 045=0.:.
E62125460:.1.401<045613112=18;42A4<48::2.48H:!4.A:0:7.40N13::
36.<:.A:2:10A6/:%o34.A434504A:45:2.6340131.1.34;1231.3:.I0/9:.
5:;<4A42A4.04.<:2.KN46.<:0.4=5=;<06;42A:
X 1 <=78651?9: 2: 6K06: E65618 3: =265S<6: 31. 3456.O4.
<1045404.;126E4.A1?O4.412K86.4.3:.<0:/01;1.4<0:P4A:.1<:613:.<48:
=23:
Dec. nº 43.811/03 9:17:031:A4;1
Lei nº 13.885/04 9:17:031:A4;1
0A &a k %a :2.48H: 04=260X.4XK :03621061;42A4 1 5131 .46.
;4.4.44QA01:03621061;42A4.4;<04@=45:2N:513:<48:.4=04.6342A4
k&aE=256:21;42A:31.04=26O4.3::2.48H:.40K36.56<86213:
<48:4/6;42A:2A402:1.401<0:N13:<:0.4=.;4;70:.

0A aka .;126E4.A1?O4.434867401?O4.3::2.48H:!4.A:03:
.409:<=7865131.2:6K06:E656183163134
Dec. nº 47.661/06
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APÊNDICE F - SISTEMATIZAÇÃO DAS REGRAS SOBRE O INVESTIMENTO

DOS RECURSOS

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Dec. nº 43.811/03 9:17:031:A4;1
Lei nº 13.885/04 9:17:031:A4;1
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Decreto nº 50.101/08 9:17:031:A4;1

Decreto nº 51.437/10 9:17:031:A4;1
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UNIVERSIDADE DE SÃO PAULO

ESCOLA DE ARTES, CIÊNCIAS E HUMANIDADES

DÉBORA GAMBETTA PAIM

A instrumentalização da política urbana no município de São Paulo: uma

A instrumentalização da política urbana no município de São Paulo: uma

Dissertação apresentada à Escola de

Versão corrigida contendo as alterações

Paim, Débora Gambetta

Dissertação (Mestrado em Ciências) - Programa de Pós-

1. Políticas públicas - São Paulo (SP). 2. Política urbana - São

CDD 22.ed. – 320.60981611

Dissertação apresentada à Escola de

Aprovado em: 30 / 04 / 2019

Profa. Dra. Luciana de Oliveira Instituição: FAU-USP

Prof. Dr. Fernando de Mello Instituição: Externo

Profa. Dra. Renata Mirandola Bichir Instituição: EACH-USP

Escrever é um ato solitário. Mas a realização de uma pesquisa não acontece

PAIM, Débora Gambetta Paim. A instrumentalização da política urbana no

A presente pesquisa tem como objetivo compreender como as regras formais e

Palavras-chave: Política urbana. Desenvolvimento Urbano. Neoinstitucionalismo.

PAIM, Débora Gambetta. The instrumentalization of urban policy in the

Keywords: Urban policy. Urban Development. New Institutionalism. Public Policy

Figura 1 – Estrutura Simplificada do CG-FUNDURB ............................................ 58

Tabela 1 – Comparação dos gastos do FUNDURB por secretaria com os

Gráfico 1 – Percentual de gastos do FUNDURB em relação ao total de

Quadro 1 – Modelo Analítico da pesquisa ...........................................................49

CADES Conselho Municipal de Meio Ambiente e Desenvolvimento

APÊNDICE E – SISTEMATIZAÇÃO DA DISCIPLINA DA

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5 ARENAS DECISÓRIAS, ATORES E QUESTÕES EM DISPUTA

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