Development
of the SENAI Post-Secondary Sector in Brazil
David N. Wilson
Ontario Institute for Studies in Education
University of Toronto
Abstract:
The development of non-formal
post-secondary institutions to train technicians and technologists by the
National Industrial Learning Service, SENAI, is examined and compared to the
formal university sector in Brazil. Two of the thirteen SENAI post-secondary
training centres received assistance from The Canadian International
Development Agency, which included both technical assistance from, and training
of Brazilian instructors at, universities and Colleges of Applied Arts and
Technology in Ontario and post-secondary institutions in Québec. SENAI is the
world’s oldest National Training Board and has augmented its practical training
systems since its creation in 1942. The development of post-secondary
technician and technologist training, plus a polyvalent model of research for
and assistance to industry, has been the latest addition to the SENAI system.
The post-secondary training centres compare favourably to single-purpose
faculdades isoladas among Brazilian private universities.
Introduction:
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his writer has previously
described the Brazilian National Industrial Learning Service, Serviço Nacional de Aprendizagem Industrial
(SENAI), which began in 1942, as the best national training system in the
world, as well as the oldest national training board (Wilson, 1993). During the
past decade SENAI has developed a post-secondary sector to complement its
training of apprentices at the post-primary level. This post-secondary sector
consists of thirteen Centros Nacionais de
Tecnológia (CENATEC). This article describes assistance from Canadian
International Development Agency (CIDA) to develop two of these centres for the
training of technicians and technologists.
Centro de Tecnológia Indústrial
(CETIND), located in Salvador, Bahia, trains chemical process and
instrumentation technologists for petrochemical industries. (Centro Regional de Tecnológia de Alimentos
(CERTA), the Regional Centre for Food Technology, located in Petrolina,
Pernambuco, trains biochemists and quality control technicians for the food
processing industries in the states of Pernambuco, Bahia, and other states of
Northeastern Brazil.
Post-Secondary
Education in Brazil
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he formal sector of
post-secondary education in Brazil has a longer history than the non-formal
non-governmental sector being developed by SENAI. In 1991, The UNESCO Centre
for Higher Education in Latin America reported that Brazil had 83 universities,
of which 52 were public and 31 private (Cresalc, 1991). In addition, a total of
788 non-university, post-secondary institutions were reported, of which 181
were public and 607 were private. The Brazilian Universities Council of
Presidents (CRUB), created in 1996, reports membership of 124 higher education
institutions, of which 37 are federal, 36 private, 28 confessional
(religious-sponsored) and 23 sponsored by state and municipal government.
Schwartzman
(1997) noted that “the most compelling characteristic of higher education in
Brazil has been its stasis” (p. 10). He claimed that “Brazilian institutions of
higher education have failed to keep pace with the country’s growing demand for
an educated work force” (p. 10). Since the early 1980s, enrolment has averaged
at 1.6 million university students, which has been “less than 10 percent of the
available age cohort” and “about two-thirds… are in private institutions” (p.
10).
According
to Schwarzman (1992), formal universities were transplanted to Brazil with the
Portuguese court in 1808 to escape Napoleon Bonaparte’s invasion of Portugal.
He reports that the development of federal and state universities, however,
only began in the 1930s and 1940s. Large-scale expansion of higher education in
Brazil took place during the 1960s. Haar (1997) noted that “postwar
modernization necessitated a system of higher learning to meet the manpower
requirements of economic growth, and the Brazilian middle-class – a product of
this socioeconomic transformation – demanded increased access to higher
schooling” (p. 57).
Public
universities in Brazil have “traditionally been free of charge, and are fully
maintained by the federal or state governments” (Schwartzman, 1992, p. 83).
However, in order to gain access to these universities, parents are obliged to
send their children to private feepaying secondary schools (Schwartzman, 1992),
as well as to cursinhos, or privately-owned and operated preparatory courses
for university entrance examinations (Haar, 1977). This restricts scarce
university places to the affluent classes. Private universities charge tuition
fees, but these are regulated by government and limited since the majority of
students are of lower socio-economic origin. Moreover, private institutions
focus on areas of study that do not require expensive equipment and teaching
materials and they hire only part-time teachers (Schwartzman, 1992). Many
private institutions are faculdades isoladas, or “single-purpose… institutions…
not connected with a larger institution” (Haar, 1977, p. 94). Haar decries the
“lack of horizontal linkages among higher educational institutions” and notes
that their growth “occurred in a haphazard fashion and without an effort towards
affiliation or merger” (p. 49).
Schwartzman
(1992) maintains that, until the expansionary period of the 1960s and the 1968
reform, Brazilian higher education was influenced by “the traditional
Napoleonic notion that higher education institutions were schools licensed by
the state to teach and certify for the established professions” (p. 85). He
also noted that the system of higher education was “formally unified along two
lines: one more traditional, related to the public regulation of the
professions; and the other, more modern, oriented towards the organization of
knowledge in academic disciplines” (p.85). The co-existence of these two
traditions is said to explain the contradictions, contrasts and differentiation
evident in both public and private post-secondary higher education in Brazil.
Schwartzman
(1992) also comments that “the challenge to Brazilian higher education as it
faces the turn of the millennium is whether universities will be able to
accommodate the country’s growing educational demands” (p. 85). An examination
of the new post-secondary institutions being developed by SENAI suggests that a
parallel path to post-secondary education may also assist with this needed
accommodation.
Background
to SENAI
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he 1937 Constitution of Brazil
stipulated that industrial and economic organizations should establish
apprenticeship programs in cooperation with the government. The National
Confederation of Industries (Confederação
Nacional da Indústria) created SENAI in January 1942 to prepare the human
resources required for the development of Brazilian industries. SENAI was
modelled upon the training system designed by Roberto Mange, a Swiss engineer
lecturing at the São Paulo Polytechnic, for the São Paulo State Railways in
1930. It was based upon German and Swiss apprentice-training models. SENAI is
organized at the national and state levels as a private, non-profit
organization financed by all industrial corporations with a tax of one percent
on all payrolls, collected for SENAI by the National Institute of Social
Security (INSS).
SENAI
initially developed industrial apprenticeship courses for the last four years
of ensino de primeiro grau, which is equivalent to primary and middle school.
SENAI Centros de Formação Profissional, or SENAI schools, have served 14-18
year-old dropouts from formal schools who might otherwise not have had access
to other forms of middle and secondary education. The core of the SENAI
instructional method is the seria metódica occupacionais, or Shopwork
Methodical Series. Prior to the augmentation of this method in 1972, it
consisted of (a) a task sheet, which
describes the operations inherent to a particular industrial task, based upon
task analyses (or what the trainee should do, (b) an operation sheet, which shows how to perform each operation; and
(c) a technological information sheet,
which describes the equipment and tools essential to the performance of each
operation. After 1974, the training system was supplemented by a complementary information sheet
explaining the why of each operation or set of operations in order to introduce
relevant theory into this practical training system. Trainees followed a
structured learning sequence that included (a) studying each task until mastery
was demonstrated; (b) development of a work plan for each operation or set of
operations; (c) demonstration by the instructor and application by the student
to demonstrate mastery; (d) performance of the actual task; and (e) evaluation
of trainee performance by the instructor (Wilson, 1991).
The
SENAI system continually added components to its training system over the
years, including academic education to attain secondary school equivalence, the
use of educational technology for demonstrations, development of self-paced,
individualized learning modules, and computer assisted-instruction. In
addition, SENAI developed other modes of occupational qualification and
upgrading/retraining courses to serve employees in industries by means of
on-the-job training, developed mobile training capabilities, and even operated
secondary technical schools under contract with several state ministries of
education, because their superior capabilities were recognized. However, these
innovations proved inadequate to face the technological modernization
necessitated by industrial change in response to the evolution of a global
trading economy, or globalisation.
Creation
of the SENAI Post-Secondary Sector
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he 1994 SENAI Strategic Plan
for the Restructuring of Models of SENAI Occupational Training noted the
following:
The
introduction of microelectronics in our work processes requires new capacities,
including a logical-abstract thinking capacity, which relates to this technical
base operating laterally from symbols and from scientific thought. The
diffusion of automation will be able to be much higher and requires a system of
occupational training for a labour force with a new profile: the capability to
solve new problems, ability to work in a cooperative mode, capacity of communication,
etc. (SENAI DN, 1995)
The
foundation for this fundamental re-direction of the SENAI system dates from the
upgrading of the SENAI Escola Tecnologica
da Indústria Química e Têxtil. This school was built in 1949 to train
workers for the textile and apparel industries as a SENAI CFP and became the Centro Tecnológico de Indústria Química e
Têxtil (CETIQT) in 1979. Courses in textiles, textile chemistry and apparel
were differentiated into two levels, a regular course of six semesters for primary
school graduates, and new courses at the post-secondary level of four semesters
for secondary school graduates. In addition, CETIQT offers qualification
courses in fashion design of five semesters for secondary school graduates and
a five-year textile engineering course in cooperation with Rio de Janeiro State
University. CETIQT also offers short continuing education courses to deliver
within industry, to update human resources. The new technological centre model
became polyvalent with the addition to the original teaching function of (a)
testing and applied research, (b) technical assistance to industry, and (c)
provision of technological information to industry.
The
SENAI post-secondary programs became known as Special Technical Courses during
the late 1980s and “were designed to meet… growing demand for higher qualified
personnel [i.e.] technicians who will be posted in middle management positions”
(SENAI DN, 1989, p. 27). These courses comprise “an intensive regime with eight
hours of classes daily with a duration of approximately one year at school plus
six months of practice at an industry” (p. 27). Intake of students consists of
high school graduates 18 years of age or over.
In 1989
there were fourteen Special Technical Courses, of which three were offered as
evening courses. The programs included ceramics, electronics, electrotechnical,
foundry, graphic arts, instrumentation, mechanics, metallurgy, paper and
cellulose, plastics, shoemaking, tanning and textiles. They were offered in the
States of Mato Grosso, Rio Grande do Sul, São Paulo and Rio de Janeiro.
Graduates were granted certificates as Technicians. By 1991, these programs had
been renamed Centros Tecnológicos
(CETEC) and SENAI began discussions of the technological modernization of its
training programs (Ministerio da Educação, 1991). These centres were
subsequently renamed CENATECs.
The
CIDA-SENAI Project
S |
ENAI received international
assistance for the development of curricula, training of instructors,
development of research and technical documentation capabilities, and
specialized equipment from Germany, France, Italy, Japan, The United Nations
Development Program (UNDP) and UNIDO at CENATECs. In 1990, SENAI commenced a
project under the Canada-Brazil Cooperation Program oriented towards the
improvement of human resource development and institutional strengthening,
particularly in the northeast of Brazil. The CIDA Human Resource Development
Sector Review, conducted in 1988, identified two important growth sectors in
this region of Brazil, the chemical process sector and the food processing
sector. The Review also recommended SENAI as the Brazilian partner institution
and the CIDE-Ryerson Corporation (CRC) as the Canadian partner institution. CRC
was a consortium which brought together Ryerson Polytechnic, now Ryerson
Polytechnic University, in Toronto and Le
Consortium Intercollégial de Développement en Éducation (CIDE), based in
Montréal. CIDE is itself a consortium, bringing together universities and Collèges d’enseignement générale et
professionelle (CEGEPs) in the province of Québec.
Two of the three
components of the CIDA-SENAI Project are the topic of this article: CETIND,
which was originally called Centro
Tecnológico de Processos Químicos e Instrumentação (CTPQ) and which received
assistance from Ryerson; and CERTA which received assistance from CIDE. The
overall project goal was to help improve productivity and output in the private
and public sectors, mainly in Northeast Brazil, by contributing to the
establishment of these two SENAI CENATEC centres. The purpose of assistance to
CETIND and CERTA was to strengthen the institutional capacity of SENAI through
support for the establishment of these centres.
CIDA
support consisted of the provision of specialized equipment, pilot plant
equipment, technical assistance personnel, and training of SENAI instructors in
Canada. SENAI contributions consisted of the provision of facilities, some
equipment, and support for CIDA technical assistance personnel. The total CIDA
contribution for three sub-projects was CD$8 million, phased between 1990 and
1996. CETIND received CD$3.8 million and CERTA received CD$1.8 million.
Both
CETIND and CERTA have the CENATEC polyvalent mandate, initially developed at
CETIQT, to (a) provide training and upgrading for industrial technicians; (b)
provide technical assistance to industry; (c) conduct co-operative research
with industry; and (d) disseminate information to small, medium and large
enterprises (Wilson & Strachan, 1993). However, both institutions differ
from CETIQT and many other CENATECs because they offer training at the
post-secondary technician and technologist levels, rather than offering both
CENATEC courses and traditional SENAI secondary-level courses.
Centro
de Tecnológia Indústrial
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TPQI was initially established
in temporary facilities, pending construction of permanent facilities by the
SENAI Regional Department in Bahia. Although these facilities were originally
planned for completion in February 1992, financial difficulties delayed their
completion until 1994. The initial intake of 36 students for the Chemical
Process two-year course was drawn from 18 to 20 year-old graduates of general
high schools. This initial intake was selected from among 200 sitting the
selection examination. The novelty of this course and of the institution
resulted in acceptance of students requiring substantial remediation in
mathematics and chemistry. However, by 1995 the CETIND reputation – and
probably its impressive new facilities – had generated applications from among
graduates of the best technical secondary schools in Bahia.
Thirty-three
of the initial chemistry course intake graduated in 1995 after completing their
stage, or industrial practice
component, of six months. By August, 23 had secured employment and the
remaining 10 were sponsored for an operators course at CETIND by the Companhia
Petroqúimico de Camaçari (CPC), the largest of the petrochemical industries.
Upon completion of this course, all were guaranteed employment at CPC.
Unfortunately,
due to a number of factors, diminished employment opportunities for CETIND
graduates in the petrochemical industries resulted in the difficult decision to
suspend intake to this course in 1994. Among these factors was the down turn in
the Brazilian economy, the privatization of petrochemical companies, the
resulting cancellation of the project doubling the Camaçari petrochemical
complex, and the ensuing down sizing of the industrial labour force. While the
original Human Resource Development study predicted strong demand for
laboratory analysis technicians and technologists, changed economic and labour
market conditions resulted in low demand for analysts and moderate demand for
chemical process operators.
The
SENAI-Bahia Regional Department and CETIND substituted in-service training of
chemical process and instrumentation technicians, under contractual
arrangements with several industries. In addition, courses on environmental
controls and waste water management were developed. These courses are designed
co-operatively by CETIND and industry. In 1995, CETIND had an intake of 30 for
the CPC Operators Course, 60 for an Operators Course for ALCAN aluminium, and
70 in a pulp and paper course for BASAL. In addition, CETIND established
one-and two-week short courses in Digital Process Control, Environmental
Management and Introduction to Quality Systems (Wilson, 1995b).
By
August 1995, these courses had increased in number to five and several
additional courses were under development. The equipment from the former SENAI
Instrumentation Training Centre at Camaçari, which was supposed to have been
moved in February 1992, was finally moved in April 1995 upon completion of the
last CETIND facilities. This enabled the Camaçari Instrumentation instructors
to move to CETIND and increased the range of available course offerings. CETIND
commenced its first evening course in electronics for employees of Petrobras,
the national petroleum company, in August 1995. This ten-month course was
designed co-operatively by CETIND and Petrobras. A five-month course for 30
operators was designed for Poliolefinas, another Camaçari petrochemical
company. Three small courses on the environment for 30 students each were
provided for EMBASA, the public water company for Salvador, in hydrology, water
pollution and anaerobic treatment (Wilson, 1995a).
Sixteen
CETIND instructors received training at universities and at Colleges of Applied
Arts and Technology in Ontario. Unfortunately, four CETIND instructors have
left for higher-paying positions in industry. SENAI-BA recently modified its
salary policy to retain the investment in trained personnel.
As
often happens on aid projects, the last minute addition of one component proved
to be one of the most successful outcomes of that project. At CETIND, this
component was the Multi-Media Production Unit, which produces state-of-the-art
CD-ROM training modules. Each time this writer visited CETIND during the past
three years it was observed that this “unit had seemed to have mastered new
levels of technological sophistication” on each visit (Wilson, 1995a). Their
latest multi-media package on the environment is equal to anything produced
anywhere in the world.
The
completion of CETIND facilities and commissioning of equipment took place in
1966, with the final installation of the remaining three pilot plants. In 1995,
CETIND undertook a strategic planning exercise to customize its polyvalent
role. This plan included achievement of financial self-sufficiency within five
years through the sale of training, research, information and multi-media
services (SENAI-CETIND, 1995). Attaining financial self-sufficiency was
compatible with developments, including strategic planning, at National SENAI
(SENAI-DN, 1995), since the future of the industrial levy finance system is
uncertain (R. R. deSouza, personal communication, August, 1995).
Post-project
institutional linkages have been developed with several of the Canadian
institutions involved in the CIDA-SENAI project, as well as with Brazilian
institutions, research centres, and organizations. In addition, CETIND has been
evaluated by CENATEC for certification, together with all SENAI CENATEC centres
(SENAI-DN, 1994). The CENATEC bronze medal certification, or Prémio Nacional da Qualidade (PNQ), is
based upon the U.S. Malcolm Baldridge National Quality Awards and the Demming
Prize in Japan (SENAI-DN, 1994).
Centro
Regional de Tecnológia de Alimentos
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ERTA commenced operations in
facilities donated by a federal technical school in Petrolina in 1992 with 12
students, selected from among 50 sitting the selection examination. Four of the
initial intake dropped out and the eight remaining completed their internship
in industries in 1993; six of the eight graduated. At the time of the mid-term
CIDA project evaluation in 1993, four of the eight trainees on stage were
already spoken for by employers in the industries where they were placed by
CERTA.
The
renovation of CERTA facilities encountered difficulties that continue to plague
the institution. CIDA technical assistance personnel functioned only in an
advisory capacity, since the renovations were financed by SENAI-Pernambuco.
However, these personnel did manage to rectify the inadequate ceiling height
for the pilot food processing plant before it was built. The industrial model
used to design CERTA laboratories, however, could not be changed to an
educational model. In addition, problems were encountered with equipment
purchased by SENAI from Brazilian suppliers, particularly the pilot food
processing plant. However, these equipment anomalies were eventually rectified
and CIDA added an automated control function to the pilot plant before the end
of the project.
By
1993, four CERTA instructors had completed training at universities and
research centres in Québec in microbiology, food technology and instructional
methods. Two received training in 1990-91 and two in 1991-92. To date, CIDA has
trained ten of the fifteen CERTA staff in Canada. A full-time director was
finally appointed in 1994, relieving the part-time founding director, who also
directed the SENAI CFP in Petrolina. Two CERTA Instructors who had trained in
Canada left for higher paying positions in industry. However, SENAI-PE has also
been able to modify its salary policies and this should contribute to the
retention of CERTA instructors.
CRC
fielded six technical assistance personnel from l’Institut de Technologie Agro-alimentaire (ITA) and other
institutions in Québec. The initial CERTA courses in microbiology, chemistry
and food processing technology were augmented in 1995 by courses on the
environment and on new capabilities in dairy, wine, beer and meat processing,
necessitated by the introduction of new agricultural products in the region.
In
1993, a second intake of 13 students was admitted, also selected from among 50
sitting the selection examination. One of the 13 dropped out and nine completed
their stage in industry. In 1994, the third CERTA intake expanded to 18
students, selected from among 98 sitting the selection examination.
The
polyvalent model, pioneered by CETIQT, has also played an important role at
CERTA. Although student enrolment was low, the greatest service performed by
CERTA has been its technical consulting services to small, medium and
large-scale food-processing industries in the region. The development of the
research capability at CERTA has been slower to attain, although several
successes have been achieved in 1995 in the processing of tomatoes, mangoes and
bananas. The technological information component at CERTA has also only
recently been implemented.
CERTA
is also engaged in the process of PNQ bronze certification, plus developing
post-project linkages with institutions in Brazil and Canada in food
technology, research and product development.
Conclusions
and Comparisons
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he development of new
institutions – and certainly new types of institutions – is a process fraught
with any number of problems, difficulties, stumbling blocks, and setbacks. The
success of these two projects is due, in large measure, to the professionalism
and dedication of both Canadians and Brazilians. One of this writer’s more
forceful recommendations to CIDA in the 1993 mid-term evaluation was that CIDA
should have appointed a project monitor from the outset of this high technology
transfer project, because of the “extremely fragile undertaking requiring
continuous monitoring and encouragement of the partners to meet deadlines
central to the realisation of project objectives” (Wilson, 1993, p. 25). CIDA’s
response was to offer this writer the opportunity to serve as project monitor
for the remaining two years of the project, an offer that was difficult to
refuse.
As
noted above, SENAI has consistently added components to its practical training
system since its creation in 1942. What impressed this writer the most about
SENAI was the integration of all of its system components. That is, curricula
were developed by task analyses undertaken in industry, training facilities
were planned on the basis of the curricula (which rarely occurs), equipment is also
planned on the basis of the curriculum, and supplies and consumable training
materials are ordered and delivered on a just-in-time basis in order to teach
the curricula. Every aspect of SENAI training is cross-referenced, with the
result that SENAI has become a model for replication in other nations. Further,
SENAI has developed its own instructor-training capabilities (Wilson, 1991). A
culture of constant adoption – and adaptation – has evolved within SENAI.
It is
this culture that is currently undergoing painful modernization as SENAI
develops its post-secondary sector. The highly centralized, didactic and
authoritarian approach that has characterized SENAI since its inception is
being changed to conform to the new realities in modernizing workplaces. Instead
of training workers capable of dutifully following orders, SENAI is now faced
with training knowledge workers at
the technician and technologist levels who must diagnose and solve production
problems, undertake sophisticated laboratory analyses, and use their knowledge
for innovation, rather than replication.
The
SENAI spirit of innovation and adaptation eventually has prevailed over the
hierarchical culture epitomized by the seria
metódica ocupaçonais. The strategic planning exercises have been
accompanied by the reform and decentralization of SENAI administration, and by
the development of even more competency-based curricula. As the CIDA Project
Director once noted, SENAI is being dragged kicking and screaming into the next
century.
As
noted above, CETIND and CERTA differ from most other SENAI CENATEC centres
because they offer training only at the post-secondary level. This is a
completely new departure for SENAI, which originally offered apprenticeship
training to primary school graduates and then in the 1980s added a
post-secondary component at several centres. This development resembles the
creation of technical colleges in Europe and North America from the 1930s
onwards. The training of technicians and technologists to accompany
technological modernization in industry appears to be a development concomitant
with the globalization of trade and industry which has taken place during the
past decade.
While
the range of courses and the enrolment at these two new centres is small, and
it is likely that demand for graduates might soon exceed CERTA capacity, the
adoption of the CETIQT polyvalent model of service to industry appears to also
be comparable to the development of post-secondary technical colleges in
Europe, Japan and North America. The compatibility of this polyvalent approach
to practices at Ontario Colleges of Applied Arts and Technology, Ryerson
Polytechnic University and Québec CEGEPs suggests that, even if the CETIQT
model had not existed, the CRC-CIDA project would have insisted upon the
inclusion of this vital project component.
One
additional serendipitous benefit of the development of CETIND and CERTA has
been the interest raised at universities in both Salvador and Petrolina. Since
the formal public universities have been impoverished by decades of rampant
inflation and under funding, neighbouring post-secondary institutions have
expressed interest in gaining access to the CETIND and CERTA laboratory
facilities. This opening for co-operation between formal and non-formal
post-secondary institutions can also be compared to current articulation
initiatives between Ontario Colleges of Applied Arts and Technology and public
universities.
Although
this writer thought little of its import at the time, considerable use has been
made of one quotation obtained in Israel, during a study of technological
education in 1990. The Director-General of the Israel Ministry of Education
noted that they were “designing an educational system to fight the economic
wars of the next century”. It is clear that the metamorphosis of SENAI is also
creating a technological education infrastructure to facilitate participation
in the evolving global economy.
The
opportunity provided by this writer’s participation in these projects,
initially as a formative evaluator, and then as Project Monitor has enabled the
study of technology transfer that SENAI has experienced, as well as its
modernization. This writer has recently written that monitoring constitutes a
valuable addition to the educational planning process. In addition, insights
from the study of the SENAI projects were used in a policy paper on the reform
of vocational education and training in Latin America (for Inter-American
Dialogue). Specifically, these insights suggest that the latest policy
direction in several Latin American nations is the upward differentiation of
occupational training to a post-secondary level. SENAI has pioneered this new
policy direction and it appears that Chile and other nations are not far
behind.
Both
Schwartzman (1997) and Haar (1977) have characterized Brazilian formal higher
education institutions as ‘a peculiar project of modernization from above’.
Haar has described the development and planning of post-secondary education in
Brazil as having been ‘disjointed incrementalism’. These characterizations are
expected to become even more complex due to the coexistence of the traditional
focus upon professions and the modern focus upon academic disciplines.
Apparently, both approaches have influenced modernization from above and the
disjointed incrementalism that characterizes the post-secondary planning
process.
The
planning process adopted by SENAI for the creation of its CENATEC centres
appears to differ markedly from this haphazard public post-secondary sector
planning and development. Haar (1977) contrasts the long-standing Brazilian
commitment to central planning with the fact that these “plans have often been
useless and dysfunctional because of low performance capabilities and poor
central direction within the government bureaucracy”. He characterized the
federal Ministry of Education and Culture as “‘a massive, unmanageable
bureaucracy’” in which coordination and communication were very poor and
productivity was low”. In marked contrast, the SENAI national and state
capability to translate their central plans into efficient training and
educational institutions has been the result of a more viable administrative
infrastructure within SENAI than within the public sector.
In
another sense, the SENAI CENATEC centres resemble private universities, or faculdades isoladas, more than they
resemble federal or state public universities, since both CETIND and CERTA are
single-purpose institutions. Moreover, the SENAI centres appear to conform to
the traditional approach of the regulation of professions and not to the modern
approach of academic disciplinary organization.
Finally,
it was noted that formal higher education “was traditionally the channel by
which a social élite educated and reproduced itself within a highly stratified,
regionally unbalanced, and unequally developed society”. Although the
development of the SENAI post-secondary sector may also be characterized as
modernization from above it does appear feasible to conclude that the SENAI
history of enabling trainees from lower socioeconomic origins to have access to
education and training may redress such inequities.
In view
of the unsatisfied demand for access to post-secondary education in Brazil, it
appears reasonable to conclude that the entry of SENAI in the provision of
post-secondary education will address unmet demand for access to technician and
technologist level education and contribute to improvement in the overall
quality of Brazilian post-secondary education.
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(1991). Visión Cuantitativa de la
Educación Superior en América Latina y el Caribe. Caracas: UNESCO CRESALC.
Haar, J. (1977). The
politics of higher education in Brazil. New York: Praeger.
Ministério de Educação (1991). A educação tecnológica no Brasil. Rio de Janeiro: Secretaria
Nacional de Educação Tecnológica.
Schwartzman, S. (1992). Brazil: Higher education and society. In
B. R. Clark & G. R. Neave (Eds.), The
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