Quando o título não basta: avaliação do Reurbfor no Conjunto Palmeiras e os limites da regularização fundiária de interesse social em Fortaleza-CE

Abstract

This study's central objective is to qualitatively evaluate Fortaleza's Urban Land Regularization Program (ReurbFor), governed by Complementary Law No. 334/2022. It draws on empirical data from the Conjunto Palmeiras neighborhood, focusing on the tensions between the legal frameworks of housing policy and the perceptions of various social actors regarding land tenure regularization. The research was conducted from 2022 to 2025, engaging with the historical and institutional precedents of Fortaleza's Municipal Social Housing Policy (Municipal Law No. 8.918/2004). Guided by an in-depth evaluation perspective (Rodrigues, 2008), the study did not aim to quantify ReurbFor's effectiveness through indicators but rather to comprehend the social, cultural, and institutional dynamics permeating its implementation. Data collection involved bibliographic research, documentary analysis, and fieldwork, including photographic records and interviews with residents, community leaders, representatives from the Municipal Secretariat of Housing Development (HABITAFOR), and researchers from the Housing Studies Laboratory at the Federal University of Ceará (LEHAB/UFC), ensuring a multifaceted perspective. The primary findings indicate that, despite the program's initial implementation phase in Conjunto Palmeiras, there is a general perception that land regularization can strengthen families' permanence in the territory and pave the way for improved urban conditions and access to public services. However, the process also reveals significant tensions, such as institutional fragmentation, the slow pace of legal procedures, and the overburdening of local leaders acting as primary intermediaries with public authorities. Furthermore, the study suggests that ReurbFor's transformative potential tends to diminish when implemented without articulation with other structural policies, continuous political will, and effective social participation. Thus, this research does not intend to assert generalizable conclusions but rather to contribute reflections on ReurbFor's limits and possibilities as an urban policy, emphasizing the importance of a localized, dialogical, and integrated approach with other urban planning and justice initiatives. By incorporating the voices of directly involved individuals, the research sought to identify pathways for enhancing public land regularization policies in Fortaleza and other Brazilian cities, fostering more inclusive and equitable practices