Política nacional de atenção às pessoas em situação de rua e suas interseccionalidades (POPRUAJUD): uma análise da trajetória institucional do CNJ à cidade de Fortaleza

Abstract

This dissertation aims to analyze the institutional trajectory of the National Judicial Policy for the Care of Homeless People and its Intersectionalities (PopRuaJud), from its formulation within the National Council of Justice to its implementation in the municipality of Fortaleza/CE, in light of the Deep Evaluation approach proposed by Rodrigues (2008). The specific objectives are: (i) to understand the political, social, and institutional context that led to the emergence of the policy; (ii) to examine the processes, actors, and institutional arrangements involved in its implementation at the local level; and (iii) to identify the narratives, disputes, and interpretations mobilized in its construction, based on the analysis of a local seminar and conducted interviews. From a methodological perspective, this study adopts a qualitative approach, with an exploratory-descriptive nature, grounded in the Deep Evaluation framework. The research was developed through the articulation of bibliographic research, documentary analysis, and field research. The documentary analysis focused on regulations, reports, and institutional records produced by the National Council of Justice and local institutions between 2020 and 2025. The field research involved semi-structured interviews with actors linked to the justice system, social movements, and participants in policy-related actions. The data were analyzed using content analysis, as proposed by Bardin (2009), enabling the identification of analytical categories related to meanings, disputes, and contradictions present in the policy implementation process. The results show, regarding the first objective, that the emergence of PopRuaJud is directly associated with the worsening of social inequalities during the Covid-19 pandemic, as well as with the intensification of the judicialization of public policies in response to the insufficiency of traditional state actions. Regarding the second objective, the analysis indicates that the policy implementation at the local level occurs through interinstitutional arrangements that are still under consolidation, marked by efforts of articulation among the Judiciary, the Executive, and civil society, but also by structural limitations related to fragmented public policies, dependence on budgetary resources, and institutional constraints of the justice system itself. Concerning the third objective, the interviews and the seminar analysis reveal the coexistence of different narratives about the policy, highlighting convergences around the expansion of access to justice, as well as divergences regarding the role of the Judiciary, the limits of judicialization, and the most appropriate strategies to address homelessness. It is concluded that PopRuaJud is a policy in the process of construction, which expresses advances in the visibility of the demands of the homeless population, while also revealing tensions inherent to its institutionalization within the Judiciary. By analyzing its trajectory, this research contributes to the understanding of the potentialities and limits of judicial action in the promotion of social rights, as well as to the improvement of public policies aimed at guaranteeing access to justice in contexts of deep social inequality.