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Book manuscript
Julio-Diciembre 2015
Vol. 5 No. 2
Interacción y Perspectiva =
Dep. Legal ppi
201002Z43506
Interacción y Perspectiva =
Dep. Legal ppi
201002Z43506
Revista de Trabajo Social =
ISSN 2244-80=
8X
Vol. 8 No 1
pp. 11-29 =
Copyright © 2018
Enero-Junio
ARTÍCULO DE INVESTIGACIÓN
Competencias Profesionales del
Trabajador Social para la Gestión Territorial: Aproximación exploratoria de=
sde
los planes de estudio de Pre Grado
Christian Quinteros Flores* =
p>
Resumen
Pareciera ser que la política pública en Chile
avanza a pasos agigantados a la concepción del territorio como un enfoque c=
onceptual
y metodológico de intervención social para la focalización de los recursos.=
De
esta manera, la oferta programática de programas de inversión social hoy de=
ja
atrás concepciones economicistas del desarrollo local y migran hacia marcos
conceptuales que relevan el concepto de territorialidad como factor que
delimita este nuevo objeto. Sin embargo, la gestión del territorio ha sido =
un
campo donde disciplinas como la arquitectura o la geografía han ejercido ci=
erto
monopolio disciplinar amparado en prácticas históricas e institucionales de
larga data y donde la participación de nuevas áreas profesionales es evalua=
da
con cierta cautela. Este estudio pretende identificar mediante el análisis
exploratorio de los planes de estudio actuales de los programas de Trabajo
Social de pre grado en Chile, las asignaturas tradicionales y emergentes que
potencialmente pueden contribuir a fortalecer la participación de este
profesional de las ciencias sociales en los nuevos desafíos de la gobernanz=
a y
la gestión territorial.
Palabras claves: Gestión del Territorio; Gobernanza; Competencias
profesionales; Trabajo Social.
Correo: cquinterosflores@gmail.com
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o:p>
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Recibido: 21/09/17 Aceptado: 14/12/17
=
* Trabajador Social Universidad de Valparaíso.
Magister en Ciencia Política Universidad de Chile. Doctorando en Ordenamien=
to
Territorial y Desarrollo Sostenible Universidad Nacional de Cuyo Argentina.=
Académico
Escuela de Gobierno y Gestión Pública Universidad de Chile.
Abstract =
Professional competencies of the Social worker for
Territorial Management: Exploratory approach from the pre-degree study plan=
s
It would =
seem
that public policy in Chile is advancing by leaps and bounds to the concept=
ion
of the territory as a conceptual and methodological approach of social
intervention for the targeting of resources. In this way, the programmatic
offer of social investment programs today leaves behind economist conceptio=
ns
of local development and migrate towards conceptual frameworks that relieve=
the
concept of territoriality as a factor that delimits this new object. Howeve=
r,
the management of the territory has been a field where disciplines such as
architecture or geography have exercised a certain disciplinary monopoly ba=
sed
on historical and institutional practices of long standing and where the
participation of new professional areas is evaluated with some caution. This
study aims to identify, through the analysis of current curricula of pre-de=
gree
Social Work programs in Chile, traditional and emerging subjects that can
potentially contribute to strengthening the participation of this social
science professional in the new challenges of governance and territorial
management.
Keywords:=
Territori=
al
Management; Governance; Professional Competences; Social Work. =
span>
Introducción=
Tal como señala Calderón (2012), la gestión =
del
territorio ha sido una preocupación fundamental de arquitectos y urbanistas=
en
la mayoría de los casos con bajo nivel de conocimiento de metodologías de
intervención para la gestión territorial factor que ha reducido las
posibilidades de optimización de la intervención social de este tipo de
profesionales. Hoy por ejemplo, en el área del ordenamiento territorial y su
gestión se requiere de profesionales que sean capaces no solo de regular
técnicamente el uso del espacio sino también de identificar en el marco de =
la
gobernanza o el buen gobierno a los actores sociales a través de una adecua=
da
lectura e interpretación de sus conflictos territoriales potenciales o
actuales. La elaboración de los planes reguladores o sus procesos de
actualización involucran la mayoría de las veces a actores sociales con
asimetrías de información y de poder, donde la adecuada canalización de
intereses no cuenta o dispone de procesos institucionales estandarizados y
reconocidos y más bien responden a procesos de gestión comunal desarticulad=
os y
desfasados en el tiempo donde no existe seguridad si los consensos o acuerd=
os
son democráticos y generan sostenibilidad social.
La complejid=
ad
de la planificación Territorial
No cabe duda que el desarrollo territorial
resulta cada vez más complejo. En el nuevo paradigma del desarrollo sosteni=
ble,
la incorporación de la ciudadanía en el control de los recursos públicos y =
en
las decisiones locales es sin duda un imperativo social que exige el cumpli=
miento
de nuevos estándares de gobernabilidad en un estado modernizado. La discusi=
ón
de un plan regulador por ejemplo –principal instrumento de gestión municipa=
l- y
donde se define el área de crecimiento
de una ciudad, o las posibilidades de expansión urbana o las áreas de
uso industrial del suelo, debiera convocar a los distintos actores comunales
con legitimidad representativa. Sin embargo, la evidencia indica que al no
existir sistematización de estos procesos, resulta difícil asegurar que las
demandas y posiciones de los actores resulten satisfactorias. De esta maner=
a un
plan regulador puede ser definido por la presión social de un determinado
sector en desmedro de otro con baja representación en el momento de la
discusión. Este es solo un ejemplo de gestión territorial con posibilidades=
de
incorporación de nuevos profesionales.
Veamos otro ejemplo. Dado el cambio climátic=
o,
las posibilidades de que nuestra región experimente nuevas catástrofes
naturales es un hecho cada vez más posible. Sin embargo, la autoridad técni=
ca -
política sigue construyendo viviendas sociales en sectores de alto riesgo:
quebradas, piedemontes, ríos secos, entre otros. Y esta situación es mucho =
más
frecuente en sectores periféricos o vulnerables dada la natural y creciente=
urbanización
de las ciudades latinoamericanas.
Por último, la aparición de conflictos
comunitarios por uso del territorio aumentan crecientemente y la
institucionalidad tímidamente intenta generar ciertos procedimientos como la
mediación comunitaria para resolver extrajudicialmente este tipo de
situaciones. En fin, estamos en presencia de una serie de situaciones donde=
se
requiere de nuevos especialistas que puedan abordar desde otras definiciones
disciplinares la gestión del territorio en sus diferentes dimensiones.
La gestión territorial en Chile ha estado
monopolizada por profesionales con orientación técnica, que desde perspecti=
vas
de ingeniería buscan resolver los problemas asociados al ordenamiento
territorial o a la utilización responsable de los recursos naturales. La
conversación entre ingenierías y las ciencias sociales en este tipo de
cuestiones ha resultado hasta el momento insuficiente. Algunas preguntas que
orientan este trabajo son ¿se está
incluyendo la dimensión territorial en la formación profesional de los
Trabajadores Sociales en Chile?, ¿Qué enfoque territorial se está
desarrollando?, ¿Se están fortaleciendo sus competencias genéricas y
específicas en esta área de la intervención social? =
p>
Nuevas
Competencias del Trabajador Social
El Trabajo Social en Chile se inició básicam=
ente
como una profesión de orientación eminentemente paramédica y jurídica. Las
primeras escuelas de Trabajo Social en Chile desarrollaron este tipo de
enfoques. Según Patricia Castañeda=
“Se
reconoce como aporte profesional la incorporación de la dimensión social en=
el
tratamiento de problemas y necesidades sanitarias de la población, atesoran=
do a
lo largo de nueve décadas un valioso acervo de acciones profesionales de
carácter asistencial, promocional, educativo, organizativo y de desarrollo
social orientadas a colaborar en dicha tarea” (Castañeda, 2015). =
Según esta autora, y en clave de revisión
histórica de la profesión: “Su progresiva especialización en salud se
fundamenta en los avances del conocimiento científico tecnológico y en las
renovadas propuestas conceptuales aportadas por los marcos interpretativos =
de
las ciencias de la salud y de las ciencias sociales, consolidando un=
o:p>
enfoque comprensivo de atención biopsicosocial =
que
reconoce la multi-causalidad de factores biológicos, sociales, económicos,
culturales, territoriales, políticos y ambientales en los problemas sanitar=
ios
de la población”. Es decir, se comienza a consolidar un conocimiento teóric=
o y
metodológico que le permite a este profesional asumir cada vez con mayor
propiedad la complejidad de lo social y
desarrollar con éxito las distintas etapas de la historia profesional, tant=
o la
etapa asistencial como la desarrollista; como los retos de la
re-conceptualización y los desafíos que le exigió las políticas públicas
redistributivas de los gobiernos democráticos desde la década del ´90 hasta la actualidad. <=
/p>
Sin duda que, los nuevos paradigmas del
desarrollo mundial, tanto el propio desarrollo humano como los objetivos del
PNUD para el desarrollo sostenible, exigen a las instituciones nuevas
adecuaciones para poder alcanzarlos. Esto significa revisión de procedimien=
tos,
marcos teóricos y aspectos formativos de las especializaciones. =
De esta manera surge en el área educacional y
formativa enfoques pedagógicos para preparar el capital humano para abordar=
los
nuevos escenarios de la globalización y las exigencias de un modelo neolibe=
ral.
Surge entonces el enfoque por competencias que incluye como aspectos centra=
les
la diversidad de saberes que debe tener este nuevo profesional y los saberes
interdisciplinarios para abordar la complejidad. El enfoque por competencias
según Castañeda, “emerge como una respuesta educativa a los cuestionamientos
que se generan a la formación profesional en un marco mundial de procesos de
transformaciones estructurales en los ámbitos económicos tecnológicos y
sociales. Estas transformaciones implican nuevos desafíos a la formación
profesional traducidas en dos procesos complementarios: el impulso a la
búsqueda de nuevas re-significaciones en las competencias profesionales que
devienen de la tradición y la integración de los nuevos requerimientos de
competencias profesionales que demandan un desempeño profesional flexibiliz=
ado
e incierto” (Castañeda, 2003: 110). Para esta autora, en un mundo sin certe=
zas
las instituciones sociales y las prácticas de reproducción cultural se
encuentran en procesos de profundas revisiones y en la búsqueda de
significaciones. El desarrollo conceptual en el ámbito de las competencias
profesionales refleja la evolución de los significados y requerimientos de =
los
contextos socio productivos, las características del mercado laboral y las
demandas de profesionales vigentes en una época histórica y social determin=
ada
(Castañeda, 2003)
Una competencia se formula en términos de la
capacidad de actuar y se caracteriza por los siguientes elementos:
Un conjunto durable de
conocimientos declarativos, procedimentales, contextuales. Es la estru=
ctura
de conocimientos.
Los conocimientos
involucrados se adaptan a la ejecución de las tareas y se expresan de
manera automatizada.
Los conocimientos
involucrados son necesarios para la resolución de problemas.
De los Ríos y otros, plantean dos tipos de
competencias: las especializadas y las generales. Las primeras se refieren a
las competencias propias de cada profesión en que los aspectos técnicos sue=
len
ser predominantes (De los Ríos et al., 2000). En el caso de Trabajo Social
(Escartin, 1992, AnderEgg, 2000), éstas han sido definidas por su objeto
disciplinar de intervención que ha transitado desde el binomio
recurso-necesidades hasta la conflictividad social, y que se ha traducido en
una formación basada en el trabajo de casos y el bienestar social del indiv=
iduo
fundamentalmente. Las segundas se refieren a competencias referidas
principalmente a la interacción humana. Se asocian a capacidades para integ=
rar
o dirigir equipos interdisciplinarios de trabajos, de comunicar proyectos o
decisiones en el ámbito institucional y de mantener un proceso continuo de
actualización de conocimientos relevantes a su actuación profesional. Estas
competencias han dejado de ser propiedad exclusiva de un área o profesión en
particular. En el caso de Trabajo Social, estamos en presencia de nuevas
competencias profesionales, como es la capacidad para gestionar el buen uso=
del
territorio y que por lo demás es el tema principal del presente artículo.
Es así como la sociedad contemporánea demanda
nuevas exigencias a los profesionales del área social, cuestionando los
contenidos de su formación y los desempeños profesionales que le han sido
tradicionales. Para Castañeda (2003) la preocupación por temáticas como el
desarrollo económico o la superación de la pobreza son aspectos relevantes =
en
lo que ella denomina la cuarta etapa de la historia de la formación
profesional: “Continuidad, cambios y desafíos”, es decir, saberes que integ=
ran
las etapas anteriores pero que requieren significar nuevas metodologías de
intervención profesional.
Esta nueva configuración social es la que
algunos autores denominan la “Sociedad de la Información”. El concepto de
"sociedad de la información" hace referencia a un paradigma que e=
stá
produciendo profundos cambios. Esta transformación está impulsada principal=
mente
por los nuevos medios disponibles para crear y divulgar información mediante
tecnologías digitales. Los flujos de información, las comunicaciones y los
mecanismos de coordinación se están digitalizando en muchos sectores de la
sociedad, proceso que se traduce en la aparición progresiva de nuevas forma=
s de
organización social y productiva. (CEPAL, 2003: 9)
Caspar (1994) identifica una serie de rasgos de
esta Sociedad de la Información:
Aceleración del cambi=
o,
asociado principalmente a la explosión de ciencias, tecnologías y
Técnicas.
Desarrollo de la
complejidad, generadora de nuevos comportamientos socio-profesionales.=
Desmaterialización de=
los
intercambios y de los sistemas de producción, lo que supone que cobren
relevancia las actividades de creación, dirección y gestión.
Internacionalización =
de
las relaciones y construcción de la Unión Europea, con crecientes rede=
s de
conexión de las que dependen muchos de los actores implicados en cualq=
uier
actividad socio-laboral.
Profundas
transformaciones del mercado laboral, con menos puestos de trabajo
estable, mayor flexibilidad laboral y emergencia de nuevas formas soci=
ales
de trabajo (autoempleo, teletrabajo...)
Continua evolución de=
los
puntos de referencia con el subsiguiente riesgo de pérdida de identidad
grupal e individual en medios de los fenómenos de globalización
definitorios dela era digital. (Caspar 1994, citado en Castañeda,
2003)
Para Fernández (2013), se trataría incluso de
abordar un nuevo sujeto en ambiente de globalización: el “analfabeto
relacional” que producto de este proceso ha optado por modos de vida
individualistas y desagregados. (Fernández, 2013). Muy coincidente con los
resultados de los últimos Informes de Desarrollo Humano del PNUD Chile dond=
e se
advierte los procesos de individualización que experimenta la sociedad chil=
ena
en su reconstrucción identitaria y en sus nuevos procesos de ejercicio de
ciudadanía, donde priman altos niveles de desconfianza hacia las institucio=
nes.
El Informe de Desarrollo Humano 2015 señala que “La desconfianza mutua entre
los involucrados en el proceso de politización desafía por igual a todos sus
participantes y pone trabas a la posibilidad de construir mediaciones fluid=
as.
Es la fragilidad de la relación: para los movimientos sociales, las elites,=
a
las que ven como un solo grupo, son en sí mismas un problema. A su vez, una
parte de las elites mira con resquemor las nuevas dinámicas sociales
advirtiendo en ellas la posibilidad de un escenario de demandas sin control.
Por su parte, la ciudadanía desconfía de todos los actores que tienen poder=
en
los distintos ámbitos de la vida social”. (Informe de Desarrollo Humano, 20=
15)
Para Gómez (2010), el enfoque por competenci=
as
en la formación surge como una alternativa para dar respuesta a las demanda=
s de
una sociedad, información, en la que una de sus mayores expectativas es la
búsqueda de una articulación entre la educación y las necesidades sociales.=
Es
en el ámbito laboral donde el objetivo primordial a conseguir se fundamenta=
en
que los profesionales adquieran una formación acorde con los requerimientos
sociales y una promoción de su participación en el sector productivo. =
El Título de Grado en Trabajo Social debe
“capacitar para el ejercicio profesional como trabajador(a) social y facult=
ar
para la utilización y aplicación de la valoración diagnóstica, el pronóstic=
o,
el tratamiento y la resolución de los problemas sociales, aplicando la meto=
dología
específica de la intervención social de caso, familia, grupo y comunidad, y
capacitar para planificar, programar, proyectar, aplicar, coordinar y evalu=
ar
servicios y políticas sociales. Los planes de estudios conducentes al títul=
o de
trabajador/a social deben permitir la adquisición de los conocimientos y
competencias necesarias para desarrollar las siguientes funciones en el
ejercicio profesional: función de información y orientación, preventiva,
asistencial, de planificación, docente, de promoción e inserción social, de
mediación, de supervisión, de evaluación, gerencial, de investigación y de
coordinación” (Vázquez, 2005, citado en Gómez 2010)
Para este autor las competencias generales
debieran habilitar al profesional de Trabajo Social en: =
p>
Competencia para
interactuar con personas, familias, grupos, organizaciones y comunidad=
es
para conseguir cambios, promocionar el desarrollo de los mismos y mejo=
rar
las condiciones de vida a través de la utilización de los métodos y
modelos de Trabajo Social.
Competencia para
desarrollar y mantener las relaciones con personas, familias, grupos,
organizaciones, comunidades y otros.
Trabajar con el siste=
ma
cliente de cara a prevenir las situaciones de crisis y para hacer fren=
te a
los problemas y conflictos.
Llevar a cabo el
seguimiento con regularidad, revisar, y evaluar los cambios en las
necesidades y circunstancias.
Competencia para
intervenir con personas, familias, grupos, organizaciones y comunidades
para ayudarles a tomar decisiones bien fundamentadas acerca de sus
necesidades, circunstancias, riesgos, opciones preferentes y recursos.=
Competencia para anal=
izar
la estrategia elegida que resulta viable en función de todos los
condicionantes posibles (requisitos legales de acceso, disponibilidad =
de
plazas, tiempo de espera, etc.).
Competencia para prom=
over
el crecimiento, desarrollo e independencia de las personas identifican=
do
las oportunidades para formar y crear grupos, utilizando la programaci=
ón y
las dinámicas de grupo para el crecimiento individual y el fortalecimi=
ento
de las habilidades.
· =
Competencia para responder a situaciones de
crisis valorando la urgencia de las situaciones, planificando y desarrollan=
do
acciones para hacer frente a las mismas, revisando sus resultados.
La Gestión d=
el
Territorio
La gestión del territorio en Chile es un área
relativamente nueva de intervención social para resolver problemas de
desarrollo donde colaboran profesionales de distintas áreas y formación. Ti=
ene
componentes de ordenamiento territorial dirigidos desde las unidades
descentralizadas del Estado donde se cruzan y superponen planes comunales,
intercomunales, inter-regionales, entre otros y tiene componentes sectorial=
es
donde intervienen programas sociales o de inversión social. Por ejemplo el
programa “Más Territorio”, es una iniciativa del Estado de Chile implementa=
da
recientemente por el Fondo de Solidaridad e Inversión Social (FOSI S), que busca
mejorar la calidad de vida de barrios y localidades vulnerables, mediante el
trabajo colaborativo de quienes viven en un
territorio determinado, empresas interesadas en el desarrollo local y
organismos p ú blicos. “ M á s Territorio=
es
un programa piloto del FOSIS cuyo fin es contribuir a la disminución de la
pobreza y la desigualdad en territorios prioritarios. Su objetivo es aument=
ar
las capacidades locales (socio comunitarias e institucionales) de la poblac=
ión,
a través del desarrollo de estrategias de intervención social en territorio=
s de
escala intracomunal (barrios urbanos y localidades rurales). La idea es que
sean los propios territorios con su gente, los que definan las rutas hacia =
el
desarrollo, a partir de un proceso participativo que permita definir un Plan
Local de Desarrollo Social”. (FOSIS, 2017)
Al tratarse de nuevos enfoques de gestión es
necesario adaptar los nuevos enfoques desde la política pública. Este nuevo
objeto de intervención tiene asegurado el concurso de expertos en geografía,
geología, hasta urbanistas y ambientalistas. Como ilustración de lo anterior
para González (2011), la preocupación por el territorio surge desde la carr=
era
de “Ingeniería en recursos naturales renovables” de la Universidad de Chile,
destinada a gestionar los recursos y ambiente desde una comprensión compleja
del medio bajo el paradigma de la sustentabilidad. Esto implica “reconocer =
que
el uso de los recursos y el modo en que organizamos la vida es un tema de
dimensiones altamente complejas donde participan diversas y contradictorias
racionalidades humanas que surgen de modos culturales distintos y respetabl=
es
enmarcados en un ambiente cada vez más presionado y con respuestas difícile=
s de
pronosticar y de medir condicionado además por las particularidades geográf=
icas
y biofísicas”. Para este autor las ciencias sociales tampoco han tenido una
fluida conversación con las ciencias de las ingenierías. (González, 2011)
Pero ¿Cómo se comprende la complejidad del
territorio?
Montañez y Delgado (1998) plantean siete
consideraciones para entender el territorio:
Toda relación social
tiene ocurrencia en el territorio y se expresa como territorialidad. El
territorio es el escenario de las relaciones sociales.
El territorio de un
espacio de poder, de gestión y de dominio del estado, de individuos, de
grupos, de empresas locales, nacionales y multinacionales. <=
/span>
El territorio es una =
construcción
social y nuestro conocimiento del mismo implica el conocimiento del
proceso de su producción.
La actividad espacial=
de
los actores es diferencial y por lo tanto su capacidad real y potencia=
l de
crear, recrear y apropiar el territorio es desigual. =
En el espacio concurr=
en y
se sobreponen distintas territorialidades locales, regionales, naciona=
les
y mundiales con intereses distintos con percepciones valoraciones y
actitudes territoriales diferentes que generan relaciones de
complementación, de cooperación y conflicto.
El territorio no es f=
ijo,
es móvil, mutable y desequilibrado. La realidad geosocial es cambiante=
y
requiere permanentemente de nuevas formas de organización territorial.=
· =
El sentido de pertenencia e identidad, el de
conciencia regional, al igual que el ejercicio de la ciudadanía y acción
ciudadana solo adquiere existencia real a partir de su expresión de
territorialidad. En un mismo espacio se sobreponen múltiples territorialida=
des
y lealtades.
<=
/o:p>
Ejes de la
Gestión Territorial
Para realizar este análisis exploratorio hem=
os
conceptualizado la gestión territorial desde un enfoque multi-sistémico que
involucra una serie de ejes de intervención, cada uno con sus especificidad=
es.
Estos ejes posteriormente serán utilizados como referencia para clasificar =
las
distintas competencias actuales y emergentes del Trabajo Social con dimensi=
ón
territorial. Los ejes han sido considerados atendiendo lo propuesto por el V
Workshop de la Red Iberoamericana de observación Territorial (RIDOT), VI
Seminario Internacional de Ordenamiento Territorial “La nueva agenda
territorial: Innovación, planificación y gestión”, espacio académico y técn=
ico
donde precisamente organismos científicos especializados de Iberoamérica
debatieron durante 2017 sobre los nuevos desafíos de la gestión territorial=
en
la región.
Eje 1:
Competitividad versus Justicia Territorial
Se refiere a que con el propósito de gestion=
ar
recursos, las empresas, con el apoyo de los poderes políticos, desplazan sus
unidades de producción de una ciudad a otra y / o de una región o de un paí=
s a
otro, sin preocuparse de las consecuencias de tales movimientos y las
relaciones establecidas en su lugar. En este proceso, se genera una
competitividad espacial permanente o lo que puede ser denominado como la ‘g=
uerra’
entre ciudades y territorios para atraer inversiones. En general, las agend=
as
neoliberales, que determinan el éxito y la competitividad de las ciudades y
territorios contemporáneos, tienen un fuerte impacto en el paisaje, afectan=
las
experiencias de uso de espacio a diferentes escalas y exigen políticas públ=
icas
de planificación y gestión del territorio (Lefebvre, 1991). La defensa del
derecho a la ciudad es más que el derecho de acceso al espacio, es el derec=
ho a
convertirlo en la construcción de ciudades y territorios incluyentes. Estas
dinámicas plantean preguntas acerca de la efectividad del derecho de acceso=
a
la ciudad y el resto del territorio y de formas innovadoras y alternativas =
de
planificación que contemplen posibilidades de lograr equilibrio, justicia
territorial y el buen vivir. Las estrategias para el progreso de las ciudad=
es
en la mayoría de los países desarrollados buscan captar inversiones de nuev=
as
empresas y atraer capital humano avanzado, lo que requiere construir entorn=
os
políticos, sociales, económicos y urbanos que sean coherentes con estos
objetivos (Belmar et al., 2017).
Eje 2: Siste=
mas
y dinámicas territoriales
Las ciudades, son distintas en cada tipo de
sociedad. A pesar de existir entre ellas elementos en común, cada una es si=
ngular
y particular. Los procesos expansivos acelerados de sus límites y fronteras
obligan a pensar formas de planificación distintas que superen las
jurisdicciones tradicionales. Los ámbitos supramunicipales hoy en día se
muestran desiguales, fragmentados, segregados, desequilibrados ambientalmen=
te;
todo ello derivando en menor calidad de vida de los habitantes. En este
contexto, aparece la necesidad de pensar y buscar soluciones a problemas
supramunicipales actuales, surge nuevamente la importancia de la planificac=
ión
territorial como proceso para enfrentar los desafíos económicos, sociales y
ambientales de regiones urbano – rurales. El interés de este eje se centra
entonces en temáticas como: fragmentación territorial, desigualdades social=
es,
proceso de expansión urbana, transporte y movilidad, pérdida de explotacion=
es
agropecuarias, mercado inmobiliario, competencias por el uso del suelo,
explotación de los recursos naturales y deterioro ambiental.
Eje 3: Siste=
mas
de apoyo a la toma de decisiones: instrumentos, técnicas, métodos, experien=
cias
de participación, manejo de la información y educación
La gobernanza territorial, a través de un
gobierno multinivel (vertical) y multisectorial (horizontal), requiere de
nuevas vinculaciones entre académicos, políticos y la sociedad, en donde los
sistemas de apoyo para la toma de decisiones tienen un papel cada vez más
importante, por la participación informada de la población. Estos sistemas =
de
apoyo demandan a los territorios y actores locales nuevas estrategias para =
la
toma de decisiones, más consensuadas, incluyentes y participativas, para las
construcciones de territorios y poblaciones más resilientes. Los sistemas de
apoyo a la toma de decisiones asumen el reto de contribuir a nuevos desarro=
llos
para el monitoreo y seguimiento territorial a través de las geo tecnologías
como los sistemas de información geográfica, sistemas automatizados de cons=
ulta
(SADE), observatorios geográficos, geo-crowdsourcing y la percepción remota,
como también la propuesta de métodos e indicadores para evaluación de
políticas, planes y acciones en materia de ordenación territorial. La
gobernanza es el subsistema que mide la capacidad del gobierno local para
liderar la construcción y ejecución de un proyecto de desarrollo coherente =
de
la ciudad, basado en una visión compartida de sus habitantes y que sea esta=
ble
en el tiempo. Esta visión compartida facilita las interacciones entre los
actores y reduce la incertidumbre de las decisiones que éstos toman en forma
descentralizada, convirtiéndose en un elemento importante del tejido
institucional de una localidad. Además, una buena gobernanza de la ciudad es
importante para la competitividad porque permite corregir las fallas de
coordinación entre los actores que participan en la economía local y reducir
las “fricciones” que a menudo afectan a los mercados y a las empresas (Belm=
ar
et al., 2017).
Eje 4: El
territorio y su ordenación en la agenda política
Recientemente, dos iniciativas de Naciones
Unidas como la aprobación por parte de su Asamblea General de la Estrategia
2030 para el Desarrollo Sostenible (en 2015), y la Conferencia Hábitat III
celebrada en Ecuador en 2016, como exponente de una Nueva Agenda Urbana, han
servido para poner de manifiesto los retos que en materia de organización y
aprovechamiento del espacio (territorio) tienen planteadas nuestras socieda=
des.
Desarrollo sostenible y ciudad son dos grandes ejes alrededor de los cuales=
se
plante el modelo de desarrollo posible. Este eje ofrece un espacio para el
análisis y discusión sobre aspectos como:
incorporar la dimensión territorial a la sostenibilidad: el lugar del
territorio; en especial la recuperación de la planificación del desarrollo
territorial sostenible como opción de una renovada ordenación territorial cambios en el mapa geopolítico y
‘post-verdad’: asimetría social, identidades excluyentes y políticas
territoriales el espacio/la espacialidad importa; nuevos espacios de ordena=
ción
territorial, relaciones entre la política de ordenación del territorio y ot=
ras
políticas sectoriales (infraestructuras, de protección del medio ambiente,
rural y nuevas formas de articulac=
ión y
organización territorial
Oportunidade=
s de
intervención para el Trabajo Social
El Trabajo Social ha definido en su “cierre =
de
campo” disciplinar su preocupación por el estudio del territorio en general
(AnderEgg, 2002; Marchioni, 2009; Fernández, 2012; García, 2002) y, por el
estudio de la organización de la comunidad en particular y específicamente =
en
lo que respecta a la organización de la comunidad (Adasme& Quinteros,
2015).
Giovanni Bonfiglio (2016) señala que los
orígenes del método de desarrollo de la comunidad en Latinoamérica surgen d=
esde
dos fuentes. Por un lado desde la experiencia colonial inglesa que cimentó =
la
línea denominada de Desarrollo de la comunidad y que surge fuera del Servic=
io
Social y por otra la denominada Organización de la comunidad que surge en
Estados Unidos como método especifico del Servicio Social al derivar y
fortalecer el abordaje de la comunidad por parte del Casework (Bonfiglio,
2016). Efectivamente, es la organiz=
ación
de la comunidad el espacio disciplinar que el Trabajo social ha hecho
propio en su proceso de identidad profesional. En atención a lo anterior, la
contribución técnica y metodológica del Trabajo Social al ordenamiento
territorial y a las problemática de la gobernabilidad del desarrollo urbano=
y
el manejo del suelo; y de los problemas de la segregación residencial urban=
a,
se transforma en una oportunidad para aportar al diseño de mejores ciudades
para vivir y colaborar con el desarrollo de la política pública a nivel nac=
ional.
Así por ejemplo lo plantea el Plan Nacional de Desarrollo Urbano de Chile
(2014): “Se debe “lograr una mejor calidad de vida para las personas, abord=
ando
de manera integral los aspectos que rigen la conformación de nuestras ciuda=
des,
buscando que su desarrollo sea socialmente integrado, ambientalmente
equilibrado y económicamente competitivo” (Plan Nacional de Desarrollo Urba=
no
de Chile, 2014). El Trabajo Social de comunidad a través de su proceso de
intervención debe apoyar la descentralización del país, acercando las
decisiones de carácter local a las personas, respetando a las comunidades y
fortaleciendo la participación ciudadana.
Por otra parte, la intervención profesional =
debe
colaborar en la definición de un “un marco explícito que posibilite una
reorganización institucional y ordene el accionar de los diversos organismo=
s y
actores públicos y privados que intervienen en las ciudades y el territorio,
evitando criterios y acciones disímiles, contradictorios o descoordinados. =
En
este sentido la conflictividad social que emerge del desigual o asimétrico =
uso
del espacio puede ser abordado a través de intervenciones propias del traba=
jo
social mediante la participación ciudadana en los asuntos públicos tanto en=
los
diagnósticos como en el control de las acciones comprometidas en la
planificación. Sólo de esta forma se podrán generar certidumbres que favore=
zcan
la convivencia de los ciudadanos en el territorio y posibiliten un ambiente
propicio para el desarrollo de la sociedad y para las iniciativas de invers=
ión
pública y privada. (Adasme& Quinteros, 2015)
Metodología<=
o:p>
El presente estudio es un ejercicio
absolutamente exploratorio y se llevó a cabo mediante la revisión comparada=
de
los planes de estudio de 36 programas de carrera de Trabajo Social o Servic=
io
Social disponible en los sitios web institucionales de organismos de educac=
ión
superior de Chile. Se identificaron todas las asignaturas que por su
nomenclatura sugerían el abordaje de los contenidos relacionados con aquell=
as
áreas que se identificaron como críticas para abordar el análisis territori=
al y
la gestión de éste. En éste sentido, las área críticas planteadas fueron:
a.-Desarrollo económico/local, b.-Pobreza y exclusión social,
c.-Diversidad/Multiculturalidad, d.-Mediación/ conflicto, e.-Administración=
y
gestión pública o municipal, f.-Participación ciudadana/sociedad civil, g.-=
Ciencia
política, h.- Análisis del territorio.- Gestión del
Riesgo/Medioambiente/Sustentabilidad.
Las anteriores áreas se consideraron como
emergentes y debieran conducir al profesional del Trabajo Social a desarrol=
lar
un tipo de competencia general que le permitiese integrar equipos
multidisciplinarios en la compleja tarea de la gestión del territorio tanto=
en
su proceso de ordenamiento como de intervención sectorial con enfoque
territorial.
Cuadro
Nº 1
Conocimientos para la Gestión Territorial
Eje
Gestión
Conocimientos
tradicionales en Trabajo Social
Conocimientos
Emergentes en Trabajo Social
Competitividad versus Justicia
Territorial
Economía
Derecho laboral
Seguridad Social
Desarrollo Económico Local
Desarrollo Regional
Descentralización
Pobreza/Desigualdad/Exclusión
Inclusión/Diversidad/Multiculturalidad
Ruralidad, Genero, pueblos originarios)
Administración Publica/ Municipal
Emprendimiento social
Innovación Social
Sistemas y dinámicas territoriales:
revisando las interrelaciones urbano-rurales.
Teorí=
a y
Metodología de Comunidad
Antro=
pología
Teorí=
as
Sociales
Econo=
mía
Análi=
sis
del Territorio
Desar=
rollo
Económico Local
Desar=
rollo
Regional
Desce=
ntralización
Pobre=
za/Desigualdad/Exclusión
Inclu=
sión/Diversidad/Multiculturalidad
Rural=
idad,
Genero, pueblos originarios)
Admin=
istración
Publica/Municipal
Gesti=
ón
ambiental/Gestión del Riesgo
Sistemas de apoyo a la toma de
decisiones: instrumentos, técnicas, métodos, experiencias de participació=
n,
manejo de la información y educación
Políticas Publicas
Políticas Sociales
Formulación y evaluación de
Proyectos
Teoría y Metodología de Grupo
Desarrollo Económico Local
Desarrollo Regional
Descentralización
Conflicto Intercultural
Mediación Social /Comunitaria
Administración
Gestión Pública Municipal
Ciudadanía / Participación Ciudadana
Sociedad Civil
El territorio y su ordenación en la
agenda política.
Teorí=
as
de la Administración
Gober=
nanza
Análi=
sis
del Territorio
Desar=
rollo
Económico Local
Desar=
rollo
Regional
Desce=
ntralización
Confl=
icto
Intercultural
Media=
ción
Social /Comunitaria
Admin=
istración
Gesti=
ón
Pública / Municipal
Ciuda=
danía
/ Participación Ciudadana
Socie=
dad
Civil
Fuente elaboración propia.2017
En este sentido, la revisión de planes de
estudio de información disponible en las respectivas páginas web
institucionales permitió generar la siguiente categorización con sus
respectivos resultados cuantitativos y porcentuales. (Cuadro Nº 2)
Cuadro
Nº 2
Áreas Gestión Territorial identificadas en Planes de
Estudio Trabajo Social
Desarrollo
Económico Local /Regional
Descentralización
Pobreza
Desigualdad
Exclusión
Inclusión/Diversidad
Multiculturalidad
Mediación
/Conflicto
Administración
Gestión Pública /Municipal <=
/span>
Participación
Ciudadana
/Sociedad
Civil
Ciencia
Política
Territorio
Gestión
Del Riesgo
Medio
ambiente
Total de Programas que abordan esta área
17
11
12
9
5
15
3
4
3
%
47 %=
o:p>
30 %=
o:p>
33 %=
o:p>
25 %=
o:p>
13%
41%
8%
11%
8%
Fuente: Elaboración
propia a partir de la revisión de Planes de Estudio publicados en las págin=
as
web institucionales de los Programas de Trabajo Social
<=
/span>
Fuente: Elaboración
Propia Distribución de Asignaturas por Área Temática en los Planes de Estud=
io
revisados (2017). =
span>
La evidencia revisada indica que de 36
instituciones de educación superior donde se dictan programas de pre grado =
de
Trabajo Social/Servicio Social, un total de 17 programas consideran asignat=
uras
obligatorias con contenidos de “desarrollo económico” o “desarrollo local” =
lo
que equivale a un 47% del universo analizado. Este número de cierta relevan=
cia,
podría deberse a que los programas de Trabajo Social han desarrollado cierta
aproximación histórica al Desarrollo Económico Local (DEL) a partir de los =
influyentes
aportes del uruguayo José Arocena en la década del 80, que sintonizaban ade=
más
con los enfoques economicistas de la política social y de fomento productiv=
o de
la época.
En segundo lugar aparecen los contenidos
asociados a “Participación ciudadana” o “sociedad civil” también con 15
programas lo que equivale al 41% del universo. La experiencia del Trabajo
Social en matera de participación y específicamente en metodologías es part=
e de
lo que corresponde a las competencias especializadas de la formación por
ejemplo asociados a la metodología de trabajo con grupos, y al amplio
repertorio de técnicas de trabajo grupal,
lo que hoy le permite fortalecer este tipo de instrumentos y
metodologías demandados crecientemente por el Estado para el involucramient=
o de
la comunidad en las decisiones de interés público en materia de gestión
territorial.
En lo que concierne a la participación ciuda=
dana
en la gestión pública del manejo medioambiental, se constata la importancia=
que
le han concedido los últimos gobiernos, toda vez que las relaciones del Est=
ado
y la ciudadanía se desarrollan en una nueva situación que involucra lo soci=
al y
lo político, desde una visión que permita el acceso, reconocimiento y ejecu=
ción
de los derechos ciudadanos. Mecanismos participativos como Oficinas de
Información Reclamos y Sugerencias OIRS, Audiencias, Consejos de la Sociedad
Civil, entre otros, evidencian esta nueva realidad. Por ello, se debe
considerar a la participación ciudadana como un elemento central de la
formulación de políticas, programas y proyectos, apuntando a instalar
mecanismos formales de interlocución entre los distintos niveles del Estado=
y
los ciudadanos con la finalidad que puedan influir en las distintas fases de
toma de decisiones (diseño, ejecución y seguimiento) aumentando los niveles=
de
control social sobre las políticas públicas, donde lejos de debilitar al
Estado y su funcionamiento, contri=
buyen
a la legitimización del mismo, aumentando la eficacia de su desempeño.
En tercer lugar y, con presencia en los plan=
es
de estudio de 12 instituciones se encuentra la categoría “diversidad /
multiculturalidad” que corresponde a un 33% de la muestra estudiada. Este t=
ema
resulta central en el nuevo escenario social producto de la evidente y
creciente diferenciación sociocultural de la sociedad chilena y de la irrup=
ción
de las nuevas identidades tanto étnicas como regionales. Esta nueva situaci=
ón
demográfica obliga al estado a incorporar nuevos actores como destinatarios=
de
sus políticas públicas. Llama la atención el bajo número de instituciones q=
ue
incorporan esta herramienta en su proceso formativo.
En una cuarta posición, figura la categoría
denominada “Pobreza y exclusión social” con 11 instituciones o casas de est=
udio
lo que se traduce en un 30% de los casos identificados. Esta categoría exig=
e a
nuestro juicio un análisis un poco más detallado en atención a que
históricamente el Trabajo Social se ha vinculado a esta temática. Es
interesante desde el punto de vista que se ha incorporado como una asignatu=
ra
especifica aun cuando se presume que la profesión surge bajo el paradigma d=
el
estado de carencia y del binomio recurso necesidad. En algunos programas se
aborda desde la categoría exclusión social.
En el lugar quinto, se ubica la asignatura
“mediación social” o “conflicto”. Al respecto es interesante como la genera=
ción
de nuevas identidades genera una posibilidad de conflictos territoriales de
sociabilidad o de patrimonio. En este aspecto resulta interesante la
consideración creciente de la técnica de la Mediación social o comunitaria =
pues
constituye un mecanismo efectivo de participación ciudadana toda vez que
requiere que los integrantes de la comunidad se involucren en los asuntos de
interés social, desde un espacio no adversarial y desjudicializado. Las
posibilidades de incorporación de esta tecnología social a la convivencia
social son numerosas y aplicables por ejemplo a nuevos escenarios como lo e=
s la
incorporación de la comunidad a la gestión del riesgo de los nuevos proyect=
os
de impacto ambiental, o a la reducción de la conflictividad social que surge
desde modificaciones al uso del territorio. Sin embargo, la evidencia empír=
ica
indica que la institucionalidad en Chile no ha permitido hasta ahora su
aplicación eficiente en estos espacios.
En el lugar sexto, aparece la categoría
“administración y gestión pública municipal” con un 13%. En efecto, si bien=
la
teoría de la administración es un contenido presente en la mayoría de las
mallas curriculares estudiadas, son pocas la que orientan a la administraci=
ón
pública o a la gestión pública y menos aún en el espacio local o comunal. S=
in
embargo, conocimientos sobre administración tradicionalmente han estado
referidos a la relación con los recursos humanos y los sistemas de bienesta=
r en
empresas.
Finalmente, las últimas tres categorías tien=
en
muy baja presencia en la formación profesional actual, tanto “territorio” c=
omo
“Introducción a la Ciencia Política” o “Gestión del medio ambiente” o “gest=
ión
del riesgo” resultan asignaturas absolutamente marginales en la formación d=
e pregrado
en Chile. Este último aspecto es una materia absolutamente presente en los
nuevos paradigmas de sustentabilidad por lo que se hace necesario incorpora=
rlos
definitivamente en la formación de los profesionales del Trabajo Social que=
se
interesen por el territorio.
Conclusiones=
La mirada sistémica e integral transmitida
históricamente en la formación de los trabajadores sociales es un buen recu=
rso
que podría contribuir a optimizar los procesos y dinámicas de gestión
territorial, cada vez más complejas y condicionantes de la buena gobernanza.
Contenidos tradicionales entregados a los estudiantes de pre grado como
ciencias sociales, economía, administración, metodologías de trabajo con gr=
upos
y comunidades son herramientas disciplinares que facilitan el abordaje de l=
as
nuevas configuraciones sociales del territorio.
Por otra parte, la creciente democratización
social producto de la globalización y de la modernización del Estado exige =
de
la presencia de profesiones que desarrollen metodologías participativas y q=
ue
analicen multidimensionalmente el territorio y ofrezcan metodologías de
intervención social en las diferentes áreas de la gestión territorial, en
espacios profesionales multidisciplinarios donde este tipo de especializaci=
ón
contribuya a generar más ciudadanía, comprensión de lo multicultural y
liderazgo hacia lo intercultural. =
Este trabajo pretende acercarse
exploratoriamente a la realidad de la formación profesional chilena en esta
área y conocer la idoneidad profesional,ya que más que una especialización =
del
Trabajo Social la preocupación por las dinámicas territoriales hoy es un
elemento transversal de la intervenciónsocial a nivel de política pública. =
El
próximo paso en esta línea investigativa consistirá en indagar críticamente
respecto de los contenidos específicos tratados en cada una de las asignatu=
ras
identificadas, con el propósito de profundizar en esta materia.
R=
eferencias
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Christian Quintero Flores / Competencias
Profesionales del Trabajador Social para la Gestión Territorial. =
Christian Quintero Flores / Competencias
Profesionales del Trabajador Social para la Gestión Territorial. =
Christian Quintero Flores / Competencias
Profesionales del Trabajador Social para la Gestión Territorial. =
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