National School Feeding Program (PNAE): An economic perspective for the family farmers of the municipality of Rio do Sul / SC

Formal education in Brazil is benefited by the National School Feeding Program (PNAE), which is destined to the agreed farmers for the production and supplies of part of the food consumed by the students of the public education networks. This study sought to analyze the impacts of PNAE on the evaluation of farmers and managers considering the needs for improvements. It is a qualitative research, the instruments of data collection were questionnaires and interviews with the social actors involved in t he program. The results indicate that the farmers evaluated positively PNDE, as it encouraged the production of food, there was an increase in productivity and improvement in family income due to the guaranteed sale of the products; the investments in family agriculture were expanded with the acquisition of machinery and agricultural products generating quality of family life. The factors to be improved were related to the possible increase of the supply and improvement of the price of the products by virtue of the costs of the production, but recognized that it is in the average of the market and with guaranteed return of income. The other managers extol the importance of the program and the incentives to family agriculture; the nutritional factors and food quality of the students were qualified by a nutritionist. Keywords— National School Feeding Program; Family farming; Federal Institute of Santa Catarina; Prefeitura de Rio do Sul; Rio do Sul, Brazil.


INTRODUCTION
Law No. 11,947, of June 16, 2009, known as the "School Lunch Law", defines that public institutions must use at least 30% of the financial resources received through the National Education Development Fund (FNDE) to complement the purchase of foodstuffs for the school lunch of the states and municipalities (BRASIL, 2009). In addition, it establishes that these foods should be produced exclusively by family agriculture and / or its organizations, giving priority to agrarian reform settlements, traditional indigenous communities and quilombola communities (BRAZIL, 2009).
The National School Feeding Program (PNAE) is the Brazilian government's program in the area of school feeding and Food and Nutrition Security (SAN) and is considered one of the largest and most comprehensive in the world involving the guarantee of the human right to adequate and healthy food in school. It is a public policy, managed by FNDE, an authority of the Ministry of Education (MEC), complements all students enrolled in basic education in public, federal, philanthropic, community and denominational schools in the country, according to the principles of Human Right Adequate Food (DHAA) and SAN. (FNDE, 2015).
The family farmer has an essential participation in the PNAE, since he is responsible for the production of part of the food consumed by the students of the basic level public education system. The proposal for this article is based on one of the guidelines of the PNAE, which consists in encouraging the acquisition of foodstuffs produced, preferably, by local family agriculture. Based on this principle, the research reveals how the family farmers evaluate the PNAE in the city of Rio do Sul, which occurs through agreements with the City Hall and the Federal Institute of Santa Catarina (IFC), based in this city.
The general objective of this research is to: Analyze the impacts of the PNAE on the evaluation of farmers and managers considering the needs for improvements. The work developed in this study is fundamental for the country, since it evaluates an important Public Policy for family farmers in food production and contribution to students in their nutritional and health conditions. It may also become a qualitative reference for other countries in the organization and production of school meals. The research approach was qualitative and as a research technique, the questionnaire was used for the interviews. For the collection of data, the family farmers and the representatives of the City of Rio do Sul and the Federal Institute of Santa Catarina.

II. THEORICAL FRAMEWORK 2.1 NATIONAL SCHOOL FEEDING PROGRAM (PNAE)
The political and organizational structure that gave rise to what is the PNAE these days began in the beginning of the 1950s through the National Food and Nutrition Plan. The PNAE throughout its history underwent several transformations and adaptations, according to the new demands and new fields of action. The national food plan only continued because of the support received at the time by the International Fund for Childhood Relief (FISI), now known as UNESCO (PNAE / FNDE). The PNAE is a school feeding program with a national scope, since it is a social policy in the process of attending to the students, and especially in the social and economic development of family agriculture (LOPES, 2017).
It can be said that the initial framework of the PNAE was instituted on March 31, 1955, through Decree No. 37,106, which implemented the School Merenda Campaign, subordinated to the MEC (BRASIL, 1955;MEC, 2008;PEIXINHO, 2011).
With the enactment of the Federal Constitution of 1988, the PNAE ceased to be a welfare policy, recognizing in its text the State's obligation to provide school meals for all elementary school students (PEIXINHO, 2011). Since then, the Union has included in its annual budget forecast financial resources destined to the execution of the PNAE (MEC, 2008).
According to Maluf (2009), Peixinho (2011) and Saraiva (2013), an important measure taken at the head of the PNAE occurred in 1994. It was the policy of decentralization of financial resources destined to implement the program, according to Law no. 8,913 of 1994, in which states and municipalities would have autonomy to manage the financial resource received through FNDE for school feeding.
The PNAE, from its inception until 1993 -due to its bureaucracy and internal politics -was implemented centrally by the managing body. This coordinated the actions of management of the program in all its phases, from the purchase of the foodstuffs for the school lunch until the creation and formulation of the menus and distribution of foodstuffs for the whole Brazilian territory (MALUF 2009;SARAIVA, 2013).
According to Maluf (2009), the decentralization of financial resources to implement the program avoided logistical problems and the validity of certain products. And he began to value culture and the local food tradition, Maluf (2009) considers that: In a good part of this trajectory, the centralization of the massive purchases of food in the federal sphere favored the predominance of large companies capable, for example, of sending biscuits or sausages from the south-east to the Amazon (MALUF, 2009, p.2). Law No. 11,947 of June 16, 2009 brought new advances to the PNAE. It enabled the public entities of basic education linked to the MEC to invest at least 30% of the amount passed on by the FNDE in the purchase of foodstuffs produced by local family agriculture, to serve all students in the public basic education network as a supplementary program to educational policy. Through the Federal Constitution of 1988, it is the duty of the public manager to guarantee access and right to school feeding to all students of basic education in the public school system (BRAZIL, 2009).
One of the prerogatives of Law No. 11,947 of 2009 is to encourage state and local governments to create mechanisms that provide for the purchase of foodstuffs from local family agriculture through Public Call (BRASIL, 2009).
The participation of family farmers in the PNAE can not be considered only in the context of income generation, since the acquisition of products is not only related to the market. In this sense, the social recognition of them as food producers, the appropriation of the right won and the changes in the structures of opportunities are also important elements.   Grisa and Schneider (2015) note that the program is a public policy that came with the proposal to include family farmers in the public purchasing market. One of the proposals of Law No. 11,947 of 2009 is to strengthen the local and social dynamics of family agriculture, valuing local and regional production in the market. According to Lopes (2017), the purchase of foodstuffs through PNAE has been well accepted and has brought good results for family farmers, and participation in the program has enabled gains in quality of life and income for families.
The program has an expressive acceptance on the part of the familiar farmers, who declare the contribution of this one in the development of the familiar agriculture, of the cooperativism and associativism. According to the study, it can be seen that farmers are improving living standards, increasing the diversification of production and improving the distribution of income throughout the year (FERKO et al., 2016, p. 683). One of the PNAE guidelines is to purchase food products produced by local family agriculture.
In short marketing channels, the rural and personal (and not industrial and "impersonal") origin of the food is valued, the productive and food culture is rescued, valuing the identity and work of those who produce and transform the food, causing and in the nearby countryside. It is the rurality of family agriculture that "takes body" and cheer up. (GRISA; PORTO, 2015, p. 165). The FNDE finances and manages the PNAE at the national level. The additional financial resource that the executing entity is entitled to receive is carried out by FNDE. Due to the FNDE's decentralization policy, the financial resources to execute the PNAE are automatically credited to a specific current account, opened by the FNDE itself, to the educational institutions and bodies of the public elementary level public school system (FNDE, 2015;ROCHA, et al., 2017).
It is considered an executing entity of the PNAE every public institution or institution that has students enrolled in the basic level public education system. Thus, institutions have the right to receive the resources The calculation for the receipt of the financial resource of the PNAE is made based on the School Census of the year prior to the receipt of the financial release by the FNDE, taking into account the number of school days of the month and the modality of education. The installments to be paid are deposited in a specific current account of each executing entity, in ten installments throughout the school year. The Federal Institutes have a difference in relation to the other beneficiaries, since they receive the value of the FNDE in a single quota. Table 11 below shows the teaching modality and unit value that the institution receives via FNDE, to be transferred to the educational entity benefited through the PNAE (FNDE / PNAE, 2017; ROCHA, et al., 2017). It is possible to verify that the daily value per student higher R$ is for the schools of the Program of promotion to the schools full-time with 2.00, followed by the Day-care and Comprehensive Education with 1.00. The FNDE is an autarchy linked to the MEC that manages the financial resources for the attendance of school feeding in the public level education level. It operates in the municipalities, states, Federal District, Armed Forces, community entities, philanthropic and non-profit organizations that are considered members of the public education network and that meet the criteria established in Resolution nº 26 of the FNDE of 2013 (FNDE, 2013).
FNDE, in addition to administering the PNAE, is also responsible for calculating the amount that the executing agency of the policy will be entitled to receive. O FNDE "(...) sets standards, monitors and supervises the execution of resources received, as well as evaluating the efficiency and effectiveness of the Program" (ROCHA, et al., 2017, p. 58). Table 12 shows the last survey carried out by the FNDE in the year 2015 informs that 3,759 billion reais were invested in the purchase of foodstuffs for school me als. With this amount, 41.5 million students were attended. Of this amount, R $ 858 million was invested in the purchase of food from family agriculture for snacks. This corresponds to 22.8% of the total (FNDE, 2015; SEAD, 2018).  (2011), the PNAE aims to guarantee students access to healthy and adequate food corresponding to their age group. It aims to contribute to intellectual growth and development by providing meals that meet nutritional needs, promoting satisfactory school performance and healthy eating habits .
According to FNDE (2015), in the PNAE, responsibility is constitutional and involves, in large part, a large number of social actors such as public managers, teachers, school principals, students' parents, organized civil society, nutritionists, food handlers, family farmers, school feeding counselors and others. Its objective is to contribute to the healthy habits of students and to enable biopsychosocial growth and development in learning, as well as to increase school achievement by meeting nutritional needs by staying in school and contributing to health.

III.
METHODOLOGY It is a qualitative research that evaluates the implementation of the PNAE and also its development with the family farmers who participate in the Cooperative Agricultural Family Serra Taboão, and seeks to understand individual peculiarities and experiences.
For the construction of the field research, visits and interviews with the beneficiaries of the PNAE were carried out. With the social actors that manage the PNAE in the City of Rio do Sul and IFC in Rio do Sul, questionnaires were applied. The interviews with the beneficiaries of the PNAE are of the semi-open type, so that the researcher follows an established and standardized questionnaire. In the accomplishment of the questionnaires the distinction was made according to the group and participation in the PNAE.
The interviews were conducted with the PNAE beneficiaries (group # 01). The application of questionnaires was directed to groups 02 and 03, according to their relationship and participation in the PNAE, in the City of Rio do Sul   could be improved. The following are the issues that significantly illustrate the intent of this research. The first question to the farmers directed to the objectives of the research, seeking to perceive the socioeconomic contribution of the PNAE to the families. About the question "The sale of foodstuffs to the PNAE brought positive results for the family"? The following answers stand out. Identification of farmers is in parentheses. Being the letter A -Farmer, the number refers to the family interview and the letter M or Eindicates whether the respondent was the Husband or Wife.
" The improvement in the family financial budget and the quality of life is evident through the above statements. It is perceived that the program provided the maintenance of families in the field, bringing the farmers the right opportunity to sell their products. In the speeches, farmers point out that the guarantee of sale brings security, since the product cultivated counts even with a price previously established, which does not occur in sales to supermarkets or fairs.
Through positive, lively speech, it is perceived that farmers consider participation in NSPP important and interesting to their families. After all, as is evident from previous analysis, the program provided for the reformulation of the crop, changing the cultures with which farmers worked previously (as is the case of tobacco).
The second asked the farmers: "With the amount received through the PNAE was it possible to invest in the property? What were the investments"? This question sought to investigate the financial return that the program provides. This aspect has value in the sense of identifying if this Public Policy only supplies costs or if it also provides the possibility of investments in the property of the family.
The question was elaborated on the basis of Wanderley (2017). For the author, the lack of agricultural subsidies provokes the rural exodus. Public policies that focus on the development and stimulation of family farming provide financial stability and working conditions for farmers, contributing to the maintenance of the family in the countryside (Wanderer, 2017). Therefore, Question 03 investigates the possibility of investments in the property, considering the resources obtained through the PNAE. For this question, the following answers stand out::  properties that were possible with the resources of the program. In addition, they revealed that with the PNAE's profit it is possible to pay personal accounts and financing through Pronaf (National Program for Strengthening Family Farming), and with that they acquired agricultural equipment aimed at increasing production, agility in agricultural work. They also acquired means of transportation for their productions and for personal use. The program has provided the farmer with improvements in his property. Through these investments your income improves and provides more quality of life to your family. It was possible to identify expressions that were very focused on the positive points of the PNAE, from the point of view of the family farmers. There are evident impacts and results that the public policy reaches in practice having its pros and cons pointed by the participating agents. Carvalho (2003) considers that it is through the observed changes in the behavior of the final beneficiaries that the impact of a public policy can be evaluated. And for this, it is important to consider the evaluation of family farmers, who had their activities redirected after joining the PNAE.
Based on this understanding and the search for possible weak points, which require evaluation, the following question was elaborated: "Does PNAE need to be improved? In what aspects"? The questioning presented to the family farmers sought to evaluate the social effectiveness of the PNAE, allowing the direct beneficiaries of the program to express their point of view (CARVALHO, 2003). This issue will contribute to a significant evaluation of the program, realizing its efficiency and effectiveness.
Accordingly, the answers below express the views of the beneficiaries of the program:

(A7-M)
The above opinions allow for different analyzes. First, it is observed that the value received by the products supplied through the PNAE is satisfactory to the farmers. On this, the farmer A2-M showed in his speech that with the average estimate of market prices, if there is a fall in the purchase value of some food, the price contracted through the public call remains. The respondents were satisfied with the prices proposed through the public calls for supply of food items through the PNAE, but because of the costs, they think that it could be higher.
All farmers stressed that they would be able to provide more or even provide various items. However, they understand that items are bought based on demand, that is, what each school needs or what the IFC needs for meals of its student numbers.
Based on the interviewees' speeches, the following aspects stand out:  PNAE guarantees farmers the accurate supply of food items, with previously established quantities;  The price at which farmers sell food is considered fair, since it is established on the basis of the market average, but because of the costs they think it could be higher;  When there is a fall in the price of a product on the market, the farmer does not suffer the impact, since he will receive the amount previously established through the Public Call Notice;  Even if the price of the product rises in the market, there is no loss, since the

International Journal of Advanced Engineering Research and Science (IJAERS)
[ Vol-6, Issue-7, Jul-2019]  https://dx.doi.org/10.22161/ijaers.672  ISSN: 2349-6495(P) | 2456-1908(O) average value is established, it is already known by the producer;  There is a good level of knowledge on the part of family farmers about the rules and functioning of the program;  PNAE participants express an interest in providing greater diversity of items, or even larger quantities through the program. Based on the notes constructed through the reports, the effectiveness of this public policy can be verified. Farmers' assessment of the program is positive because the only aspect considered negative is the fact that "they would like to provide larger quantities or more items for school meals through PNAE".
Regarding the data collected with Group 02, the following social actors answered the questionnaire:  Municipal Secretary of Administration and Finance;  Agronomist of the Department of Agriculture of the Municipality of Rio do Sul. The answers will be analyzed below, according to the order of the questionnaire elaborated. As a matter of space, we selected the most relevant questions for the research.
The first question, together with the analysis of the: "What obstacles have been encountered for family farmers in Rio do Sul to be able to market their production with local trade"?
This question was elaborated in order to understand how social actors see the difficulties encountered by family farmers in the marketing of their products. In her reply, the Agronomist expressed the following: "I believe that individually, farmers can not get enough of them to meet the demands of the markets. You must have quantity and constancy for delivery [..

.]"
The aspect reported by the engineer turns precisely to the fact that we are talking about the family farmer, the small producer. It finds a limiting factor of area for production. Rural farms have an average of 22 hectares, which is consistent with the reality of the state of Santa Catarina. The interviewee continues her answer referring to the climatic variations of the region, with long periods of intense rains and periods of drought. It also reports the occurrence of hail, which seriously damages plantations.
In answering the same question, the Municipal Secretary of Administration and Finance answers that yes, that the obstacles exist. However, in its response it presents the actions taken by the public power to deal with this problem: " [...] There are incentives, such as: technical monitoring and training through the Executive Board of Agriculture and partner entities, municipal legislation that advocates the purchase of products from municipal family agriculture, the purchase process in products, in which the price is established according to paid in the markets, increasing the profit margin".
Based on the answer given by the Secretary, it is possible to identify coherence with the statements of the farmers and their levels of satisfaction in the program and to return to the understanding of Secchi (2016) that the decision of the public manager is based on information that requires analysis. Based on a clear analysis, it is up to the public manager to base his decisions and to carry out solid actions focused on the collective good for the benefit of the population.
The incentives which the Secretary speaks in practice express what Secchi (2016) understands as action to be carried out by the public manager. On the basis of the answers to the first question, it is clear that family farmers find obstacles to market their products. However, government actions seek to solve the problems encountered, giving farmers a better.
The second question was thus elaborated: "In your opinion, what difficulties does the family farmer find in order to be able to market his production with public agencies"?
Here, the questioning approaches the action of the public power, in the sense of making the respondents perceive the difficulties faced by the family farmer. The engineer's response is punctual: not have difficulties, since the delivery is even carried out directly in the educational entities, guaranteeing the delivery of fresh products". By means of the answers to the second question, it is noticed that the engineer observed a difficulty that could be experienced by the farmers, since the preparation of documents for participation in calls for public calls certainly demands specific understandings. The Secretary ends by expressing the point of view of the public power, reporting the inexistence of difficulties.
About Grupo 03, the Director of Administration and the Nutritionist, both from the IFC of Rio do Sul, answered questions. For lack of space, we reproduce only two questions: To the Director of Administration of IFC of Rio do Sul, we made the following inquiries: "What benefits and advantages did the PNAE bring to IFC"?
The manager's response to this questioning brings important information, as transcribed below: "We can cite as a greater benefit the receipt of fresher products and with little interference from pesticides, allowing the students to consume healthy foods. Besides this factor we can mention the fact that we are a school with an agricultural vocation where students can verify that it is possible to practice family farming obtaining income for the permanence of families in the field. It ends up being, in a way, a showcase of family agriculture, predominant in our region". The view expressed by the manager interviewed here consists of a positive evaluation and reinforced by important characteristics of the PNAE. Carneiro (2013) considers that evaluating performances in the public sector leads to an efficient control of public policies adopted and conducted by the State.
Here is another question to the manager: "The IFC is applying a percentage higher than 30% in the purchase of foodstuffs produced by local family agriculture, according to the recommendation of the PNAE"?
The manager's response to this question is accurate, and he demonstrates the percentages applied annually. In 2016 it was 79%. In 2017, 43%, and already in 2018 rises again to 77%. The numbers presented by the Director of Administration demonstrate compliance with the determinants of the PNAE guidelines, and the institution has been applying a percentage always higher than 30% in the purchase of foodstuffs through the PNAE.
The nutritionist of the IFC in Rio do Sul elaborated the following question: "What is the benefit to school feeding of foodstuffs produced in family farming"? To this questioning, the nutritionist highlights a striking aspect and is also emphasized by the farmers, who are directly committed to the quality of the product: "The main benefit is the "freshness" of food. We know that they are harvested close to the delivery date and with this it is believed that the nutrients and properties of food will be preserved".
The response of the nutritionist is related to what Gomes (2006) recommends that the nutritional standard and the quality of food are important aspects of food safety. For the FNDE (2015), the purposes of the PNDE comply with Law No. 11,947, of June 16, 2009, establishes as directives of school feeding in its goal of healthy and adequate food, directing that varied and safe foods should be used, also respecting the culture and the traditions, with eating habits healthy. They are contributions for the growth and the development and improvement of the scholastic performance of the students, according to age and its state of health.
They are purposes and practices that indicate the valuation of natural and fresh food to the students of the schools. This is a program that has resized the offer of snacks, presenting a food closer to the desired and necessary to the health and nutritional conditions of the students.
Food is a right proclaimed in the Universal Declaration of Human Rights, since 1948, linked to standards of living assured to health and well-being. Actions that promote rights and quality of life are fundamental to the governmental responsibility of each country, especially food that basic need to live and ease suffering.

V. CONCLUSIONS
The quality of school feeding in Brazil permeates Public Policies with programs involving the family farmer, the National School Feeding Program (PNAE). An alimentary proposal that involves the nutritional quality of the foods with products originating from the agricultural crop, avoiding the industrialized foods.
A proposal that has the effective participation of farmers who contribute to the proper nutrition of students in schools and pervades social and humanitarian responsibility. Students have benefited from natural and fresh foods that contribute to nutritional needs. Farmers have also benefited from agricultural production of food, among the main advances are the improvement of family income and the possibility of investments in agriculture in appropriate care with land and its inputs; in improving agricultural equipment for production; in increasing productivity and guaranteeing the sale of the products supplied.
Farmers' statements indicate a positive evaluation of the PNDE with the expansion of the family financial budget and the quality of life was very evident in the statements of the farmers. The program provided the maintenance of families in the field and more professional and financial stability with the proper valuation of products. There was an incentive for food production, productivity and guaranteed product sales.
Few of the factors to be improved were cited, namely those related to the increase in supply and the price of products because of production costs. There was recognition that the amounts paid are in the market average. This is a program that can become a worldwide example of food supply to schools and quality assurance in school meals, mainly by encouraging the planting of natural foods and their consumption, favoring food and health of students. The nutritionist highlighted the "freshness" of food, so the nutritional factors and food quality of the students were qualified by the nutritionist.
All management respondents confirm the quality of the program and the benefits to those involved in agriculture and to students in schools with a guaranteed quality of food. This is a Program that has fulfilled with its constitutional responsibility and social, human and citizen purpose and has greatly contributed to the stimulus to the exercise of social control; the dynamization and valorization of the local economy, and family agriculture involving employment and income, also valuing more natural eating habits. It is a proposal that could contribute with other countries in the demands of school feeding and valorization of local agricultural production.