Protección social

para la infancia
y la adolescencia
en la Argentina
Retos críticos para
un sistema integral
Fabián Repetto
Virginia Tedeschi Laura Pautassi
Pilar Arcidiácono
Mora Straschnoy
 

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CEPAL - Serie Políticas Sociales N° 186 Protección social para la infancia y la adolescencia en la Argentina...

La integralidad, en síntesis, procura darle a las políticas sociales una mayor coherencia e impacto,
a través de la convergencia de las mismas, privilegiando la perspectiva del receptor y atendiendo de
modo específico a las características de la población a las cuales van dirigidas esas intervenciones.
Está claro que de las posibles expresiones de integralidad en política pública, una que no resulta
eficaz y eficiente es aquella se que se propone “hacer todo, todos juntos, al mismo tiempo”. La
importancia de contar con buenos diagnósticos institucionales y socio-demográficos ayuda a definir
mejor, en cada caso concreto, cómo traducir la participación de múltiples sectores y niveles de gobierno
en pos de lograr un abordaje más integral.
Dada la complejidad de las dimensiones a atender en la conformación de un sistema integral para
infancia y adolescencia, el reto está dado por cómo lograr la confluencia de marcos analíticos que agreguen
miradas y saberes, lo cual debe permear no sólo el diseño de las intervenciones, sino la implementación
misma, etapa donde los funcionarios que operan en el territorio, cualquiera sea su nivel de gobierno, juegan
un papel fundamental. Es por esto que tener objetivos claros de para qué y cómo llevar adelante el abordaje
integral de múltiples sectores en torno a una política pública de infancia y adolescencia es una condición
fundamental e insoslayable, incluyendo la secuencia de cada intervención institucional.
Pero justamente esta búsqueda de la integralidad de las políticas públicas destinadas a un grupo
etario en particular, se ve afectada por diversos factores, todos ellos históricamente presentes en el caso
argentino. A modo de ejemplo: a) la fragmentación de las intervenciones (proyectos, programas,
políticas, planes); b) los problemas propios de la implementación sectorial, incluyendo las debilidades
institucionales en lo referido a las relaciones entre niveles de gobierno; y c) los modelos
organizacionales inadecuados (falta de programación estratégica, debilidades en materia de diagnósticos
sociales e institucionales, seguimiento y evaluación, entre otros).
Es evidente que generar avances concretos en la instalación de un sistema de protección social
integral implica dificultades de diversa índole y requiere sinergias político-institucionales,
presupuestarias y técnicas de compleja resolución (Repetto, 2010). Esta regla general se expresa sin
duda en toda su complejidad cuando se trata de un grupo poblacional en particular, como es el caso de
niñez y adolescencia. ¿Cómo transitar desde concepciones, planificaciones y gestiones sectoriales a una
intervención que por la propia (multidimensional y multicausal) problemática a afrontar requiere altas
dosis de buena intersectorialidad? ¿Cómo resolver el ejercicio concreto de las críticas funciones estatales
de gobierno (rectoría)/coordinación de todas aquellas políticas y programas dirigidas a esta población?
¿Cómo afrontar las complejidad de relaciones intergubernamentales entre tres niveles de gobierno, con
capacidades políticas, financieras y técnicas muy heterogéneas entre sí? 6. Todas estas complejidades de
la gestión pública en el marco de un caso como el argentino, donde es el nivel provincial quien tiene las
competencias fundamentales en políticas para este grupo poblacional.
Puede afirmarse, en síntesis, que el reto que Argentina tiene por delante es dual. De un lado,
necesita seguir avanzando en la conformación del propio Sistema de Protección Integral para infancia y
adolescencia, cuyos avances importantes aún requieren consolidación y profundización. Por el otro, se
requiere que esta nueva institucionalidad en un campo concreto, pero a la vez complejo por su
transversalidad y multicausalidad, se articule virtuosamente con la propia construcción, aún inacabada,
de un sistema de protección social más amplio, que no sólo promueva integralidad y efectivo ejercicio de
los derechos para infancia y adolescencia, sino para la población en su conjunto.

6
Morlachetti (2012), al analizar el proceso de instalación de los sistemas de protección integral para infancia y adolescencia en la región,
resalta como dificultad el aislamiento que de ellos se hace de la planificación general de las políticas sociales, como si fuesen
absolutamente independientes, y como si la atención individualizada de los conflictos de violación o amenaza de derechos de los niños,
estuviese conceptualmente abstraída de la política pública en general. En Argentina, un fallo reciente de la Corte Suprema de la Nación
marca otro hito en este sentido, respecto a la interpretación de la protección en sentido amplio reconociendo a un abanico de derechos
interdependientes entre si. En el caso Quisberth Castro (Fallo CSJN Q63 XLVI 2012) amplía la noción de protección social, más aún en
aquellos casos que involucran a infancia y adolescencia, y avanza en la consideración de la obligación del Estado en la implementación
de políticas sociales integradas, planificadas y debidamente coordinadas, que den respuesta a la vulneración de derechos.

7
CEPAL - Serie Políticas Sociales N° 186 Protección social para la infancia y la adolescencia en la Argentina...

El presente documento se articula en tres secciones. En la primera sección, se presentan los

avances fundamentales que la Argentina ha venido desarrollando en materia de protección social en
general, pero con un foco particular en lo referido al propio Sistema de Protección Integral para infancia
y adolescencia. En la segunda, se coloca el prisma en los aspectos críticos de la nueva institucionalidad,
incluyendo sus actores fundamentales y las dinámicas en marcha para generar la necesaria coordinación
pro-integralidad. Finalmente, en la última sección se presentan una serie de conclusiones generales.

8
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CEPAL - Serie Políticas Sociales N° 186 Protección social para la infancia y la adolescencia en la Argentina...

segunda mitad del período se determina por un avance hacia la universalización de las prestaciones
sociales, con el foco puesto tanto en los niños como en los adultos mayores.
La participación del GPS en torno al 65% del Gasto Público Total es producto del sostenimiento
de las acciones desarrolladas en materia de protección social algunas de ellas recién mencionadas, tanto
de carácter contributivo, (aumentos en Jubilaciones, Pensiones y Asignaciones Familiares) como no
contributivo (Asignación Universal por Hijo (AUH) y Argentina Trabaja, entre otros) implementadas
por el Gobierno Nacional y, por parte de los gobiernos provinciales, el incremento en las inversiones en
Educación, Salud y Agua Potable, complementadas en algunos casos por el Gobierno Nacional7.
Este esfuerzo fiscal y de avances concretos ha permitido lograr, junto a un mercado laboral
dinámico sobre todo en los primeros años a partir de 2003 (y con políticas activas que ayudaron a ello, por
ejemplo la política de “Más y Mejor Trabajo” y sus intervenciones específicas, la recuperación del Consejo
de Salario Mínimo, la expansión de las convenciones colectivas de trabajo, o la activación del REPRO que
generó condiciones para mantener empleo durante la crisis del 2008), una importante mejora de los
principales indicadores sociales en la Argentina (entre los que se resaltan los índices de pobreza, indigencia
y desigualdad 8). Esto implicó un alivio importante a la situación de las familias con mayor nivel de
vulnerabilidad, incluyendo por supuesto aquellas donde habitan en su seno niñas, niños y adolescentes).
Para contextualizar, a continuación se sintetizan algunas conclusiones acerca del análisis
del conjunto de la matriz de protección social en conformación en Argentina. (Repetto y Potenza Dal
Masetto, 2011).
La protección social en la Argentina da cuenta de múltiples avances en tiempos recientes, así
como de importantes retos de cara al futuro. Entre los desafíos, se cuentan la necesidad de interpelar el
papel de la política para darle sentido estratégico y solidez institucional a una concepción de protección
social que ordene y oriente las acciones en esta materia. También se identifican pendientes en la
magnitud y calidad de la oferta de los diversos sectores que conforman la protección social, así como en
la articulación de tales intervenciones. Y, asimismo, se requiere activar la capacidad técnico-operativa
para construir un sistema de protección social integral que afronte con éxito el reto de atacar las
desigualdades sociales y territoriales.
Avanzar en una definición estratégica de protección social integral y con enfoque de derecho
ayudaría a precisar qué rol le toca jugar a cada sector y nivel de gobierno, cuáles metas son factibles de
alcanzar en el corto, mediano y largo plazo, y qué factores estructurales deberán removerse para avanzar
en una efectiva protección social del conjunto de los ciudadanos (y no sólo de los más pobres y
vulnerables). En este plano se inscribe el reto de avanzar con pasos firmes y coherentes hacia un acuerdo
federal de protección social (y sus peculiaridades en componentes críticos según por ejemplo grado de
descentralización generado oportunamente), que con fuerte liderazgo del Estado y sus actores sectoriales
y jurisdiccionales, contemple la participación de actores socio-económicos estratégicos.
Se requiere, a su vez, dotar de una mayor y mejor institucionalidad al conjunto de acciones
vinculadas a la incipiente, pero no por eso menos robusta matriz de protección social argentina. La
recuperación de una normativa laboral pro-trabajador y de protección social contributiva en un sentido
más amplio, requiere articularse virtuosamente con leyes que respalden actuaciones en el campo de los
servicios sociales y, en especial, en el componente no contributivo de la protección social. Asimismo, es
claro que los arreglos institucionales a futuro deberán ayudar a remover incentivos para prácticas
clientelares en intervenciones que habilitan la discrecionalidad en la asignación de los recursos.
Asimismo, se torna necesario revisar los retos sectoriales que siguen vigentes. Así, por ejemplo,
dentro de las políticas de protección social contributiva, es menester revisar de modo profundo la
aplicación, montos y cobertura del seguro de desempleo; en la salud, la fragmentación en tres

7
Agradecemos estas referencias al gasto social a Damián Bonari (comunicación personal).
8
Cabe mencionar que la tendencia a la mejora de estos indicadores sociales es coincidente se trate tanto de la cuestionada fuente
oficial del INDEC como de fuentes no oficiales de reconocido prestigio. Se varía entre fuentes, de un modo significativo, en los
valores de esa disminución y en su situación actual.

10
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Para fortalecer las políticas públicas orientadas a la primera infancia en el marco del Sistema de
Protección Integral de Derechos de Niños, Niñas y Adolescentes, se dictó oportunamente la Ley de
Centros de Desarrollo Infantil (Ley Nº 26.233/05) que tiene por objeto la promoción y regulación de los
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también, instalar capacidades que favorezcan la promoción y protección de los derechos de los chicos/as
en el ámbito familiar y comunitario. Se traduce institucionalmente en nuevos organismos creados en el
ámbito de la SENNAF, como por ejemplo la Dirección de Gestión de CDI Comunitarios, que entre sus
líneas de acción construye espacios de trabajo conjunto entre organizaciones comunitarias y actores
locales, provinciales y nacionales, con el objeto de capacitar a los recursos humanos que se desempeñan
en los centros y proveer de material didáctica e infraestructura adecuada. Asimismo, dentro de la propia
SENNAF se creó la Comisión de promoción y asistencia de los CDI dentro de la SENNAF para
coordinar el trabajo interjurisdiccional, lo cual conlleva el reto de cómo articular enfoques y saberes
muchas veces en tensión entre las áreas de desarrollo social y las del sistema educativo (este último bajo
responsabilidad provincial).

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CEPAL - Serie Políticas Sociales N° 186 Protección social para la infancia y la adolescencia en la Argentina...

(afectándose así sus posibilidades futuras de inserción laboral). Asimismo, en el campo de la salud, si bien
las medidas señaladas oportunamente y recién recordadas han sido muy relevantes y favorecieron a la
infancia y la adolescencia, es claro que se mantienen presente algunos desafíos más estructurales del sector,
como ser la difícil convergencia de los tres sub-sistemas y la heterogeneidad provincial en la calidad de los
servicios, por citar sólo dos de los ejemplos más evidentes.
Un ámbito de la protección social donde Argentina ha hecho importantes avances, sobre todo en lo
referido a la población entre 0 y 18 años (incluyendo el propio proceso de gestación), es en términos de
transferencias monetarias. Se ha constituido en un hito importante la decisión política del Estado de asumir
la responsabilidad en tender a asegurar un ingreso básico en cada hogar donde viven niñas, niños y
adolescentes. Resulta compleja, en ese marco, la tarea futura de sostener en el tiempo la coexistencia
de transferencias ligadas a la modalidad contributiva con la no contributiva, generándose un reto
adicional de cómo resolver la tensión entre una propuesta con enfoque de derecho con la aplicación
de condicionalidades.
En materia de cuidado (en este caso infantil), el país ha comenzado en años recientes a colocar la
temática en un lugar expectante de la agenda gubernamental. No obstante, se trata de uno de los
componentes críticos de un sistema de protección social integral y con enfoque de derecho para la
infancia y la adolescencia donde es más pertinente el rótulo de “asignatura pendiente”. Se han generado
incipientes avances legales (por ejemplo la Ley de Centros de Desarrollo Infantil que requiere aún
avances concretos por ejemplo en materia de compromiso efectivo por parte de las provincias) y
programáticos (el “Primeros Años” es el más evidente), pero aún queda un camino por recorrer en
plasmar todo el potencial que estas y otras intervenciones tendrían en mejorar la oferta de servicios
públicos de cuidado. En esa tarea por venir, también debiese estar presente la promoción de un profundo
cambio cultural impulsado el liderazgo estatal a través de políticas públicas transversales con enfoque de
género, promoviendo las condiciones para cambios en los comportamientos de hombres y mujeres a
efectos de fomentar una mayor equidad al interior de los hogares en tanto es el cuidado una de las
expresiones más cabal de la desigualdad entre unos y otras.
Asimismo, para avanzar seriamente en la conformación de un sistema de protección social para la
infancia y la adolescencia, se requiere contar con información y capacidad analítica que permita entender
en toda su complejidad las diversas situaciones socio-demográficas que afectan a esta población.
Argentina, aún con problemas de confiabilidad en materia de información pública en general, y tal las
diversas fuentes presentadas previamente, ha logrado en los últimos años avances respecto a contar con
más cantidad de datos sobre el perfil de esta población (y el modo en que se expresa la heterogeneidad
territorial), e incluso sobre las políticas públicas universales y específicas a las que accede esta
población. El reto hacia delante lo constituye, sin duda, el cómo lograr una práctica permanente de
gestión del conocimiento estratégico para la toma de aquellas decisiones públicas que afectan la calidad
de vida de niñas, niños y adolescentes. También, en torno a aquellas temáticas invisibilizadas que hacen
al goce y ejercicio de derechos. Todo esto debiese ayudar, asimismo, a que el Estado (en sus diversos
niveles jurisdiccionales) haga plenamente efectivo el enfoque de derechos acorde a estándares de calidad
debidamente normados y sustentados en información confiable.
Como en todo campo de política pública asociado a temáticas que transversalizan el aparato de
gestión pública y los niveles jurisdiccionales de gobierno, la temática de infancia y adolescencia afronta
dos retos político-técnicos muy importantes: por un lado, cuestión en esencia político, respecto a quién
ejerce la rectoría (es decir, el gobierno) del conjunto de intervenciones que afectan de un modo u otro a
esta población; por el otro, la cuestión de cómo promover real coordinación entre instituciones, niveles
de gobierno y servicios/programas. Y ambas funciones críticas en todo Estado moderno, se asocian a lo
que es sustantivo en el nuevo marco legal de infancia y adolescencia: su concepción sistémica y, por
ende, su fuerte demanda de integralidad. En este sentido, y aún cuando los actores que la nueva
institucionalidad ayudó a conformar van llevando adelante sus tareas pese a su joven existencia, queda
camino por recorrer para fortalecer, al mismo tiempo y con altos grados de coherencia, ambas funciones
de gobierno y coordinación. El importante rol que le toca desempeñar a la SENNAF no parece alcanzar
para que otros sectores críticos de la gestión pública (nacional, provincial y municipal) den los saltos
cualitativos que la problemática de niñez y adolescencia requiere.

56
CEPAL - Serie Políticas Sociales N° 186 Protección social para la infancia y la adolescencia en la Argentina...

La nueva normativa no sólo promueve la construcción de un sistema, sino que resalta el enfoque
de derecho y las consecuencias prácticas que ello acarrea (Abramovich y Pautassi, 2009). Este gran
avance requiere, sin embargo, algo más que la propia promulgación de las leyes y sus respectivas
reglamentaciones; requiere también cambios culturales profundos tanto en el plano del sistema político
en su conjunto, como en las prácticas organizacionales de los diferentes actores involucrados en la
temática (incluyendo, por ejemplo, el Poder Judicial). Y en este sentido los retos son múltiples y de
compleja resolución. El viejo paradigma del Patronato permanece instalado en ámbitos y actores con
relevancia en la institucionalidad y las políticas públicas de infancia y adolescencia, y si bien la opinión
pública va dando paulatina robustez a una concepción propia del nuevo paradigma, se trata de una tarea
político-ideológica aún inacabada. Es dable esperar futuras resistencias profundas en este plano, muchas
veces intangibles de la política pública.

57
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